Tenant & Gypsy/Traveller Participation in Scottish Social Housing: a thematic review

About this thematic review

This report presents the findings of our thematic review of tenant participation in Scottish social housing. This includes a specific focus on Gypsy/Traveller experiences.

Our regulatory framework and strategy set out our priority of empowering tenants; promoting a strong tenant voice and keeping a strong focus on Gypsy/Travellers. We aim to safeguard and protect the interests of around 600,000 tenants who live in homes provided by social landlords and around 335 Gypsy/Traveller families who can use the official sites provided by social landlords across Scotland.

In this thematic review we set out the findings from a survey of social landlords and focus groups with tenants and Gypsy/Traveller tenants/residents regarding tenant & Gypsy/Traveller participation. This survey and focus group work was completed on our behalf by the Tenant Participation Advisory Service (TPAS) Scotland. We also set out the findings from work carried out by our Tenant Advisors to review a sample of landlord websites to find information available about tenant participation. We set out further information on this in Appendix One.

Key findings

Tenant Participation

• Landlords use a range of participation methods, tailored to their situation and the preferences of their tenants.
• A third of the landlords who responded to the survey had Registered Tenant Organisations (RTOs).
• Based on tenant feedback, landlords have introduced more flexible and informal approaches to tenant participation, offering wider opportunities to participate for both tenant groups and individual tenants.
• Landlords are making more use of digital technology to aid tenant engagement and participation.
• Landlords are adopting a hybrid approach to tenant participation, through which tenants can continue to engage face to face or use online platforms if they prefer.
• Many landlords use incentives to encourage tenant participation, but tenants in the focus groups explained that this was not their main motivation for engaging with their landlords and that a focus on areas that impacted their tenancies were what mattered most to them.
• Some tenants in the focus groups advised that where a landlord had a staff member (or members) with a particular focus on tenant participation, this noticeably improved their experiences.

Gypsy/Traveller Participation

• Building trust between landlords and tenants, and particularly with Gypsy/Traveller tenants/residents was noted by both landlords and tenants/residents as key to successful participation. Some landlords acknowledged the challenges to participation that Gypsy/Traveller tenants and residents face. However, focus group feedback suggests that these challenges are not always being recognised or fully addressed by landlords.
• Some Gypsy/Travellers reside on sites while others live in settled homes provided by social landlords. The accurate number of Gypsy/Travellers living in social landlords’ settled homes is not fully known, this may be because some members of the Gypsy/Traveller community may choose not to identify as such to their landlord due to fear of discrimination.
• 38% of landlords who were aware of Gypsy/Travellers within their tenant base said they were unaware of any specific barriers to Gypsy/Traveller participation, or did not provide a response to the survey question. In contrast, tenants/residents in the focus groups identified a variety of barriers.
• Only 27% of landlords with a known Gypsy/Traveller community had provided appropriate training to staff to ensure they are aware of and consider cultural sensitivities in their promotion of participation to Gypsy/Travellers.
• Many landlords reported that they did not know how successful their approach to Gypsy/Traveller participation was or was difficult to be measured or tested.

Context

The Housing (Scotland) Act 2001 places a legislative obligation on social landlords to actively develop and support tenant participation. It introduced rights for individual tenants and registered tenant groups to be consulted by their landlord on issues affecting them; and social landlords must take account of their views within a reasonable timescale. Under the Act, landlords must:

• have in place a tenant participation strategy and review and monitor its effectiveness regularly.
• have a registration scheme for tenant organisations to register with them and keep a publicly available register of these registered tenant organisations (RTOs).
• consult with tenants and RTOs on a range of housing and related services.
• provide a range of information to their tenants.

The Housing (Scotland) Act 2010 introduced the Scottish Social Housing Charter, which sets the standards and outcomes that social landlords should aim to achieve. It focuses landlord activity on services that are important to tenants and other customers, and requires social landlords to ensure:  

• tenants and other service users find it easy to communicate with their landlord and get the information they need about their landlord, how and why it makes decisions and the services it provides.
  • This covers all aspects of landlords’ communication with tenants and other customers. This includes using a range of non-digital and digital communications in accessible formats that meet individual needs. It also covers making it easy for tenants and other customers to make complaints and provide feedback on services; and then using that information to improve services and performance, and to let people know what they have done in response.
• tenants and other service users find it easy to participate in and influence their landlord’s decisions at a level they feel comfortable with.
  • This covers how social landlords gather and take account of the views and priorities of their tenants; how they shape their services to reflect these views; and how they help tenants and other customers to become more capable of involvement.

