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Walking the talk

Communities on Communities First

Contents

Executive summary page 2

1. Introduction page 5

2. Communities First: the context page 6

3. Main findings and cross-cutting issues page 7

4. Why this review? page 11

5. Methodology page 12

6. Splott, Cardiff page 14

7. Duffryn, Newport page 23

8. Caia Park, Wrexham page 31

9. Recommendations page 38

W a l k i n g t h e t a l k 1
Executive Summary
Communities First enables communities to decide what is needed and helps
them realise their ambitions; it increases the level of participation of local people;
it is about making a meaningful and lasting difference to our disadvantaged
communities.
From Communities First Guidance 2001

1. Introduction 2. Methodology
The Anti-Poverty Network Cymru (APNC) is a During the course of this review, the APNC
membership network of grassroots community interviewed or polled more than 300 people from
groups and individuals who share common aims. three Communities First areas: Splott in Cardiff,
Duffryn in Newport and Caia Park in Wrexham.
These are to: The areas were chosen as each has taken a different
approach to the Communities First process.
Work with communities to challenge poverty;
Ninety-one community people were interviewed,
Strengthen the poverty lobby by building effective either individually or in small groups. Interviews lasted
relationships with members and recruiting new an average of 1 hour 18 minutes. 214 people were
members; also randomly polled on the street at key places in the
community.
Investigate and publicise the extent, causes
and effects of poverty in Wales. The interview notes were sent back to all interviewees
for checking. Then a collective feedback session was
The APNC carried out this review of Communities held in each area at the end of the research in that
First after facilitating a number of open discussion area.
forums across Wales, where people in communities
were able to put forward what they saw as the main A final feedback process involved writing and
issues of importance. Communities First was one of speaking by phone to interviewees individually to
these. give the opportunity to check the content and
major findings of this report.
This was then followed by consultation on the
framework for this review in an open forum. APNC
members were able to influence its direction and
determine what questions should be asked.
The review was carried out with the aim of making
some positive recommendations from the grassroots
about how to engage, involve and empower
communities in the Communities First process.

2 W a l k i n g t h e t a l k
3. Findings 4. Recommendations
The emphasis on community participation is the key This review makes a number of recommendations,
plank of the Communities First strategy. But there isnt among the most important of which are:
a consistent or shared understanding of what genuine
p a rticipation means. It is not just about taking part in Ensuring that the Communities First process
the Local Partnership Group, but also developing is participatory. This would involve:
other mechanisms to ensure the genuine participation
of the wider community. Agreeing a common and shared definition
of participation;
In addition, the theory of participation is not Ensuring that the demographics of the area
matched by practice on the ground. are reflected in the involvement of the local
Local Partnership Groups are being formed community. This applies especially to young
without the extensive preparatory work needed people and members of Black and Ethnic
to ensure genuine community participation; Minority Groups;
Establishing baseline data so that participation,
Community representatives sit on Local
as well as measurable impact, can be
Partnership Groups, but questions need to be
monitored;
asked about what representation means in this
Being aware of potential tensions and ensuring
context. How did they get there? Who is being
that the process builds community rather than
represented and by whom? What support is being
dividing it;
given to community representatives?
The community representatives on the Local
Appropriate information is not easily available.
Partnership Group should be viewed as enablers
When it is, it is often limited and written in a way
rather than being expected to represent the whole
that is not easily understood. This means that
community;
many people do not know about Communities
First. Where they do, there is often confusion over Information should be clear, accessible
what it means; and jargon-free;
The diversity of communities in particular, Each area needs a gender impact assessment,
young people and black and minority ethnic which looks at the different needs of men and
communities is not adequately represented on women;
Local Partnership Groups. Community
The Welsh Assembly Government should be
representatives are generally older people who
transparent and accountable to communities
have experience of being on committees.
in its decision-making about the distribution of
And younger women often find it harder to be
Communities First funding;
involved because of issues around childcare;
Communities First should focus on process as
Communities First does not have the mechanisms
well as outcomes;
to make it accountable to the local community.
It is often unclear how decisions are made and There should be a focus on building the
where money comes from, where money is going capacity of local people to take part in
and / or who has funded what; Communities First;
In the Communities First areas that we looked at, Power should be transferred to the local
there is greater emphasis on project delivery and community, which means those in charge need
less emphasis on ensuring that the projects are to be prepared to give up some of their power.
actually being delivered to fit the needs of the
community.

W a l k i n g t h e t a l k 3
Childcare needs to be properly resourced. 5. Conclusions
Communities First could work better with existing
service providers. The Anti-Poverty Network Cymru is committed to
seeing that the Communities First process succeeds
The review came up with specific ideas on what in being both participatory and community-led.
a Local Partnership Group should look like, Participants from the three areas in this review were
for example, reflecting the diversity and the also positive about the idea of the local community
demographics of the area; being seen as neutral, being in charge. We offer this re p o rt and its
and supporting community representatives. recommendations in order to ensure that the theory
of community participation can now be turned into
Funding should now last until the end of the practice.
Communities First ten-year period to ensure
continuity.

And finally, there were a number of


recommendations about supporting
Communities First co-coordinators.

4 W a l k i n g t h e t a l k
1. Introduction
People like the idea behind Communities First ie community participation.
But the practice needs to change to reflect that principle. We believe there have
been positive impacts but it needs to be more inclusive and its benefits evenly
distributed.
From a feedback session of the APNC review of Communities First

The Anti-Poverty Network Cymru (APNC) is a Second, that Communities First is a journey. In this
network of grassroots individuals and community review we have worked closely with three different
groups who have experience of what it is like to live areas all of them are at different stages of
in poverty. We welcome the Welsh Assembly community development and activity. At any time
Governments Communities First Programme. it is important for all parties involved in Communities
It shares our belief that sustainable development First to ask themselves Who holds the power?
and future prosperity will only be realised in Wales Who is making the decisions? Who is represented?
if all communities are enabled to take the driving seat Who is benefiting?
and direct the strategy for change. Like the Welsh
Assembly Government, we believe in putting There are other questions that remain: for example,
communities first. It is our wish that this re p o rt and
its findings will help this process. How to engage those people with the least
power and voice and ensure that they participate
During the course of the review, the APNC spoke in the process and programme?
to more than 300 grassroots community people in
three different areas. Although the majority of people What are the mechanisms and models that need
randomly polled on the street had not even heard to be put in place to ensure that the community
of Communities First, many of those who did know drives the agenda to challenge social exclusion
about the programme were genuinely committed to and poverty?
its aims. They were impressed by the stress on
community participation and the recognition that If the programme is really to deliver in its remaining
local communities have a part to play in their own years, then it must answer these questions and
regeneration. overcome the barriers to involving the local
community. Communities First must continue to
Two things became clear as we talked to people put communities first. As one respondent put it,
in the three different areas. First, that Communities Communities First must now walk the talk.
First will only work if power is transferred to the local
community. In order for this to happen, the current
power holders must be willing to hand over power
for example, over decision-making and resources
and actively assist with this process.

W a l k i n g t h e t a l k 5
2. Communities First: the context
In 2000, the Welsh Assembly Government initiated a Its main principles include:
ten-year regeneration programme, called
Communities First. Its central focus is to place local Making sure that local people play a major part in
people and their communities at the heart of planning developing solutions to the problems they face;
and delivery of regeneration initiatives:
The Communities First programme is a long-term The programme is flexible and there are not very
strategy for improving opportunities and the quality many hard and fast rules. The ones that exist are
of life for people living and working in the most there to make sure that communities are closely
disadvantaged communities in Wales. It was to be involved in the process and that the money is
carried out in the top 100 wards indicated by the spent properly;
Index of Multiple Deprivation, plus an additional 32
pockets of deprivation (at sub-ward level) and eight There are three funding stages; preparatory,
communities of interest. capacity building and a Community Action Plan.1

Communities First has a strong emphasis on


p a rtnership working; it states that it is different from
other programmes in that, among other factors:

It enables communities themselves to decide


what is needed and helps them realise their
ambitions;

It increases the level of participation


of local people;

It is about making a meaningful and lasting


difference to disadvantaged communities;

It encourages creativity, risk-taking


and imaginative approaches;

It involves an integrated approach to addressing


poverty and the factors that cause or contribute
to it.

6 W a l k i n g t h e t a l k
3. Main findings and cross-cutting issues
The following issues emerged from the APNC review. For example, Local Partnership Groups are being
They are common to all three areas, relevant to formed without the extensive preparatory work
Communities First, and reflect the discussions that needed to ensure genuine community
took place throughout this research. participation.

What is community participation?


When we talk about participation in this context, involved participation of a wide cross section of
we mean how much local men and women are the community; a substantial majority who are
involved in the regeneration of their areas. Being aware of the programme and are actively feeding
involved means having a say, and having their into and directing it. Channels of communication
views respected and acted upon. It is about and methods for participation must be set up to
directing the programme rather than being told enable this to happen. Power must be
about it. Good participation sets up structures so transferred to the local community. The current
that the whole range of views, those of men and power holders must be willing to hand over
women, young and old, can be given a voice in power, for example over decision- making and
this process. resources, and must actively assist with this
To be effective, Community First requires the process.

In order to achieve real participation from the whole


3.1 Participation
community, accurate baseline data needs to be
gathered at the start of the process. This is often not
As a concept, everybody involved does not
collected in individual Communities First areas and
understand participation in the same way.
is not a requirement of the Communities First
Consultation and participation appear to be used
programme. Without the presence of such data,
interchangeably, both by communities and by
Communities First cannot measure its impact in
Communities First. Community participation is not
individual areas.
the same as community consultation.

There are funds to prepare communities for the


introduction of the Communities First process,
but it is not obvious that they have been used to
help community members participate fully in the
process.

W a l k i n g t h e t a l k 7
3.2 Defining community 3.3 Representation and diversity
Living in a specific place doesnt necessarily lead to The issue of how the community can
inclusion and participation in the community. be properly represented on the Local Partnership
Group is present in all three areas:
Many people have clear ideas about where the
territorial boundaries of their community lie, and There are few ways to ensure wide representation
who and which groups are considered insiders and from the different sectors of the community.
outsiders, both within and outside its physical There are no means of testing the accountability
borders. Those people who seem to have the of Local Partnership Group representatives;
strongest links to what they perceive as their
community tend to be those who have lived in the Questions were raised about how representative
area for a long period of time, have historical links community members on Local Partnership
there and/or are engaged in community activities. Groups are, or can be. There is a lack of clarity
They tend to have more influence over the direction about what is meant by being a community
of events or activities locally, and perceive themselves representative. At the moment many community
to be part of an identifiable group with strong local members feel under pressure to represent the
social networks. whole community. This is a near impossibility.
A small number of men and women cannot bear
Those who consider themselves, or are considered the responsibility of community participation on
by others, to be outsiders or different to a core their own;
group, often tend to be newcomers, or members of
an identifiable ethnic group, that may or may not have Young people, ethnic minority groups (especially
a long-standing local presence. However, not all in Splott) and women with caring responsibilities
newcomers are considered outsiders; family links in are not generally represented on Local Partnership
an area can mean some newcomers can simply Groups. There do not appear to be appropriate
blend into existing networks. entry points for young people or Black and
Minority Ethnic groups to engage with
In Splott, respondents identified several communities Communities First. The following quote came
and the issue is far more complex than simply dividing from a person who works closely with young
people into racial or ethnic categories. One person in people in Splott: Theres a barrier between youth
Splott summed up the difficulty as follows: and the rest of the community; young people
dont feel part of the community;
Community is a banner which is stuck on
an area though its really communities within In the areas we looked at, the community
communities, all separated from each other. representatives on the Local Partnership Groups
tend to be older people, for example, mainly
In Caia Park, the perception is that it is composed well-known, influential activists, with existing
of different area clusters, which are distinct from each knowledge and skills. While these people are
other. Many people feel their loyalty is to their area well-regarded, they dont encompass all the
rather than Caia Park as a whole. different voices within the community.

The Communities First approach does not seem to


factor in local power relations or other variables such
as gender or race. This appears to be one of its
principal challenges: marking boundaries according
to geographical areas does not guarantee inclusion.

8 W a l k i n g t h e t a l k
3.4 Capacity building 3.6 Information

Communities First needs to focus on building the Information, and the lack of it, emerged as a key
capacity of the local community, identifying existing theme from this review. In places where information
skills and looking at the barriers to participation such is more easily accessible such as in Duffryn and
as lack of experience or knowledge, childcare, or Caia Park, some of it is felt to be too full of jargon to
confidence. be understood. Respondents in Splott noted that
information was sent to those already in in the know.
If the preparatory and capacity building stages are
properly structured and implemented, various Other comments included: Youd think theyd
strategies would be identified and developed to send you an annual report or information about
involve a wider variety of groups and age groups. partnership organisations if youd had funding but
we havent had anything and Leafleting is not
enough; you have to hold events to get people in.
3.5 Profile of Communities First

Communities First is not widely known in any of the 3.7 Gender


three areas. It is least known in Splott, where relatively
little money has been spent, but even in Caia Park Across the three areas, the issue of gender
and Duffryn, where there are many Communities stereotypes and the implications for mens and
First projects, there appear to be substantial numbers womens involvement in the community was raised.
of people who have never heard of the programme. More women than men are involved in community
There is little ownership of Communities First; it is work at the grassroots, though more men are present
seen more as another source of funding for projects. at the Local Partnership Group level. Gender impact
assessments, which create an awareness of men
Very few people are aware of the Local Partnership and womens different needs in order to target
Group (even if theyve heard of Communities First) resources to achieve better results, are missing from
and/or of the distinction between the Local the Communities First process.
Partnership Group, the Grant Recipient Body and the
Communities First Trust Fund. Those who have heard
of it, however, generally approve of the principles on
which Communities First works.

W a l k i n g t h e t a l k 9
3.8 Accountability and transparency 3.9 Process

There is little transparency from the Welsh Assembly In the Communities First areas covered in this review,
G o v e rnment about how money is allocated to areas, there is greater emphasis on project delivery and less
how Communities First policy is implemented and emphasis on ensuring that the projects are actually
how communities can access funds. This is partly being delivered in accordance with what the
due to a lack of appropriately targeted information. community needs.
There doesnt appear to be any equality between
funding available to different areas and there are no While resources are being directed towards project
obvious criteria for accessing such funds. As one delivery, there is little evidence that they are being
respondent put it: At the beginning it was a culture used to facilitate the process of helping local people
of whack it in [applications] for funding. participate in Communities First.
Although this is a ten-year programme, funding is
given on a three-year basis. This makes it hard to In some cases, by not paying attention to process,
plan long-term. Communities First has created divisions among local
communities rather than bringing them together.
In Duffryn and Caia Park, where 938,582 and Some people believe their own concerns and ideas
3,022,971 respectively has been allocated for are not being listened to or taken on board, and that
Communities First, a wide range of programmes and others in their area are benefiting from Communities
activities were funded. In Splott, it is unclear how First while they are not.
much has been allocated because the money is
made over to the Local Authority for all Communities
First areas in Cardiff. 3.10. On the way
The Communities Trust Fund, a pot of money to
One of the positive outcomes of this review was that
give small grants to local organisations as part of
the process of coming together helped people in the
Communities First, is seen as a positive initiative, has
community to begin talking about a range of issues.
made an impact on local small groups and has little
They felt this was a first step on the road to begin to
bureaucracy. But because it is so visible, there has
tackle some of them.
been confusion between it and the Communities First
In one area in particular, many of the Local
Programme funding.
Partnership Group community representatives
realised how little they knew and understood about
Communities First. This emerged during the interview
process of this review. At first, the researchers noted
that this appeared to have a negative impact on the
people involved.

There was much discussion around whether the


review was an empowering or disempowering
process. However, as time and the research moved
on, the review emerged as a positive motivating
factor. The area feedback meeting acknowledged
that people are now supporting one another and
tackling their lack of knowledge and understanding
in a positive way.

10 W a l k i n g t h e t a l k
4. Why this review?
The research for this review was born out of open Key principles underpinning
forums held throughout Wales by the Anti Poverty the work of the review
Network Cymru during 2004. In these forums,
community members could raise the issues of An understanding of the composition, needs,
importance to their communities at that time. priorities, tensions, strengths and existing
One of these was that although Communities First networks within communities;
was welcomed as a positive concept, issues about
the reality of the practice were highlighted as a major The need for partnership working and resourcing
c o n c e rn. of participation at all stages of the Communities
First process;
From this, the APNC conceived this review and then
held another open forum to ensure that it would be Sensitivity around accountability and
looking at the areas of greatest concern to people representative structures the building of effective
within Communities First. It aimed to provide an structures and infrastructures, which strengthen
opportunity for community groups and individuals to communities rather than dividing them;
talk about their experience of Communities First and
the extent to which it has really helped those The need for a wide range of ways in which
communities. people can participate in debate and discussion
about the Communities First process in their
The APNC review was both participatory and locality;
gendered it took into account the different views
of men and women. The review aimed to: The need for evidence that communities have
been heard, and that decisions have been
Build links between communities; informed by the community itself;

Share ideas and experiences of what works Recognition that men and women participate
and what doesnt in community participation from a variety of different starting points and
and decision-making; experiences, and that this has implications for
how they can contribute.
Empower community agents;

Place the voice of the community squarely in the


centre of the development of Communities First.

W a l k i n g t h e t a l k 11
5. Methodology: how we did it
The research was carried out in three Communities Interviews
First areas: Splott (Cardiff), Duffryn (Newport) and Interviews took place between May and November
Caia Park (Wrexham). 2005, with each area being taken in turn. They were
based on the following themes:
The three areas were chosen because they
represented the variety within Communities First. Total individual respondents
In Duffryn, the existing established community
Caia Park 121
association became the Grant Recipient Body;
in Caia Park, there was a very well established Duffryn 99
community organisation but it was bypassed and Splott 85
a separate Communities First body set up.
Total 305
In Splott, the Local Authority was chosen as the
Grant Recipient Body, despite the reservations of
local activists and Splott has received very little a. Who is included/excluded
Communities First Programme funding as yet. in the Communities First process?
b. How are decisions made?
Members of the Anti Poverty Network Cymru and
the Oxfam UK Poverty Programme Social Inclusion c. Who makes these decisions?
Project Officer (Wales), carried out the work for the (male /female split and sector profile)
review. In each area, an initial scoping exercise was d. How are decisions communicated to residents?
carried out and a database of contacts gathered.
This included both those who were involved in the e. What has been funded to date?
Communities First process and those who were not. f. What works?
Community groups and organisations were
approached to request interviews and to source g. Where do you want to be in five years time?
further contacts. In addition, the Communities First h. What needs to change?
Support Network website was consulted in order to
i. Where do you get your support from?
contact groups who had received grants through the
Communities First Trust Fund. This did not always j. Who helps you?
prove successful, as the information on the website (including advice and guidance from coordinators)
listed only the group name and amount received.
k. Sustainability.
Therefore, time was spent identifying groups through
community sources, word of mouth and/or through
directory searches, the Internet, and by telephone.