As regulator, we monitor, assess and report on social landlords’ performance against the Charter.

All the standards and outcomes of the Charter apply to Gypsy/Travellers. In addition, the Scottish Government is committed to supporting Gypsy/Traveller communities. The Scottish Government and COSLA have a joint action plan to improve the lives of Gypsy/Traveller communities.

Our 2023-24 Reports

Our National Report on the Scottish Social Housing Charter for 2023 to 2024 showed that tenant satisfaction with opportunities to participate (88%) and with being kept informed (91%) have both increased between 2022/23 and 2023/24 from 86% and 90% respectively. Satisfaction among RSL tenants continues to be higher than among LA tenants for both indicators.

It also showed that satisfaction amongst Gypsy/Travellers decreased to 66% in 2023/24 from 76% in 2022/23. This is the lowest level of satisfaction amongst Gypsy/Travellers since the introduction of the Charter and is considerably lower than the satisfaction levels for other services provided by social landlords. Landlords who manage sites told us that the condition of their site is the main driver for satisfaction levels, and that higher dissatisfaction was mainly because work to upgrade sites was either ongoing, delayed or was required. Conversely, landlords who had recently upgraded sites reported high levels of satisfaction.

Our National Panel of Tenants and Service Users 2023 to 2024 report showed that less than half of National Panel Members (45%) felt that their landlord seeks out tenant and service user views, and a quarter (25%) felt that their landlord takes account of these views. Less than a fifth (18%) felt able to influence their landlord’s decisions. Most (61%) want to be more involved in their landlord’s decisions, but a lack of confidence that their landlord would take views into account puts some people off.

Findings

Tenant Participation Strategy

The Housing (Scotland) Act 2001 requires each social landlord to have a tenant participation strategy in place.

The results of the landlord survey showed that:

• Most landlords publish their strategy on their website.
• Many landlords have physical copies available in their offices.
• Many landlords use social media and tenant newsletters to make tenants aware of their strategy.
• Many landlords will provide electronic or physical copies of their strategy on request; and some noted that this could also be provided in alternative formats when requested.
• Some landlords will make the strategy available via online Tenant Portals or Tenant Handbooks; or will make strategies available to local tenant organisations.

Tenant Advisors told us:

• most landlords they reviewed had a tenant participation strategy on their website. However, it varied on how easy these were to find. Tenants found these most easy to find on RSL websites.
• Most strategies they reviewed made it clear how landlords intend to keep tenants up to date on issues affecting them. Local Authorities were found to be most clear.
• Most landlords they reviewed explained in their strategies how tenants could participate and influence their landlord’s decision, for example, consultations or working with RTOs).
• Most landlords they reviewed provided information in a user-friendly format. But there was a mixed assessment of whether strategies set out the landlord's approach to ensuring their tenant participation is accessible to all, for example, providing information in different formats and making it clear how to ask for these different formats; and encouraging participation from “hard to reach" groups.

Registered Tenant Organisations (RTOs)

An RTO is a group that has applied to become registered with a landlord and meets certain conditions which have been set down in the Housing (Scotland) Act 2001.

The survey found that 39 of the 111 landlords who responded had RTOs registered with them; 15 local authorities and 24 RSLs. These landlords each typically had around three RTOs registered with them (this was the median value for those 39 landlords).

What does tenant participation mean? 

TPAS Scotland ran four focus groups with 46 tenants. When asked to describe what tenant participation meant to them there was a clear message across all four tenant focus groups that participation and engagement were two very different things. There was a strong feeling that these should not be viewed or billed as interchangeable as participation was about allowing tenants to influence and effect change whereas engagement was more one way communication from the landlord. 

Participants were asked to provide words to describe what tenant participation meant to them. From those attending the all-tenant focus groups the words provided were generally positive and included “objective”; “involved”; “transparent”; “democracy & inclusiveness”; “change”; “rent consultation”; “decisions” and “contact & communication”.

Tenant Participation Activities

Landlords confirmed that over the previous year, there have been 1,914 tenant participation initiatives, meaning these 111 landlords typically had around eight initiatives in place (average value – 17, median value – 8). On average, landlords explained that 23% of their tenants are actively engaged in these.

The blend of in-person and digital activities included: 

• newsletters, letters, leaflets, and posters
• association and committee membership 
• email, text and social media communications 
• dedicated tenant portals or websites
• tenant surgeries or drop-in sessions – virtual and face to face
• estate walk abouts
• scrutiny groups 
• opinion panels and focus groups
• satisfaction surveys and consultation exercises
• partnership working with local or thematic organisations 
• liaison with RTOs and Tenant and Resident Forums
• regular staff/tenant discussion groups 
• wider role/community events and projects 
• training opportunities for tenants 
• participatory budgeting 
• home visits.