A total of 305 individual respondents were contacted


through interviews and street polling.

12 W a l k i n g t h e t a l k
Transparency was built into the process of the review Diversity
from the beginning. Interviewees were given the Because it emerged quite early on from this review
chance to check the notes of what they had said that representation, diversity and gender were key
and agree them. After this, collective feedback issues in the Communities First process, we tried
sessions were held in each area giving participants to address this in the review. We aimed for a
the opportunity to verify or dispute the findings and balance of men and women throughout, though
to check back with participants on the course of the in the end women were more available and happy
review. A final feedback process involved writing, to speak to us than men, so our sample was
and speaking by phone, to those who took part in two-thirds women and one-third men.
interviews to give them the opportunity to check the
content of this report and make recommendations. In Splott, we made particular efforts to include
Ninety-one people were interviewed, some people of minority ethnic background, with some
individually, some in pairs and some in groups. limited success; in Duffryn and Caia Park, we tried
It was easier to access women, with the result that to contact and interview young people under 25.
69 interviewees were women and 23 were men. This did not prove successful; in Duffryn, making
Interviews averaged one hour and 18 minutes. contact with young people depended on
accessing key individuals who worked with young
Interviews people and whose primary concern was to
safeguard the integrity of their relationship with
their client group. In Caia Park, with a few
exceptions, all avenues of contact led to people
over 40. Our lack of success in these areas
Caia Park 32 8 24 1 hr 30 min reflects the fact that these people are absent from
the Communities First process, as well as the
Duffryn 24 9 15 1 hr 13 min
difficulty of including young people and minority
Splott 35 6 29 1 hr 12 min groups in any process.
Total 91 23 68 1 hr 18 min
Community representatives in the three areas said
In addition, a total of 214 polls were carried out on the this was the first time that they had been involved
street at strategic points such as outside schools, in a review.
playgroups, shops and at bus-stops at different times
of day. Again, more women than men were available
and willing to take part. A total of 159 women and 55
men were polled.

Street polling

Caia Park 89 18 71
Duffryn 75 12 63
Splott 50 25 25
Total 214 55 159

W a l k i n g t h e t a l k 13
6. Splott, Cardiff, South Wales
Splott is one of the friendliest places in Cardiff.

Splott is 85th on the Index of Multiple Deprivation Though Splott is generally viewed as a traditional
(2000) in Wales2. The Local Partnership Group draws (white) working class area, it has, in recent years,
members from neighbouring Tremorfa as it forms part become more ethnically diverse. Among a hardcore
of the Splott electoral ward, along with Pengam of old Splott and Adamsdown residents identified by
Green. Splott skirts Cardiff city centre and Tremorfa people who took part in this review, there are also
stretches to the east. Splott shares a shopping street new ethnic communities. The variety of new groups
and other amenities with another area: Adamsdown. identified range from Africans to Sikhs to Eastern
Those who live there often view the division between Europeans, to first-time house buyers from outside
the two as artificial, as they are interconnected the area, so that Splott could be described as a
through personal, social and institutional relationships. complex area characterised by movement and
A number of those interviewed stressed those change and groups living alongside each other that
connections, though the primary focus of this review are very different in terms of power, income and
is on the Splott electoral ward, which is the status3.
designated Communities First area.
There is almost no evidence of integration amongst
For some, particularly young people, the territorial the different ethnic groups. It was suggested by one
boundaries are important. Young people are seen person that integration is difficult. As a community
to be disenfranchised from the general community. activist put it: people are very aware of cultural
Approximately 39 per cent of residents in Splott are differences which makes integration difficult. The
between 20 and 44 yrs; 5% are 16-19; 18 per cent formation of the Local Partnership Group has not
are 5-15yrs and 8% are under four years old. addressed, nor is required to address, the issue of
A total of 31 per cent are under 19. diversity. The Black and Minority Ethnic Partnership
Board, which covers the whole of Cardiff and is a
The money allocated to Splott by Communities First is Communities First area of interest, does not currently
much less than that in the other two areas, although it have a mechanism to dovetail with the area-based
is unclear how much has been allocated because the Local Partnership Groups and so does not have the
money is made over to the Local Authority for all means to address ethnic diversity at local level.
Communities First areas in Cardiff.

The population of Splott stands at just over 12,000.


Approximately 31% of homes in Splott are rented
from the local authority or a housing association4.
There are a considerable amount of new builds in
the area, most of which are apartments. Most streets
are terraced houses, with some clusters of social
housing, often distinguished as estates in themselves.

14 W a l k i n g t h e t a l k
6.1 Visibility
Communities First is not visible to many people in leads people to draw their own conclusions about
Splott. It is difficult to find many who are aware that who has received funding. In one interview, it was
they live in a Communities First area: out of 50 people claimed that a project in the area had received fund-
polled on the street, none were aware of ing; however, the supposed beneficiary had received
Communities First. Twelve out of the 35 people their funding from another source (and was required
interviewed were aware of the Local Partnership to advertise that source) and wondered about the
Group and/or who sits on it. mythical pot of money that was supposed to be
available to community groups and projects from
One person who had been a community activist Communities First. This project was advertised in the
and lived in the area for 20 years had never heard of Communities First newsletter, which led to the
it. Others knew about it mostly because of the trust inaccurate conclusion that the project had received
fund. money from the Trust Fund.

Invisibility
Ninety per cent of the community has never No-one knows about Communities First in
heard of Communities First; the other 10% general, they hear about it and the regeneration
are not involved at all. in Tremorfa but weve seen nothing so far.

.needs to be brought more to the common Most people in Splott dont know that it is a
person, get more local names and parents Communities First area.
involved, a local person rather than the head
of leisure or head of school who doesnt live No-one knows about Communities First,
in the area. which is just as well, as a lot of money has
been spent on wages and little else.
I saw Communities First initially as community
led, community administered to provide
community funding.

The coordinator, up to the time of this review, was This same issue was commented on in a third
accommodated in the offices of a local housing interview, with concern expressed that the
association, rendering them invisible to people living Communities First newsletter is featuring projects
and working locally. This lack of visibility means that which suggest funding and support has been
only those who know about the programme can received from Communities First.
conceivably influence the process.
The lack of information about the Trust Fund and its
Those in Splott who were familiar with Communities place within the Communities First process has
First were supportive of the initiative. The central idea caused confusion and division. Splott is allocated
of the programme, being led by the community, was 20,000 per annum from the Trust Fund.
considered to be the most appropriate way of The perception that resources are scarce and the
addressing local needs and issues. A number of lack of information surrounding the allocation of funds
people appear to believe that the Communities First heightens the potential for divisiveness and
Trust Fund is the sole function of Communities First. encourages perceptions of some groups being
The variety of sources and the apparent lack of disadvantaged while others benefit.
transparent information on Trust Fund beneficiaries

W a l k i n g t h e t a l k 15
6.3 Diversity
In such a diverse area, getting to the point of and being involved in events, have not been part of
establishing a Local Partnership Group suggests a any decision-making processes. One person felt:
huge investment in preparatory work such as area
profiling and the collection of views from all sectors Their answer seems to be quick-fix, throw in a
of the community. couple of 100 and get young people off the streets
on a trip or something. It doesnt solve the problem,
There is a perception that only established groups Communities First doesnt quite grasp what
and members of the community have been involved building up a long-term relationship with young
to date. With regards to Black and Minority Ethnic people is about.
(BME) groups, there is a citywide BME Partnership
Board but it does not currently have a means of
working with the Splott Local Partnership Group, 6.4 The involvement
nor does it address the issue of local community of the Local Authority
representation. This has implications for who is
involved in the process and who will benefit . The Local Authority is charged with the delivery of
One person noted that: Communities First in Splott; it receives funding from
the Welsh Assembly Government to do so and
The diversity of the community has to be recruits managerial and operational staff to oversee
acknowledged but Communities First focussed and administer the programme.
on an older notion of Splott community. Respondents in the community believe that power

Young people appear to have a number of advocates lies not with the community sector but with the Local
in the area who understand the complexity and Authority. As the Grant Recipient Body, the Local
difficulties of engagement but are held back by lack Authority controls access to funds and the perception
of resources and current structures for discussion and among community representatives and members is
engagement. As a result, young people, while they that funds have, so far, only benefited the Local
have taken part in Communities First by going on trips Authority and not the community.

The Council and Communities First


The community would probably say the Council Its not very clear; it seems to be a Council
and Communities First are not a good fit. set up.
Communities First in Cardiff is taking so long Council still holds the power... ultimately,
to get set up and so Council driven its they have the money... you have to go
completely lost what its about through Council systems to get money...
The bureaucracy, systems and culture (having not a risk- taking Council.
to pass through many internal consultations, There are so many tiers that money is not getting
risk assessments etc) of the Council is a blocker to the communities, all the money is spent on
and coordinators need to have autonomy and wages.
be prepared to take chances.
The Council is too slow; the community
Though Communities First is about needs to see things getting done.
communities, the community doesnt have
the power. The balance is wrong, theres more money
spent on the coordinators and accommodation
than is spent on the community.