80% of landlords said they gather information from tenants on their approach to tenant participation.

When asked about the changes they have made as a direct result of tenant participation, the most common response from landlords was that tenant feedback had directly influenced and shaped changes to policies, procedures, and publications. As well as making publications easy to read and jargon free, significant changes in procedure had resulted. For example, a change of investment priorities; a change to damp and mould reporting and feedback; a change to rent consultation exercises and changes to available repair appointment times.

Many landlords also noted that they produce newsletters and other communications which explain how tenant feedback has been used and to thank tenants for their participation. Making a ‘calendar of participation’ available to tenants was also used by 48% of landlords.

Landlords also noted that a move to more informal and digital methods for surveys, consultations and other initiatives were because of tenant feedback and this had resulted in both new and additional opportunities to connect with tenants. Regularly reviewing tenants’ preferred contact method for, and level of, participation was also noted as important to limit participation fatigue and ensure continued participation.

Alongside a strong emphasis on wider role and wrap around services for tenants (for example energy and welfare advice, and hardship funds) the introduction of participatory budgeting was also referenced by several landlords as being a direct consequence of tenant feedback. Improvement of outdoor spaces and the introduction of joint staff/tenant estate walkabouts was also mentioned frequently.

When asked how tenants would know about the tenant participation activities available to them landlords explained they used tenant visits and new tenant sign ups to promote participation opportunities. This sat alongside information about opportunities being communicated via newsletters and electronic notifications, social media, and landlord websites. Landlords also said they took the opportunity to remind tenants of participation opportunities at community and tenant events where staff met tenants.

Tenants attending the focus group were asked for examples of positive participation and areas where they thought landlords could make improvements:  

• “Participatory budgeting came out of COVID-19 with local people agreeing local priorities, this has increased faith in my landlord.” 

• “The scrutiny panel made recommendations to the senior officers on changes to scheduling for repairs. Their recommendations were then implemented, and this has brought about savings to the landlord’s repair costs and increase satisfaction from tenants.” 

Another theme that emerged during all focus groups was the impact that changes in a landlord’s structure can have on tenant participation. It was discussed that where there was a staff member or members with a particular focus on tenant participation as part of their role, this can really improve experiences for tenants. 

Incentives to involvement 

80% of landlords indicated they used incentives to encourage tenant participation. Of these landlords offering incentives, expenses were covered by 51% of landlords, and 40% noted they provided some sort of childcare facility as required. 82% said they offered prize draws; 57% said they provided vouchers; with 6% offering cash payments.

Other incentives mentioned included the use of laptops, tablets and sim cards, as well as lessons to encourage digital participation, food and refreshments at events, and transportation to and from these events. Goodie bags or the provision of energy saving items were also mentioned, as well as providing references for volunteers.

When asked about what encourages tenants to get involved, tenant focus group participants were asked to rank four options: interesting subject; small financial incentive; subject impact on tenancy; and anything else.  

Most participants responded that their biggest incentive was the subject matter and if it directly impacted on their tenancy. Participants also noted that the method of participation (e.g. survey versus a meeting) would affect their interest in being involved, with financial incentives coming last. 

Changes to Approach

Landlords were asked about the changes they had made to their tenant participation approach over the last five years. This included changes as a direct result of COVID-19.  

In general, an increase in the use of digital technology and social media was the most significant change cited by landlords.

Another theme from many landlords was holding themed or focused meetings and events rather than, or in addition to, generalised or annual events. In this way, tenants who have a specific interest or opinion on specific issues engage more fully (and regularly) with landlords.

Some landlords commented that one change had been a move away from engagement primarily with established tenant and residents’ groups towards a wider and more collaborative approach to customer involvement involving a range of different opportunities at group and individual level. These landlords felt this gave tenants opportunities which can often be more flexible and informal in approach.

Some landlords had created new scrutiny panels for interested tenants over the past five years. Of these, some had created both a standing panel, and short-life equivalents allowing tenants with a specific interest in the area being investigated to support the scrutiny group on a one-off basis.

Some landlords noted that they had made changes to team structures and/or staff roles to ensure a focus on tenant participation and community engagement.

Landlords explained these changes were made to modernise their approach to tenant participation and to respond to the changing priorities and demands of the wider tenant community. They noted that not all tenants want to join traditional tenant groups, but many do want to be involved in ways which will have a positive impact on their lives. It is therefore important that landlords ensure their approach meets the needs of all tenants.

When asked how the COVID-19 pandemic had affected their tenant participation work, 83% of landlords said they made changes to tenant participation as a direct result of COVID-19. The change in communication methods to include more use of technology was most commonly cited:

• Online meetings became common place, however, there was acknowledgement that some tenants wished for a return to in person meetings post pandemic, so hybrid meetings have now become the norm.   
• The use of WhatsApp, text messages and e-bulletins had increased which enabled quick and large-scale information sharing. These methods proved popular and, in many cases, have remained in place post pandemic.

During the COVID-19 pandemic, some landlords introduced welfare calls for vulnerable tenants and, in some cases, by arrangement, these have continued post pandemic, particularly with “hard to reach” tenants.

In addition, some landlords became formal “community anchor organisations” during the COVID-19 pandemic. Here, Scottish Government funding enabled landlords to operate as ‘anchors,’ bringing together charities, volunteers, social enterprises, and the public sector to co-ordinate the local response and channel support where it was needed. In many cases, the lessons learned, and partnerships brokered, remain today.

Landlords were asked if there was an increase or decrease in tenant participation following the COVID-19 pandemic. 61% said tenant participation had increased as a result.

Tenants attending the focus group had mixed experiences during the COVID-19 pandemic. Some observed that landlords became an anchor in the community: “local people assisting local people,” with welfare calls being highlighted as a particular benefit. For some the introduction of on-line and hybrid meetings was a positive; allowing people to participate more easily than previously. However, the converse of that was a plea from other tenants to return to in person meetings as they missed the dynamic that those meetings bring. 

“Hard to Reach” Tenants

Of the 111 landlords who replied, 103 were able to detail their current methodology for targeting “hard to reach” groups. Eight noted no specific methodology but of those, two noted that they were actively working towards putting this in place.

For those landlords who noted how they target those they deem as “hard to reach” tenants, they explained: 

• The legal and regulatory requirements relating to equality data collection has proved useful to landlords to help understand the needs of tenants more succinctly and to establish activities and projects to meet these.
• As a result, they built relationships with partner and specialist organisations who actively engage with “hard to reach” tenants who may not traditionally engage with landlords. They noted that engaging with existing organisations avoids duplication and makes best use of resources.
  • Some landlords directly approach groups for comment on specific policies. Examples included consulting Women's Aid & Rape Crisis in relation to Domestic Abuse policies; or engaging directly with care experienced young people on changes to Allocation Policies.
  • Some landlords provide funding to specialist groups to facilitate joint working.

• Their programme of wider role activities is a useful way to identify and engage with “hard to reach” groups in a non-traditional way.

• Personal relationships between staff and tenants aid tenant engagement. This was often via specific tenant participation posts, tenancy sustainment activities, welfare rights, wider role/community anchor or energy advice and support.
• They offer translation and interpretation services for tenants. As well as contracted services for this, some landlords highlighted the advantages of bilingual staff and volunteer interpreters.
• Technology is important to allow hybrid events or a variety of communication channels so that tenants can participate in a way which best suits them.
• Varying timings for events ensure that tenants have an opportunity to participate regardless of their routine or lifestyle.
• Accessible local venues that are easy to get to for in-person events is important.
• Some landlords explained:
  • they offer home visits to tenants.
  • they had a good knowledge of their tenant base and were therefore able to identify “hard to reach” groups. Some attributed this to their regularly scheduled tenant visits, while others attributed this to their small or community-based organisation type.
  • they offer free transport to tenant events for those that require it. Some may also offer creche facilities or child focussed activities at events to support attendance.
  • they ensure to cater for dietary requirements when providing food or being involved in food-based projects. Some landlords noted that they provide food at most of their events because this helps to engage people, particularly during the cost-of-living crisis.
  • involvement in, or the establishment of, befriending projects had been a useful tool to reduce loneliness and isolation by supporting older age tenants and communities in particular. Others partnered with specialist organisations to create support networks for tenants living with mental health issues. Some landlords have been successful in bidding for grant funding to support such projects.

Capacity Building

Landlords were asked how they built capacity across their tenant base to ensure tenant participation was strengthened as a result.