16 W a l k i n g t h e t a l k
Similarly, those people who are aware of the Local This leaves the perception that the Local Partnership
Partnership Group but not involved perceive that it is Group and, in particular, the community
dominated by the Local Authority: representatives, dont exercise any real influence over
the content and direction of the programme.
I am guessing that coordinators hold the
balance of power. The Council claim that The initial enthusiasm that greeted Communities First,
coordinators are not Council employees but with its aim of delivering leadership capacity from
that they just pay their wages. within the community has dissolved; those who have
been involved seem to have become alienated from
As the coordinators work to line managers within the the process.
Local Authority, this reinforces the perception that it is
the Local Authority rather than the Local Partnership Communities First in Cardiff is taking
Group that has determined the structure and targets so long to get set up and is so Council-driven,
and monitoring performance. its completely lost what its about.

Caught in the crossfire: Communities First Coordinators


The first point of contact for community activists According to respondents, the coordinators
and groups is usually with Communities First chop and change quite a bit, leaving the
coordinators. The majority felt that coordinators partnership and community groups without
were caught in the crossfire between the continuous support. The turnover of
community-led approach advocated by coordinators frustrates the pace of projects
Communities First and the hierarchical culture but the fundamental tension is between the
and bureaucratic nature of the Local Authority. bureaucracy of the Council which slows
People are often suspicious of the coordinators progress and the need of the community to
because they are the link between the Local see action taken and projects developed:
Partnership Board and the Local Authority.
.have started a social inclusion project to
Coordinators are a sounding board deal with car crime and have applied for
for the community, they will listen and feed back money but the project is going nowhere fast.
(to the Council), they have to deal with people
internally (who have control over bids); In the final feedback session, members said
coordinators feel their hands are tied that partnership representatives should have
some involvement in the selection of the
Coordinators are in a compromised situation Coordinator and their work plans and projects:
they work hard within Council systems but get
pulled in different directions. they are supposed to work mainly for us.

W a l k i n g t h e t a l k 17
6.5 The Local Partnership Group
Amongst interviewees who knew of the Local One community representative described feeling
Partnership Group, several were positive about the let down after partnership meetings, another feels
way in which the community representatives were negative, disillusioned and concerned with the
initially elected: the focus was on community meetings viewed as meaningless because no action
representatives to start with. follows discussion. There doesnt appear to have
People recalled a large meeting in the STAR leisure been an attempt to start a participatory process that
centre in Splott after every house in the area had acknowledges the realities of peoples lives.

So many walls
The community representatives to the partnership There were different memories of what happened
group had to be sponsored by two upstanding at the election process, as it appears no notes
members of the community. Some people found were taken, but apparently two young people said
this difficult who could they ask? they had put themselves forward but had not
been elected. If this was the case, here again was
As one woman noted: in the end I asked a
an example of where young people might have
couple of neighbours and the local shop
become involved but their efforts to join in were
keeper.
not successful. Other people didnt remember
It was felt that this was unnecessarily bureaucratic them being there.
and put some people off.
One person said: Its not very clear, it just seems
to be a council set-up. There are so many walls,
I am quite pessimistic.

been leafleted during which eight or nine nominations In effect, as somebody living and working locally said:
were whittled down to six representatives. the usual suspects like the police, councillors,
However, others interviewed knew nothing of this health, (some) community representatives are
meeting and though living and working locally included
became aware of the existence of the local while the vast majority of the Splott community is
partnership group after its existence. not. The Local Partnership Group doesnt have a
means
There are few quibbles about the timing, and location, of communicating with the wider community, either
of meetings. However, the main issue raised was that through consultation with community residents or
community representatives feel on the back foot feeding back discussion held at this level.
when it comes to formality of meetings and are We (community reps) give our views but is that
unfamiliar with the means and channels through what the public wants?
which to gather information. Community members
on the Local Partnership Group feel themselves at a People also commented on the fact that there
disadvantage compared to their professional were no business representatives on the Local
counterparts when it comes to information and ability Partnership Group:
to participate fully in proceedings.
Other representatives, like those from the statutory Its a travesty that there are no business
sector, are effectively paid to be on the Local representatives on the Local Partnership Board
Partnership Group; it is part of their job. yet there are plenty of shops on Splott Road.
What efforts have been made to attract people
What emerged during this review is that peoples in business roles?
experience of the Local Partnership Group is not
very empowering or positive.

18 W a l k i n g t h e t a l k
6.6 Communication and information
Information, and the lack of it, emerged as a key Communities First caravans', though opinion on
theme in Splott. One person noted: their usefulness is divided and it is unclear how widely
Theres not much information or communication advertised the service is - only three people
because theres not much going on mentioned them. Two people made attempts to
get further information from the coordinator, such as
This is not an uncommon view. There is a trying to find out when the current board is up for
Communities First notice board in one venue visited, re-election, the times, dates and locations of meetings
but there is nothing to distinguish it from the and the composition of the Local Partnership Group.
neighbouring board. Most people, when asked about One person had been entirely unsuccessful and the
information and communication, did not mention the second used personal contacts to uncover some of
Communities First newsletter; only one person the information but remained frustrated that it wasnt
referred to the Communities First notice board. possible to find out when the Local Partnership Group
As one person put it, if they know you, theyll send was due for re-election.
you one [newsletter]. In cases where people did
receive newsletters, it was because they initiated There is also an information vacuum within the Local
contact with the coordinator, or were known to them. Partnership Group: members are not clear about the
Publicly available information appears to be scarce. roles and responsibilities of Communities First staff;
they are unsure of their roles as Local Partnership
The main method of consulting with members of the Group members and feel they are not given full
community seems to be through the use of information.

Whats going on?


you have to be motivated to become a ... there were caravans outside the STAR
community rep and to find out whats going on. centre on a weekday on the coldest day of the
year.
You cant involve the community if they dont
know whats going on. Youd think theyd send you an annual report
or information about partnership organisations
I use all the local services like the doctors,
if youd had funding but we havent had
swimming pool etc and never seen any
anything.
information on Communities First.
Im not aware of any consultation except the Leafleting is not enough; you have to hold
caravan which I heard about third hand. events to get people in.

W a l k i n g t h e t a l k 19
6.7 Meetings 6.8 Childcare
Among those whove had contact with Communities There are issues around childcare (particularly
First through visits and talks, a recurring complaint is mentioned by mothers), which make it difficult to
that a lot of unnecessary time is spent in meetings. participate in community activities.
This time is considered unfruitful, not just due to the Women made direct references to the lack of
lack of action following meetings, but also because of childcare, which prevents them taking up paid
the perception that there is very little substance or employment, training or volunteering.

Its all talk


What does Communities First do? Young people need to be engaged in some
They seem to have long meetings but dont sort of activity rather than just attending
do anything. meetings.

though they have tried to change times and its all talk, theyre repeating what they said
venues to get more involvement but people and could have put it all down on one side of
wont go to venues, we know from experience A4 instead of wasting our time.
you have to go out to young people on the
Our worker attends meetings in our time and is
street, find ways to get people involved.
paid by us but is it worth going to meetings?

depth to what is being discussed. The emphasis on


formal meetings and consultations is viewed by many
of those we spoke to as a barrier to involvement in
Communities First, particularly for young people.

Childcare: one womans story


I am a community representative on my Local beginning to be an imposition and I need to
Partnership Board. Our meetings alternate save this kind of help for real emergencies not
between afternoons in one month and evenings the work I do voluntarily for my community!
the next. I work in an area that is flexible enough The Communities First coordinator said that they
for me to attend the afternoon meetings (even could pay for childcare costs, which I thought
though sometimes they run on and I have to was great as this would make my involvement
leave early to ensure that I can pick up the much easier. The local school runs courses, for
children from school on time). However, the the older children in babysitting and childrens
evening meetings are a real problem, as is first aid. We (myself and two other community
attending day training courses or events that representatives who have children) thought this
mean I am unable to drop the children was excellent. It gave us a pool of younger
off / pick up from school. This means that I often people with basic training to care for our
miss the evening meetings and so continuity is children, paid for by the Council. This worked
a real problem. I often feel that I am never on well for a while but then the Council changed
top of what is going on. the rules and said that we could only claim for
My partner works away during the week and registered childcare or childminders.
so I cant use him; my mother will look after the Trying to find a place or a person that can offer
children when she can but this is not ideal and flexible care for three children of ages 4, 7 and
often her health isnt up to it. Friends dont mind 11 is not possible. I want to continue to be
in emergencies / special occasions but it was involved but it is just so difficult.

20 W a l k i n g t h e t a l k
6.9 Conclusions what does Communities First mean in Splott?
The Communities First programme is based on the The fact that the Local Authority is the Grant
Index of Multiple Deprivation; the presumption is that Recipient Body is seen as a real barrier to the
the programme should be focussed on challenging effectiveness of Communities First. It is likely that
and improving the situation for those most vulnerable this relationship has also made it difficult for the
to deprivation and exclusion. As it stands, the Communities First coordinators. There has certainly
situation that has evolved in Splott seems wide of been a high turnover, which makes it difficult to
that mark. achieve continuity.

Many people have not even heard of Communities While people welcome the idea of consultation and
First, nor does it seem to have a visible presence. participation, they do not feel that Communities First
Far less money has been spent here than in the other has carried it out in practice. It seems that in Splott
two areas in the review, with the result that in fact little there is still a long way to go to make Communities
has actually been done, and little information has First truly part of the community.
been produced or disseminated. However, those
who are aware of the programme were largely
supportive of what it is trying to do. There is a
perception that only established groups and
members of the community have been involved to
date, and that the Local Partnership Group has not
taken into account the ethnic diversity of the area.
B a rriers to participation for many people in the
community include lack of knowledge, formality;
not knowing where to go, childcare problems and a
high turnover of coordinators.

W a l k i n g t h e t a l k 21
Summaries of issues in Splott

Wouldnt know where to


Childcare Being able go to ask the right
problems to feel part of it questions; nowhere to
get information

Lack of Knowledge
Training

No continuity Issues
so no rapport with in Splott
Coordinators
four in five years. Time

Everything so formal Coordinator more


Nowhere to walk would like informal interested in meeting
in and ask about CF meetings/discussions Local Authority objectives
not community

Community comments
We need more knowledge of Communities Communities First needs to be developed
First and how it works. further, it is not enough to know about it, a lot
of people are involved in groups but dont
Communities First needs to be removed from
know that funding is available.
the Council totally.
Theres too much to change in ten years.
It would be good not to look at Communities
First as something for a deprived area but as a
happier thing; people recognising that they can
participate to help themselves.

22 W a l k i n g t h e t a l k
7. Duffryn, Newport, South Wales
Duffryn is a great place to live because of the park and everything.
Duffryn is situated about one mile from Newport town There are now second- and third-generation families
centre. It is located in the Tredegar Park Ward, which living on the estate; and the area appears
is listed 23rd on the Welsh Index of Multiple well connected and networked.
Deprivation5. Thirty-seven per cent of the population
is under 196. The amount allocated to Duffryn by People taking part in this review indicated that the
Communities First to date is 938,5827. area is predominantly white and many people
estimated that about half of the population is under
The estate was built in the 1970s. It is home to 40. There is agreement that despite increasing
approximately 10,000 people and was initially hailed affluence and a decline in children receiving free
as a model of social housing development. Rents in school meals, that there remain pockets of
Duffryn are high relative to other Local Authority areas deprivation and there are a significant number of
due to heating charges that are incorporated into the households now experiencing second - and even
rent. The estate has an oil-fired central heating system third - generation unemployment.
and its costs fluctuate in line with oil prices.
The combination of high rents and heating charges As an estate, Duffryn is served by three schools
resulted, from the late 1970s onwards, in the estate (infant, junior and high), a post office, a medical
becoming home to an increasing number of people centre and an ASDA store. There is also a community
on social welfare who could claim housing benefit. centre, a police station, a fire station, the offices of a
Those people who could afford to buy property either community organisation known as the Link8 ,
bought their houses or moved away as the gap a couple of pubs and the green space of Tredegar
between rent and mortgage payments was narrow Park house and gardens. A number of private
(prior to the boom in property prices). The Local housing developments now ring the estate and there
Authority owns the majority of housing in the area is a large business park in the area.
and most households are in receipt of some sort of
benefits.

W a l k i n g t h e t a l k 23
Main findings in Duffryn

Community comments
Communities First has made a diff e rence, This is what you say you want, will you help to
theres a lot more going on down here. Its given get it? Weve been promised so much, so many
people the opportunity to do things. failures and let-downs and this is going to be
another one.
Getting people to realise themselves that what
they say is important.

7.1 Visibility 7.2 Confusion with The Link,


the local community
Communities First is visible in Duffryn through the
sheer number of activities it has funded, especially in
organisation
the local schools and activities for young people, but Duffryn has a well-known community organisation,
is still unknown to the majority of people. Out of 75 the Link, as well as a long-established residents
people polled one afternoon, only five had heard of association and other groups. The Link is the Grant
Communities First. Recipient Body for the partnership and is governed

Invisibility
If you went round and did a survey on the Not a lot of people know about Communities
estate, 90 per cent wouldnt know First. They should have open meetings to get
[about Communities First]. people in.

The vast majority may not know it is a


Communities First area but that doesnt mean
they havent been told.

Even among those who are aware Duffryn is a by a separate constitution. In the minds of many
Communities First area, there is little knowledge about people, there is little or no distinction between the
who the representatives on the Local Partnership Link and the Local Partnership Group, perhaps
Group are and how the partnership operates. This because the Link and the Local Partnership Group
impacts on who has influence and power over the share the same chair (community representative) and
Communities First process and programme. the community representatives are members of the

Too many cooks?


I know it is the partnership board but it seemed The community doesnt represent themselves
one and the same thing as the Link and the as well as they could because the issues arent
same discussions as such. always clear, there is confusion between
neighbourhood committees (Local Authority run)
I think there needs to be more clarification and Link meetings.
between the partnership board and community
led activities.

24 W a l k i n g t h e t a l k
7.3 Capacity
Link. Though there is provision within the terms of the In the feedback meeting for this review held on
Local Partnership Group for prospective community December 6th 2005, there was consensus amongst
members to join the Local Partnership Group through those attending that participation requires equal
submission of a letter, it is unclear how this emphasis on intangible effects such as enhanced
mechanism applies to non-Link members who might confidence and increased skills, in addition to tangible
wish to join the Local Partnership Group. outputs such as programmes and projects. Funding

Community representatives
The representatives are not true re p resentatives There isnt an opportunity for an individual to go
of the community, they volunteered themselves, on the partnership board.
theres been no turnover. Theyre also all trustees
of the Link, all of a certain age, all retired. I think they should have open meetings to let
people know whats going on. It should be open
How can people participate when they have to everybody.
so many issues? Until you start dealing with
real issues, why would they want to get Community reps on the Local Partnership
involved? Group are not true reps of the community,
they volunteered themselves, theres been no
Community reps are only from groups that turnover, no new blood.
were already set up in the community.

It was also recognised, however, that participation in through Communities First needs to take into account
Duffryn is not an easy task, due to a combination of the significant lengths of time required just to get
factors such as long-term and inter-generational projects up and running. Boring things like childcare
unemployment, material poverty, lack of social and also need resourcing.
economic opportunities, deterioration of services and
drug abuse and the apathy that results from all of While successful funding bids have been made for
these. administration, capital and programme costs, there
do not appear to be adequate resources to develop
As one person put it: the capacity of people in the community to become
Theres a lot of apathy. Trying to get people engaged on the Communities First partnership and/or
in the Communities First process.
involved is very difficult; they just dont want
to know. People will get involved in things when Neither does there appear to be adequate resources
t h e y re started but they wont do it on their own. to address the probable training needs of the
statutory and business sectors in their engagement
with the community sector.

Training
I think everybody needs training to get out of The people who take up the role of volunteer
their boxes to see what others do in the community and in the Communities First
They should be made to shadow people. should have training sessions.

The people of the community are frightened to Theres not really a strategy for community
get involved because theyre frightened to get participation.
embarrassed to do things, to be given things to
do they wont be able to. You need training for
the general knowledge of the community.

W a l k i n g t h e t a l k 25
7.4 The Local Partnership Group
In Duffryn, as one person put it, those on the Local Among those who know about the Local Partnership
Partnership Group are like the blind leading the Group, there are some who believe power is evenly
blind, that is, the Local Partnership Group works to distributed among the various members and sectors.
the best of its ability with the resources available to it. However, there are also those who believe power lies
The Local Partnership Group was, according to one predominantly with key individuals, followed by the
person, hastily put into being in accordance with statutory sector, and then the community
the Communities First guidance issued by Welsh representatives.
Assembly Government, with the result that the
community is represented by a handful of people The processes of governance within the Local
who already had the skills and ability to slot into this Partnership Group were also highlighted. The Local
structure. In addition, the balance of the Local Partnership Group has its own guidance for resolving
Partnership Group, according to the three-thirds disputes and issues amongst its representatives.
principle laid down by Welsh Assembly Government However, respondents raised the question of the
guidance, is dependent on the goodwill and capacity of the Local Partnership Group to do this.
commitment of key individuals within the statutory, For some people, this points to a fundamental flaw in
voluntary and business sectors - although the the Communities First programme, as there is a
business sector, at the time of the review, was not perception that Communities First policy hasnt taken
represented. account of inter-community tensions and politics and
does not have sufficient mechanisms to make the
Several people pointed out at least one fundamental Local Partnership Group accountable to the
inequality within the Communities First set-up: the community.
statutory and business sectors are paid to attend;
it is part of their job, while community representatives
are expected to give up their free time without
remuneration.

The Local Partnership Group


The Welsh Assembly Government need to get If the chair is absent the meetings are cancelled
a grip of it [money] more, to be involved like in even though we have a vice chair. No-one could
ACAS disputes [where there tensions/ take over because no-one knows the agenda.
disagreements between partnership members].
People are not returning to meetings and I know
Most of the community wouldnt know what a from talking to them that they havent been asked
partnership board was. why.

There are a lot of issues eg a policeman sitting


round the table with someone he knows is
involved in petty crime. You cant be
judgemental, people have to get on but people
know things about eachother.