• Many landlords noted that specific staff members or teams had responsibility for working and engaging with tenants. This might be a specific tenant participation role but could also include community teams or tenant sustainment staff for example. What was noted as important was offering a person-centred and supportive approach to tenants who want to engage with their landlord.
• Many landlords highlighted the importance of supporting and holding community initiatives and wider role activities to engage with tenants in the first instance. Many referenced involvement in local gala and community events; as well as engaging with local partner organisations.
• Many landlords explained that they offered annual training and development opportunities for management committee members, which includes tenant members. Attendance at tenant and national conferences and networking events were also offered to committee members.
• Some landlords also offered training and networking opportunities to other involved tenants such as their scrutiny or resident panel members.
• Some landlords used tenant representative specialists, to work with interested tenants.
• Some landlords offered small grants to RTOs and other tenant organisations to support organised tenant activities.

Many landlords identified that it was important to build relationships with tenants over time; and that the capacity of tenants to engage with their landlords can be built gradually. By developing a range of options which allow people to take part in activities at all levels, from low-level engagement to levels that require more commitment, this offers graduated opportunities for tenants to participate. Tenants can therefore become involved at a level they feel comfortable with and provides the opportunity to increase their participation as their interest, experience, confidence, and circumstances allow.

Landlords also noted that it was important to demonstrate how tenant engagement at all levels was used to influence change. By seeking and providing feedback, landlords create trust; and an appetite for future participation from tenants.

Gypsy/Travellers

Members of the Gypsy/Traveller community may choose not to identify as such to their landlords. Despite this, of the 111 landlords, 26 said they were aware of Gypsy/Travellers within their tenant/resident base. This consisted of 15 local authorities and 11 RSLs.

Most Gypsy/Travellers live on sites, with Gypsy/Travellers also living in permanent properties, and in temporary properties due to site refurbishment. There are currently 28 official sites provided by social landlords across Scotland. Two of these sites are currently closed whilst landlords carry out improvement works or consider future options for the site.

Equalities Data

88% of the 111 landlords who responded to the survey explained that when collecting equality data, they offered an option for tenants/residents to select Gypsy/Traveller as an ethnicity.  However, it is not known when each of these landlords introduced Gypsy/Traveller as an ethnicity and when each last refreshed their equalities data.

What does tenant participation mean?

When asked to give words that described tenant participation, the words given by Gypsy/Traveller focus group participants were significantly more negative compared with tenants in the other focus groups, with words such as “let down”; “confusing”; “tick box”; “no confidence or trust”; “false promises”; “cancelled meetings” and “should be trust and honesty” featuring heavily.

Participation Methods

Across the country, landlords’ approach to Gypsy/Travellers participation varies. Methods used by landlords included: 

• face to face engagement and planned meetings 
• texts and emails 
• WhatsApp groups
• consultations
• resident led planning of new sites and site improvements
• activity days and community events
• newsletters
• Registered Tenants Organisation and tenant groups
• scrutiny opportunities. 

Landlords were asked to provide examples of alternative contact and promotion of participation routes for Gypsy/Travellers on sites. Some landlords noted they used site noticeboards to display information. Other examples included specific staff members who worked with the Gypsy/Traveller community on sites; and face to face opportunities including joint site inspections with housing and property services staff; drop in visits on site; and having set days and times for these staff visits. These sat alongside the use of WhatsApp and creating groups aimed at specific residents, for example a women’s group.   

Some landlords said that they had no specific participation methods in place for Gypsy/Travellers; with some stating the methods available were those that were offered to all tenants. Survey responses indicated there is more structure to Gypsy/Travellers participation with residents who live on sites compared to those living in properties. This includes dedicated staff resources for sites.  

Landlords were asked how tenants would know about the Gypsy/Traveller participation activities available to them. 50% of landlords who were aware of Gypsy/Travellers within their tenant/resident base have promoted tenant/resident participation specifically to Gypsy/Travellers. Examples of the methods used included: 

• in person meetings, drop-in information sessions, site visits and walkabouts
• consultations
• newsletters, letters, posters, and other core communications
• satisfaction surveys
• site notice boards. 

35% of landlords who were aware of Gypsy/Travellers within their tenant/resident base gathered feedback from them on their approach to participation. This compares to a figure of 80% of landlords who said they gather information from tenants on their approach to tenant participation. This feedback was gathered using surveys, consultations, and verbal feedback opportunities, including site meetings.  

Cultural sensitivities  

Landlords were asked about how they consider cultural sensitivities in their promotion of participation in the Gypsy/Traveller community.

Responses included staff equality and diversity training; and the use of experienced staff and partnership working with Gypsy/Traveller organisations. They also told us that real engagement happened when staff built trust, listened effectively, and aimed to provide services that do not discriminate. For example, one landlord explained they use each person’s preferred means of communication and use plain English.