26 W a l k i n g t h e t a l k
7.5 Communication, transparency and accountability
There doesnt appear to be a shortage of information concern among those interviewed that there is little
on what is happening on the estate: the Link transparency about the Communities First process as
produces a regular, brightly-coloured Newsletter and a whole. Community representatives and others feel
the minutes of the Local Partnership Group appear uninformed about funding sources and plans. What
to be distributed locally though many people believe is perceived as a lack of communication, particularly
the information is not read but simply thrown away. around funding issues, leads to question of
Two people said that they didnt understand the accountability. There is confidence that the Local
information as it was so full of initials and acronyms. Partnership Group can account for itself to the Welsh
This raised questions about the worth of the Assembly Government, but some of the people who
information and the means through which it is took part in this review believe that does not go far
communicated, as most people still appear to be enough and the Welsh Assembly Government needs
unaware of Communities First. to ensure that the Local Partnership Group is similarly
Despite the volume of information, there remains a accountable to the wider community for its actions.

Too much jargon


There was a brief outline in the Newsletter, What funding theyve applied for I dont know.
maybe a more detailed explanation in more Sometimes they say we applied for money and
laymans terms would be good, anything that we got it but I dont know what its for or what
lets people know what these groups are. its spent on.

There isnt enough information and the Communities First has brought about a power
information that comes out should be simplified, problem, a lot of people involved are on a power
not so much jargon. trip, which is where the conflict in lots of places
comes from.
went to an AGM at the Link but there was a
lot of talk I didnt understand, they use the initials
of groups.

Ive never received any info about the Local


Partnership Group. I dont know if it is their job
to find out who is working in the area and invite
them to the partnership.

W a l k i n g t h e t a l k 27
7.6 Funding issues
Despite the number of positive initiatives funded by of six themes) and a reflection of the youthful profile
Communities First, sustainability remains an ongoing of the estate.
issue, due to the lack of clarity from the Welsh
There is a perception among some people that the
Assembly Government about the allocation of
schools have benefited due to their presence on the
Communities Fund money. The insecure funding
Local Partnership Group, resulting in funding being
arrangements make it difficult to devise and develop a
directed away from other sectors of the community,
strategy for participation, which could ensure not only
for example, those in the 25 50 years bracket.
the sustainability of programmes but also of the Local
However, while the schools are answerable to their
Partnership Group.
governing bodies and adhere to statutory
The scrabble for funding is heightened by the lack requirements, they are also part of the community
of transparency within Communities First, as and have a social role to play.
communities are effectively left to compete for scarce In effect, the schools (particularly the infant and junior)
resources. This is the view of one local person:
have a foot in both camps. By means of initiatives in
Each Local Partnership Group should be given the schools, and the funding of activities for young
a determined budget. At the beginning it was a people generally, previously disengaged parents
c u l t u re of whack it in [applications] for funding. appear to be slowly and tentatively becoming involved
They need a budget plan whether its by population in school and community activities.
head or some sort of criteria that would have made While nobody denies the valuable social function
it a lot easier. (the Communities First funded initiatives) of the
schools, there is also recognition of the schools ability
The lack of structures has consequences for the
to capitalise on Communities First funding, which is
regeneration of the Local Partnership Group; there
greater than the capacity of people in the community
are currently no mechanisms to bring younger
to do the same.
people into the partnership through mentoring or any
other means. Given the issues around childcare, Currently, parents are encouraged to volunteer in
disengagement and so forth, this is unlikely to happen programmes within the school with the view that they
without a funded, concerted, long-term strategy. will go on to develop their capacity to participate in

Schools Vital Role


School is seen as an arbiter of what goes its more about what the schools want because
on People feel if they come to the school people cant be bothered to say what they
about issues, school will do something about it; want.
thats partly reinforced by the government
( e.g. anti-bullying campaign). The schools play a vital role in feeding
information to the partnership board and day to
Its up to the Local Partnership Group to try and day concerns for the children and parents,
find out what people in the community want but making learning more comfortable.
its not getting there;

7.7 The schools other ventures. As a number of people interviewed


during this review have discussed , getting parents
The schools in Duffryn have benefited greatly from involved is time- and resource-intensive; many
Communities First funding. This appears to be based parents have had negative experiences of education
on community assessments9; adherence to the and have to deal on a daily basis with living on a low
thematic emphasis laid down by the Welsh Assembly income and other factors which limit their ability and
G o v e rnment (for which education and training is one motivation to get involved.

28 W a l k i n g t h e t a l k
7.8 Childcare
Women in Duffryn raised the need for suitable Those who do know of the programme want to see
childcare in order that they could attend meetings. the Welsh Assembly Government stand by its
Such childcare needs to be properly resourced. commitment to the Communities First policy. Central
Currently, women with children are heavily dependent to this is a desire to realise one of the core principles
on crche facilities. Women raised the point that of Communities First: the empowerment of local
unless funded, accessible childcare places are people to drive progress. For people in Duffryn, this
available, then they cant even consider taking part means equal focus on the process as well as the
in the Communities First process, let alone take output to secure successful and sustainable
positions of responsibility. The grassroots activities
outcomes.
they do take part in do have childcare funds, which
is why the women are there. Theyre absent when
In Duffryn, although the schools have been a central
the facilities to support them are absent, though many
women were keen to emphasise that confidence and focus of Communities First, the full potential of
skills are also crucial factors. community participation has not been realised.
Community representatives are not seen as fully
representative of the community as a whole. While
7.9 Conclusion what has there is evidence of admiration for those who have
continued to sit on committees and oversee the
Communities First achieved development of programmes in the area, there is also
in Duffryn? an appetite for more inclusive and representative
participation in local decision-making processes.
Communities First has a number of projects in But local people need to know what options are
Duffryn, and a visible presence: available to them and how they take part. This is a
Duff ryn had a lot of Communities First money. step that still needs to be taken.
Its seen as a showcase, the same projects are
being showcased, nobodys finding ideas from
the community and building on those.

Of all Communities First areas, Duffryn is the most


involved. Its independent, has good leadership
which has moved things forward; good funding, a
lot of people (organisations, agencies) make it their
p roject but thats down to a pro-active director; its
well staffed.

Despite this, many of those taking part in this review


have still not heard of Communities First, and some
confuse it with the Link, the local community
organisation.

W a l k i n g t h e t a l k 29
What does Communities First mean to you?
Some of the success of the Link and whats I would hope its about putting community
happening in Duffryn is down to logistics, the wants and needs first. Giving the community a
physical location of the school, police station, voice, support in how it should be changed and
Tredegar House, the fire station and ASDA run, to give the community clout.
(availability of good cheap food).
Its getting people to understand in a wider
If you ask people if things have changed, they context. Other members (statutory) coming
wouldnt know. All the things we have through about education, got to break them out of their
Communities First we had before, like the park box and see things from anothers viewpoint.
(which was burned down). After all these years
and all this money, theres still nothing for kids T h e re are certain projects that the ord i n a ry man
in the six weeks summer holidays. If youre on in the street will not know about either because
benefits, you budget for food when kids are on it is invisible or it is strategic. If you have a bridge
free school meals but in the holidays things are over a puddle of water, then you forget the
difficult, Communities First could have puddle is there.
addressed this.

The breakfast club, the after-school club, it has


helped, same with the computers, it has given
people a chance to learn to better themselves.

Summary of issues in Duffryn

The role of
the schools Lots of material Governance on Local
has been important but too much jargon Partnership Group:
community representatives
not ordinary members
of the community
Confusion with the Link,
the local community
organisation
Issues
in
Duffryn Apathy
Many Communities
First activities
but profile still low

Lack of Lack of resources Few young people


transparency and to develop local involved though many
accountability capacity in the area

30 W a l k i n g t h e t a l k
8. Caia Park, Wrexham, North Wales
This is a nice community, lovely people, the salt of the earth.
Caia Park is about one mile from Wrexham town In 2003, Caia Park was again in the news, this time
centre, with a population of approximately 12,500 as a result of the so-called race riots supposedly
in 5,000 households, 68 per cent of pro p e rties are fired up by tensions between locals and asylum-
owned by the Local Authority. It is 32 on the Index seekers dispersed to the area. The media coverage
of Multiple Deprivation (2000), thereby qualifying as of the riots caused much anger and resentment.
a Communities First area.10 Within Caia Park, there Local people maintain this was an inter-personal
are several distinct areas, for example Spring Lodge, dispute blown out of proportion and wrongly
Kingsley Circle, often clustered around their own portrayed as a racist incident. This media incident
community facilities. The Communities First Local prompted the formation of another group: People
Partnership Group covers the entire area. To date, of the Park for the Park.
Caia Park has received 3,022,971 from
Communities First.11 In 2001/2, the Local Authority set up an entirely new
organisation to be the lead body for Communities
Caia Park has a young population: 42 per cent are First in the area. Subsequently, the Joseph Rowntree
under 24 years (under 15s make up 27 per cent); Foundation13 facilitated a number of meetings
the over 40s comprise 37 per cent.12 It is also an between it, Caia Park Partnership and other agencies
increasingly ethnically diverse area and there is in the area to discuss how avoid duplication, build
p a rticularly a noticeable increase in the numbers relationships and implement joint working
of migrant workers living in the area, the majority arrangements. All agencies working locally meet
of whom appear to be Polish and Portuguese. regularly through the Caia Park Inter-Agency forum.

The area has suffered a good deal of negative media


attention: in the late 1980s press articles sketched a
bleak and damning picture of the area. This spurred
locals to come together and carry out a survey. The
resulting 1990 report Caia Park: The Making of a
Community highlighted amongst other things, the
lack of provision for young people. The Early Years
F o rum, which serves Caia Park, came into being in
1990 and Caia Park Partnership (CPP), run by the
community, was established in 1994. It now employs
74 staff (70 per cent of whom are from the estate),
runs 36 projects and has 100 volunteers.

W a l k i n g t h e t a l k 31
Main findings from Caia Park

Principle and practice


People like the idea behind Communities First Why Communities First? because Caia Park is
ie community participation. But the practice classed as a deprived area, its a slight on the
needs to change to reflect the principle. people of the estate, because I wasnt brought up
We do believe it has had positive impacts but it deprived.
needs to be more inclusive and its benefits
evenly distributed.

Communities First is about providing a better


service to the community, to make it a better
place to live.

8.1 A history of community activity 8.2 The visible profile of


Communities First
Caia Park has a history of community activity and
local organisations are active in the area. Communities First has a visible profile in Caia Park.
Local residents have always been instrumental in It has an office in the Gwenfro district of the estate;
activities on the estate. Traditionally residents are it uses a variety of media to communicate with the
used to having a voice. Opportunities to volunteer community. Information is posted on notice boards
on the estate area are taken up primarily through around the area; it has a website; it produces a
Caia Park Partnership where, as one person put it, regular newsletter, Regeneration News and puts news
p a rents tend to put in their time. and events in the local paper. A dedicated publicity
This has led to questions ; how is Communities worker relieves at least some groups of the time-
First different from the other, longer-established consuming burden of advertising their services and
organisations? How much does it overlap and how the media arm of Communities First seems to be
much is it complementary? effective in disseminating information. In addition,
Communities First money appears to have relieved
To gauge community needs, Communities First initially financial headaches for some local groups.
hired consultants from outside the community on
which to base its work. It is claimed by some people
that this consultation was not extensive enough,
despite its high cost. There does appear to be regular
consultation on issues and the Communities First
office is open to the public for discussion. Many
people appear to associate the programme with
funding opportunities and said that this was the
primary reason for contact between them and
Communities First. But it is mainly established groups
who know of Communities First. The general
perception is that most people dont know much
about it.

32 W a l k i n g t h e t a l k
8.3 Participation 8.4 Capacity building
There was agreement that there is strong leadership It is felt that Communities First staff are not always
to support the Communities First process in Caia aware of the skills levels on the estate and what
Park. Where there is disagreement is over whether people can offer. There was frustration expressed at
there is genuine community participation. Those with the lack of channels to capitalise on the range of
close connections to Communities First generally existing skills so that people could get involved,
believe that community participation is addressed beyond core committee skills. One person considered
both by the Local Partnership Group and that Communities First was not interested in new
Communities First staff. They emphasise the ways in ideas.
which people are asked their views and opinions on
possible projects. However, those who are less Another respondent held the view that the training
closely associated hold different views. They offered by Communities First is only available to the
emphasise what they perceive to be the exclusive token few. The same person raised questions
nature of Communities First, which draws on the about the quality and appropriateness of the training
strengths of key individuals to form the Local available and felt it had not been made accessible to
Partnership Group, but dont appear to have people who might get involved, primarily due to a
facilitated the participation of the wider community. perceived lack of provision for travel, childcare and
There appear to be different interpretations of what appropriate training.
community participation involves: those with an
insider view of the process dont appear to This leaves an impression that a core group of people
differentiate between the terms participation, has been able to take advantage of training, building
representation and consultation; those outside on their existing skills, while those with alternative skills
perceive their attempts to voice their views as falling are left without an avenue into the process. Those
on deaf ears. who would like to benefit from training are therefore
unable to do so.
There is agreement that word-of mouth and
face-to-face contact are often the means by which
people make their views known, either through staff
members or key community representatives.
The 'alleys' project, which involved erecting steel,
self-locking gates to the ends of alleyways and
passages in Caia Park in order to create safe areas
for children to play in and to reduce anti-social
behaviour and the fear of crime, was frequently cited
as an example of a project which took on board the
views of the community. Meetings were held in
response to concern about the alleys and options
discussed.

For those who feel unable to exert influence over the


process, the perception is that they are unaffected by
the benefits of the Communities First Programme
because they lack representation on the Local
Partnership Group and/or within Communities First.

W a l k i n g t h e t a l k 33
Listen and learn
Communities First needs to think things through We had a meeting with Communities First, they
and listen to people things do not always need showed us A4 paper and had clipboards but
to be bigger and better; people are often didnt ask us what we wanted.
asking for simple but effective changes.
We wanted to have a Halloween party and book
Its simple things they do that annoy people. the hall but Communities First never got back to
We asked Communities First for a kicking wall us about it, then they had the cheek to ask for
for the kids, but they said no. They then went volunteers for discos.
and spent thousands building a wall in a place
Theres no feedback except the newsletter eg
where no-one was going to use it rather than in
when Communities First came here and spoke
the place that was originally suggested.
to kids, they promised feedback to them
They need to listen to us, work with us individually.
Money is not the issue, they need to come along
and listen.

8.5 Communities First staff


Communities First staff on the estate appear to be Some people said that they didnt like to go to the
known to local groups, are seen as professional and office as it was felt to be very formal.
are generally well regarded, though one respondent
commented that professionals are not trained for Communities First has, on occasion, requested
compassion. In general there is a feeling that people volunteers from groups in the area. The requests
want staff and representatives to do more legwork angered two of the groups interviewed. They felt that
to get out and about, door to door if need be, and Communities First often asks but isnt always ready
explain to people what its all about and how to get to give or to listen. They expect the programme to
involved. be flexible and mindful of their concerns.

Walking the talk


They dont walk and talk to people. Their I wouldnt know how to approach the office.
excuse is that they are here to facilitate, not talk. But I am a nurse and feel I have skills to offer
for example, in first aid and would like to
If people have got a face they know, they will know what training possibilities there might be.
go there, but a lot of people wont go to offices I would like to see information on training in the
and approach a figure of authority. Newsletter.
What I see of them personally, they come along No work [had been] done to really engage the
to a meeting, keep quiet, listen for an hour and a people. They dont train people, give them the
half, listen to our ideas, say theres no money tools to be able to attend meetings.
and two to three months later put the idea in
place.

34 W a l k i n g t h e t a l k
8.6 The Local Partnership Group 8.7 Meetings
The Local Partnership Group is regarded as influential All Communities First meetings and training appear
with a strong community voice. It is perceived to to be held during the day. This facilitates statutory
operate professionally and the community involvement but means that a number of people are
representatives are considered capable of calling excluded from the process because Communities
p a rtners on the group, like the statutory sector, to First staff in Caia Park prefer to meet with residents
account. Among respondents for this review, most during office hours. As one local group, many of
are aware of the Local Partnership Group and who whose members have full-time jobs, put it:
the community representatives are.
Communities First seem to think everyone on the
Some exploratory work was done prior to the Park is on the dole so they can come to meetings
formation of the Local Partnership Group. One person during the day.
recalled: Initially invitations were sent out to
e v e rybody and anybody that would be interested Some meetings with local groups were cited where
there wasnt that much competition for places. groups did not receive feedback, and in some cases,
But this seems to have been confined to approaching credit for ideas proposed.
established groups and individuals on the estate.

Cliques and challenges


Theyve all worked together for so many years, Theyve all been part of the same boards forever,
they wont upset each other. They want to keep There is no-one new in there for Communities
their jobs and more money coming into the First, no-one younger.
estate. There is no challenge.
A lot of people whove benefited from Communities
The Chair was born and bred on the estate, First are closest to the hub, with direct links though
knows what the problems are. that doesnt detract from the benefits.

As another person noted: Communities First put out 8.8 Childcare


questionnaires, if you turned up at a few meetings,
they asked people to go on the Local Partnership Childcare was an issue for many women in Caia Park,
Group. whose primary concern was for childrens well-being
and security, with references to lack of suitable
The result is that the same people are involved on amenities and the prevalence of drugs and drug
the Local Partnership Group as are represented on paraphernalia such as needles in the area.
tenants and residents committees and other projects As in the other areas, they expressed a need for
in the area. Several of the people we met felt it was properly resourced childcare so that they can
difficult to get younger people involved. Others noted participate in the Communities First processes.
that Communities First has benefited certain areas of
the estate while other parts have apparently lost out
due to lack of influence.

W a l k i n g t h e t a l k 35
8.9 Conclusions what does Communities First mean in Caia Park?
While many people feel that Communities First has While Communities First staff are well regarded,
made a visible contribution to Caia Park, there is a people complain that they stay in their offices and
question mark over how inclusive the Communities that meetings are generally in the daytime when many
First process has been. Although Caia Park has a people are working. There are also issues around
history of community activity and Communities First childcare for women who would like to take part but
has an office and a profile in the area, community are unable to do so because childcare expenses
p a rticipation appears to have been supplanted by and/or provision doesnt appear to be offered.
finding key individuals to represent the community
and the use of consultation to find out residents To sum up, Communities First in Caia Park has
views. Communities First does not seem to have delivered in terms of its outputs the alleyways
been able to involve local people beyond this, either project was mentioned in particular but is not
by building capacity and confidence or by seeking believed to have delivered in terms of the processes
them out. it uses to get there.