However, some landlords did not appear to consider cultural sensitivities when engaging with the Gypsy/Traveller community. Some said that cultural sensitives were ‘not applicable’ or confirmed this is not currently considered.

Barriers to Participation 

Landlords were asked to identify any barriers to involving Gypsy/Travellers in participation.

Some landlords who were aware of barriers said that there was a need to develop trust and better relationships between staff and tenants/residents. Some landlords believed that members of the Gypsy/Traveller community can be reluctant to identify themselves as Gypsy/Travellers, and a perceived reluctance to engage with landlords was also reported.

Landlords also explained that perceived literacy issues and the use of technology, for example online meetings or events, could be a barrier to participation. Others said the timing of meetings and consultations is crucial. This was not only about the time of day (for example due to personal circumstances of Gypsy/Travellers, such as work commitments), but also the time of year due to the nomadic nature of the Gypsy/Traveller community.

One landlord reported that their Gypsy/Traveller community had become discouraged because a high level of involvement and consultations had not resulted in site improvements due to a lack of funding.  

38% of landlords who were aware of Gypsy/Travellers within their tenant base said they were unaware of any specific barriers, or did not provide a response to the survey question.

Some landlords explained they address barriers by working with the community to understand their culture and participation preferences; and being present on sites to build trust. They also noted that meetings are held face to face where possible and at a time suitable for tenants/residents.

During the discussion at the focus group, tenants/residents explained that where they stayed affected their relationship with their landlord. Most stated that they felt they were treated differently dependent on where they stayed.

“People think they know what we are from the mess of the sites, the camps, and what’s in the papers and on the telly but that’s only a wee number of us. You get that in housing schemes too”

One participant stated that they did not think it was where they stayed but who they are that made landlords treat them differently and this was echoed in some of the questionnaires.

“They know we’re travellers, they’ve black-marked our name...”

“... they’re no better if you have one of their houses either, unless they don’t know you’re a traveller or a gypsy...”

Tenants/residents stated that specific barriers to participation included:

• Landlords not understanding the literacy issues affecting some members of the Gypsy/Traveller community.
• Landlords continuing to give most information in written form rather than offering alternative, more suitable options (such as verbal communication).
• Some sites are too far out and on busy roads making getting to meetings difficult.
• Poor internet connections make on-line meetings difficult to access.
• The use of jargon.        

Several ideas were suggested by Gypsy/Traveller focus group and questionnaire participants to improve their relationship with landlords:

• More visibility by landlords on sites. This would allow landlords to see site and property conditions and carry out appropriate repairs.
• One resident stated that Gypsy/Traveller sites are not accessible to those with physical disabilities.
• Remove the stigma, discrimination, and racism against Gypsy/Travellers; treat them equally, stop stereotyping, and remember that Gypsy/Travellers are an ethnic group protected by law.

Changes to approach

Landlords were asked to explain the changes they had made because of Gypsy/Traveller participation initiatives.

One landlord said it had developed an action plan following their Gypsy/Traveller consultation and in person engagement with residents at their site. This enabled staff to listen and understand the priorities and issues which were important to the community. Another landlord noted that Gypsy/Traveller participation has led to the community receiving visits from a mental health nurse. Assistance has also been provided to access information on the education of the community’s young individuals. Other examples included the introduction of information sessions on participation, specific to the Gypsy/Traveller community; and the development of new sites or improvements to current sites based on resident feedback. This included changes to pitch sizes or the provision of children’s play areas.

Residents and tenants explained that the impact of COVID-19 on Gypsy/Traveller tenant/resident participation was mixed. However, a positive for one resident was that their site stayed open for the year rather than acting just as a summer site. Another Gypsy/Traveller felt that there were more meetings during COVID-19. For others, it was negative. They said repairs were not carried out, and that where there had been positive engagement, this changed to being non-existent during COVID-19 and some felt that this has not recovered. The remainder felt there was no change but did not consider this as positive as they felt that engagement had always been poor, with some feeling that COVID-19 was still being blamed for delays in works and repairs.

Successful approaches 

Landlords were asked about their successes in Gypsy/Traveller participation. One landlord made reference to recognition at national awards for their approach to Gypsy/Traveller participation in the development and delivery of site improvement plans. Another landlord reported high engagement during consultations to prepare for a bid to obtain funding for site improvements.   