Summary of the issues in Caia Park

History of Childcare Meetings held during


community the day when many
activity people could not attend

Influential Local Partnership Issues Communities First staff


Board with strong individuals well-regarded but dont
but not representative
in get out into the
of community Caia Park community enough

Perception that training Communities First


only available to the has an office
token few and a visible profile

36 W a l k i n g t h e t a l k
What does Communities First mean to you?
The ethos of Communities First is about building People say it is a waste of money but without
sustainable communities. Communities First things wouldnt be done.
Theyve done all the hard work after
The alleyways have been improved.
consultations.
Youre allowed your say, to voice your opinion
They brought things to the forefront of giving
and they (Communities First) take on board
people in Caia Park an opportunity to further
whats said.
their activities.
Overall Communities First do a lot in the
A lot of people can thank Communities First
community of trying to fetch people together
for a lift up the ladder.
and address issues. Strategy-wise, theyre very
good. Obviously its quite a focus for the area.
By getting them together, statutory are reminded
Theres nothing wrong with the programme
of their responsibilities and are monitored by
and its a good thing for the estate.
Communities First.
From meetings attended, there seems to be
Weve seen too many government schemes
lots of suggestions from ord i n a ry people.
happen, better not to give hope then give it
My impression is that they really want to hear
away. Communities First has led local people
and to know what local people want.
into better ways but if its discontinued, what
More things have got done on the estate since happens?
Communities First. Its safer, less burglaries and
vandalism. More lighting, police, wardens.

W a l k i n g t h e t a l k 37
9. Overall recommendations
The following recommendations emerged from the review.
They are offered as a means of helping to develop a strategy for
Communities First that will be owned by the community and will
bring about sustainable change.

9.1 Ensuring participation 9.2 Representation and diversity


For Communities First to be community-led, it needs This means including young people, men and
to involve a substantial majority of local people women from Black and Minority Ethnic groups
representative of the population of the area who can and women with caring responsibilities on the Local
direct its strategy. Participation is wider than just Partnership Group.
people participating in the Local Partnership Group. The guidance from the Welsh Assembly Government
Resources must be used to enable the development must have less emphasis on the Local Partnership
of structures and different ways of working to ensure Group split and look instead to its area profile:
p a rticipation by the wider community. To this end, it Who lives in the area? What businesses exist?
should: What form do the voluntary and statutory sectors
take? Only then can it decide what, if any,
Ensure that the demographics of the area are representational structure it needs for that area.
reflected in involvement and membership of Local
Partnership Groups. This applies especially to
young people, men and women with caring 9.3 Capacity building
responsibilities and Black and Minority Ethnic
Groups. Throughout this research, respondents expressed
The Local Partnership Group needs to come to a concern about the lack of young people on Local
common understanding of participation so that Partnership Groups and the apparent lack of
people know what they are getting into and can mentoring or skills training to bring younger people
have sustained involvement. into decision-making structures. Women identified
Baseline data of the area must be collected, ideally the lack of childcare provision as a barrier to
at the start of the process, to enable measurable participation.
participation. This data needs to be recorded
separately for men and women, older and young Building peoples capacity to take part in the process
people, Black and Minority Ethnic groups. is crucial to the long-term community ownership and
Such data collection could be part of the capacity sustainability of Communities First. There are a
building process; giving people skills in the number of ways of doing this, for example, involving
community to be able to carry out audits and people in data collection, running training courses for
action research. specific skills targeted at specific groups etc.
Communities First should be aware of potential
and existing issues and divisions within the
community and ensure that it serves to build 9.4 Clear and accessible
community rather than divide it. information
Communities First literature should be clear and
jargon-free. It should explain how decisions are
made, who makes them, how these people can be
contacted, what informs the strategy, how it can be
influenced, what money is coming into the area,
how to get involved.

38 W a l k i n g t h e t a l k
It is not just a question of the quantity of information The process of coming to consensus is important in
but also how people can access it. Everyone living in relation to how money is allocated, applied for, and
Communities First area needs to be able to find out spent. Meetings should be less formal and more
easily about the programme. It is important that they accessible; in the evenings as well as in the daytime.
share a common understanding of what All this will help to build a consensus for change and
Communities First is and what it can be. This requires encourage meaningful involvement.
a range of strategies, including the use of newsletters,
notice boards and leaflets, but also talking to people
in meetings on the street and, if necessary, in their 9.8 Sharing power
homes.
Communities First will only work if power is
transferred to the local community. In order for this
9.5 Gender impact assessment to happen, the current power holders must be willing
to hand over power and actively assist with this
Each Communities First area needs a gender impact process for example over decision-making and
assessment. Setting gender specific targets and resources. This might involve asking questions such
outputs would highlight the different issues that men as: Who has power over what? Who is drawing down
and women face. For example, as revealed during Communities First money and holding it in the bank?
this review, younger womens inability to participate Who is sitting around the table at the Local
due to a lack of childcare provision could be Partnership Group? How many organisations are
addressed as a specific point, while the apparent represented? How many individuals from the
absence of men at grassroots community level could community? What is the balance? Who does all the
be investigated and strategies developed to talking? Who writes the minutes? Who gets paid to
encourage mens involvement in community activities. be there? Who calls the meeting? Whos writing the
agenda? Who employs the coordinator?

9.6 Accountability and transparency Sharing power will not happen by default. Members
of the Local Partnership Group will need to be clear
The Welsh Assembly Government has a responsibility with each other how equal status around the table is
for clarity of decision-making to communities. Each to be achieved and draw up a partnership agreement.
area should be informed each year what funds are
available and how they can be accessed.
9.9 Childcare
The Welsh Assembly Government should be aware
that by keeping its guidance flexible, it also leaves it The provision of childcare is key to the involvement
open to different interpretations and therefore there is of women in community initiatives and the capacity
a danger that no-one is accountable. of groups to draw in greater numbers of people from
the community depends on sourcing funds to extend
crche and other care facilities. There needs to be
9.7 Emphasising process minimum bureaucracy so that people can use the
most accessible and appropriate care facilities for
In order to secure successful and sustainable themselves and their families.
outcomes, there should be equal focus on process
as well as outputs. This is a basic building block if the In some cases, Communities First could work better
programme is to succeed. There has to be discussion with existing service providers (voluntary or statutory)
and debate about all aspects of the programme with to fully use whats already there in terms of crche
as many people as possible. and other facilities and to ensure there is no
duplication.

W a l k i n g t h e t a l k 39
9.10 What should a Local 9.12 Communities First Coordinators
Partnership Group look like?
It should be recognised that the coordinator role
The Local Partnership Group should: is a difficult one support should be built in from
the start, and expectations should not exceed
Reflect the diversity of the area and the what is possible. Coordinators are often not
demographics eg young people, black and ethnic perceived as neutral but should strive to be so;
minorities and women. The faces on the Local Salary scales should be the same in all areas
Partnership Group should not always be the same to avoid competition between them;
as those that are seen elsewhere in positions of Coordinators must be able to work flexible hours
responsibility; in order to attend evening meetings;
Build the capacity of these diverse groups within Coordinators must spend time in the community
the community. Build on their existing skills so that not just in the office;
ordinary members of the community can develop Partnership representatives must have
to become involved in strategy and decision- involvement in the selection of the Coordinator
making. This underpins the whole ethos of the and their work plans and projects.
programme;
Support the community representatives on the Footnotes
Local Partnership Group, recognising that people 1
Communities First Guidance 2000, Welsh Assembly Government
are not equal. It should take caring responsibilities
2
into consideration and dedicate resources so www.wales.gov.uk/keypubstatisticsforwales/content/publication/
that people are freed to engage in the process. social/2000/deprivation/index_data.xls

Focus on process as well as outcomes; 3


Effective participation in anti-poverty and regeneration work
Put in place transparent decision-making owned andresearch (p.22); Hoban, M. Beresford, P. Joseph Rowntree
by the wider community; Foundation, August 2005.
www.jrf.org.uk/knowledge/findings/socialpolicy/0395.asp
Ensure accountability to the wider community,
which should see the Local Partnership Group 4
http://www.cardiff.gov.uk/frame.asp?page=censusdata/
as a neutral body; 2001census.html
Produce accessible information, both in general 5
www.wales.gov.uk/keypubstatisticsforwales/content/publication/social/
and in particular for those thinking of becoming 2000/deprivation/index_data.xls
community representatives; 6
http://neighbourhood.statistics.gov.uk/dissemination
Have clear terms of reference with details of
7
quorum for the Local Partnership Group. www.information.wales.gov.uk/content/decisionreports/index-e.asp
8
The Link is a registered charity. It is the grant recipient body for
Communities First in Tredegar Park ward. The Link aims to work in
9.11 Finances partnership with the community and service providers for the benefit of
residents in Duff ryn. The Link acts as an umbrella group of constituted
Funds have generally been allocated for a groups on the estate.
three-year period, which is very short in terms
9
Communities First Consultation Duffryn Local Partnership
of seeing concrete results. It means staff may be
Board Survey Results November 2002
lost if there are delays in next-stage funding.
10
It is suggested that the core funding of staff now www.wales.gov.uk/keypubstatisticsforwales/content/publication/
lasts until the end of the ten-year period of social/2000/deprivation/index_data.xls

Communities First, with capacity building and 11


www.information.wales.gov.uk/content/decisionreports/
action plan funding reviewed at appropriate index-e.asp
stages; 12
Caia Park Communities First Strategy for 2004
The preparatory and capacity-building stages 2014 Your Community Your Say!
of Communities First deserve greater attention 13
Lending a hand: The value of light touch support in empowering
and resources, which must focus on the barriers
communities. Lessons from the JRF neighbourhood programme.
individuals and groups face to participation. July 2005.

40 W a l k i n g t h e t a l k

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