One landlord said they had used the services of a Gypsy/Traveller organisation to complete staff training and to support it on strategic issues. It was also working with the organisation to consider how it could support members of the Gypsy/Traveller community to participate. 

Many landlords reported that the success of their approach was unknown or was difficult to be measured or tested.

During the focus group, two tenants explained that their landlord had established an RTO for their Gypsy/Traveller site. They also noted that a specific Liaison Officer engaged with them, and they also had contact with other members of the larger tenant participation team for that landlord. However, this example was not something that the others in the group related to, and more felt that they did not have such a relationship in place that enables positive participation.

Landlord Training 

Only 27% of landlords who were aware of Gypsy/Travellers within their tenant/resident base had provided their staff with specific Gypsy/Traveller cultural awareness training. Meaning 73% of landlords – who knew their tenant/resident base included members of the Gypsy/Traveller community – did not provide specific training to staff.

External agencies 

Landlords were asked to provide examples of engagement with external agencies to promote Gypsy/Traveller involvement.

Some landlords with a known Gypsy/Traveller tenant/resident base referred to working with specialist Gypsy/Traveller organisations. These organisations attended meetings and events to promote Gypsy/Traveller involvement. One landlord had worked with an expert organisation to create a funded staffing position to work specifically with the landlord’s Gypsy/Traveller community.  

Landlords also referenced working with the NHS, Police Scotland, the Scottish Government, colleges, and local authorities to engage with their Gypsy/Traveller communities. One landlord explained it had established a joint Gypsy/Traveller Liaison Group with another landlord. This liaison group consisted of representatives from various local authority service areas (such as housing, education, and communications), in addition to the NHS and Police Scotland.  

Of the 26 landlords with a known Gypsy/Traveller tenant/resident base, 12 landlords did not appear to use external agencies to aid their work with Gypsy/Traveller communities. Of the 12, most stated ‘not applicable’ or did not provide a response to the question, with the remainder confirming they did not have examples of engaging with external agencies.  

Good Practice Examples

Tenant Participation

• Some landlords are now using customer experience (CX) systems to help with tenant participation. These digital systems and platforms monitor satisfaction in real time, allowing quicker and more efficient ways of collecting and responding to tenants. Landlords can also use this information to inform their methodology for tenant participation; and can also use these systems to communicate with their tenants in a way which is best suited to them.
• Participatory budgeting is a democratic process in which tenants directly decide how to spend part of a landlord's budget. Some landlords have set aside annual funding for their communities and invited tenants to suggest and vote on projects and activities they wish to support. This results in projects and activities which reflect the preferences of tenants.  
• Some landlords had supported community food activities including community food hubs and shops, community gardens and fridges; as well as community food growing and cooking events. Not only do these activities develop tenant skills (and in some cases led to formal training and qualifications for tenants), but also enhance community cohesion and interest, social interaction and helps to combat food poverty.
• It is important that tenants know how their participation has impacted the service they receive. Many landlords produce information for tenants which explains how their feedback has made a difference, e.g. “You Said: We Did.”
• Some landlords indicate that they have introduced mentoring or buddy systems to encourage tenant participation where those new to tenant participation are paired with more experienced tenants.
• Many landlords consider geography, timing and refreshments when organising events. Some also offer child focused activities at events to support attendance. It is also important to consider accessibility.  As well as ensuring that venues are physically accessible, one landlord considers sensory requirements when organising events.   
• One landlord involves tenants in the recruitment and induction process of new colleagues. By meeting customers at the beginning of a colleague’s journey a tenant led focus is embedded straight away.
• One landlord partnered with a mental health charity to create a Mental Wellbeing and Tenancy Support project which has enabled it to build better relationships with some of its customers who had formerly disengaged from services.

Gypsy/Traveller Participation

• The majority of landlords surveyed said their equality data collection methods include the option for tenants to select Gypsy/Traveller as an ethnicity.
• Some landlords engage with specialist external agencies to promote Gypsy/Traveller involvement in participation. One landlord explained that their specialist partner attends its monthly meetings with residents and has assisted in removing barriers and building an improved understanding of Gypsy/Traveller interests.
• One landlord implemented a community hub on its Gypsy/Traveller site and runs weekly events to engage with residents.
• One landlord explained that a group of residents at their Gypsy/Traveller site has been involved in digital inclusion activities, giving access to technology. This also allows staff and residents to engage electronically and to meet both virtually and in person to establish important activities to residents.
• One landlord works together with Gypsy/Traveller site residents to write a regular site newsletter.  
• One landlord has established a Registered Tenant Organisation at its Gypsy/Traveller site, governed by an elected committee.
• One landlord explained that Gypsy/Traveller residents were involved in the design and development of plans for site improvements, and residents were provided with the opportunity to deliver presentations with the local authority on these plans.
• One landlord has given all staff access to an online training module which focuses on culture awareness to enable an improved understanding of engaging with the Gypsy/Traveller community.
• One landlord has rolled out information sessions encouraging Gypsy/Traveller tenants/residents’ engagement with other services including financial advice.

Recommendations

Tenant Participation

• Landlords should build relationships with partner and specialist organisations to support engagement with tenants, particularly with those that landlords deem to be “hard to reach”; or consider how to build capacity. Ultimately, it is the responsibility of landlords to improve engagement by changing how they approach tenants and communities which they deem to be “hard to reach” to ensure they have access to the services and support they need and to ensure that tenant participation opportunities are accessible to all.
• Landlords should encourage tenant participation by making information on tenant participation more visible and easier to access to ensure that tenants are aware of the opportunities available to them.
• Landlords should tailor access to participation activities around the needs and preferences of their tenants. They should seek to evolve services to meet and keep pace with the changing priorities of their tenants, to provide the best opportunities for participation; while avoiding participation fatigue.
• Landlords should clearly explain to tenants how their participation has impacted the service they receive. Being consistent and responsive to tenant feedback ensures tenants know that their participation has made a difference and encourages continued and future participation.  

Gypsy/Traveller Participation

• It is important for landlords to consider and deliver further and improved cultural awareness and equalities training to staff, to support their work with Gypsy/Travellers and to consider cultural sensitivities in their promotion of participation to Gypsy/Travellers.
• Whilst the accurate number of Gypsy/Travellers within landlords’ tenant/resident base is unknown, and members of the Gypsy/Traveller community may choose not to identify as such to landlords, landlords should ensure they are actively promoting participation and seeking feedback from Gypsy/Travellers to ensure suitable participation opportunities are made available.
• Landlords should ensure that participation is promoted and offered to all Gypsy/Travellers, including those living on sites and those residing in properties.
• It is important that landlords understand the barriers to involving Gypsy/Travellers in participation and landlords should identify and implement a range of accessible options and solutions to address these barriers. 
• Whilst a range of methods were reported, there may be scope for landlords to individually consider and implement effective, varied methods for participation and the promotion of this. Methods of Gypsy/Traveller participation should include the use of regular face-to-face engagement and use of plain English. Landlords should consider the levels of training and expertise internally to achieve this, and supplement this with assistance from external agencies where appropriate.
• It is particularly valuable for landlords to measure the impact of their approach to involving Gypsy/Travellers, to determine if approaches used are successful and meaningful, and to introduce alternative, tailored approaches where necessary, which will benefit landlords and tenants/residents alike.

Appendix 1: What we did

We commissioned TPAS Scotland to carry out a survey and focus groups to support this thematic. TPAS Scotland were also supported by staff at MECOPP (Minority Ethnic Carers of People Project) an organisation with expertise in the Gypsy/Traveller community engagement, participation, and rights.

Survey

• TPAS Scotland issued a baseline survey to all social landlords to gather information on the type of tenant participation seen across Scotland and received 111 responses. This represents around 65% of social landlords, and comprised 17 local authorities, and 94 RSLs.
• The survey was issued to landlords in early 2024. This covered the type of tenant participation activities offered; how tenants can access these activities; as well as information as to how things had changed over the past few years.  TPAS Scotland also gathered some specific information on Gypsy/Traveller tenant and resident participation.

Focus Groups

• TPAS Scotland completed focus groups with 46 tenants, including 12 members of the Gypsy/Traveller community, to gather their experiences and viewpoints of tenant participation.
• Tenant Focus Groups took place during March 2024 following the recruitment of volunteers by TPAS Scotland.
• The Gypsy/Traveller focus group, supported by MECOPP, had 12 participants from 5 Local Authority areas - a mix of residents on sites and tenants in properties.
• In addition, the findings from the Gypsy/Traveller focus group were supplemented by responses to 10 questionnaires completed by a mix of residents on sites, tenants in properties and tenants in temporary decanted properties. Questionnaires followed the same format as the focus group.

Tenant Advisor Exercise

• During 2023, we asked our Tenant Advisors to review the information available regarding tenant participation on a mix of landlords’ websites.
• In total, our Tenant Advisors reviewed the websites of 22 landlords. This included 17 RSLs and 5 Local Authorities from across Scotland.
• Find out more about our Tenant Advisors.