Memorandum by the West Norfolk Partnership
BACKGROUND TO
KING'S
LYNN & WEST
NORFOLK
The Borough Council of King's Lynn and West
Norfolk is predominantly a rural district within the county of
Norfolk. The borough is the 8th largest local authority by area
in the country at 1,428.8 square kilometres, containing 102 parishes,
as well as the unparished urban area of King's Lynn. The total
population of the borough is 142,300,[45]
making it the 355th most sparsely populated local authority nationally.
The predominant urban area is the town of King's Lynn (with a
population of 41,679[46]),
although the distance from the larger cities of Peterborough (38
miles), Cambridge (45 miles) and Norwich (50 miles) means that
the town performs the service functions of a much larger centre.
Over the past decade parts of King's Lynn and
the wider borough have received a significant influx of economic
migrants, mainly from the accession A8 countries that joined the
EU in 2004. Between 2004 and 2007 the borough wide area has received
the third highest number of migrant workers in the Eastern region-
just behind Peterborough and Luton.[47]
The arrival of large numbers of migrants, particularly from Poland,
Lithuania and Latvia, as well as Portugal has increasingly become
a contentious issue in certain parts of the borough and has put
a certain strain on the provision of certain public services,
as well as having an increasing effect on existing community relations.
The West Norfolk Partnership (WNP) is the local
strategic partnership (LSP) for the borough.
The report "Our Shared Future" published
by the Commission on Integration and Cohesion identifies five
descriptive types of area where community cohesion issues have
been identified. This was done in a bid to highlight local distinctiveness
in experiences of migration. We believe that West Norfolk very
much falls into the category of "changing less affluent rural
areas"—identified by the report as a particular type
of area experiencing cohesion challenges. Appendix A, taken from
this report clearly shows that data collated from the 2006 BVPI
survey indicates that King's Lynn and West Norfolk is part of
a larger area around the Wash experiencing lower than national
levels of cohesion. We recognise, as the commission's report does,
the local context and factors that influence responses to migration
and contribute to community cohesion. Similarly the invitation
for evidence for this inquiry asks for particular regard to areas
that have experienced rapid increases in new inward migration
and areas that have lack of experience of diversity. We believe
the challenges facing King's Lynn and West Norfolk are very much
influenced by these broad criteria and appreciate the opportunity
to expand on these further through this invitation.
SYNOPSIS
We would like to draw the committee's attention
to the following points, which are considered important to community
cohesion in King's Lynn and West Norfolk. In this memorandum these
factors are divided into thematic paragraphs, for ease of the
committee. However it is worth noting that we recognise and indeed
emphasise that many of these factors act in conjunction with one
another and do not operate in isolation, particularly when examining
their overall impact upon community cohesion.
GAPS IN
STATISTICS
It has been noted generally that there is a
certain lack of knowledge and confidence in statistics relating
to levels of in-migration to the UK over recent years. Although
there is a lack of confidence in statistics nationally, the lack
of robust statistics at a local level has been a considerable
problem facing West Norfolk. Whilst there have been attempts to
ascertain a figure for A8 accession migrants in West Norfolk,
either via National Insurance number registrations or the WRS
(Worker's Registration Scheme) these numbers have tended to under-evaluate
the true level of migrants. In 2006 the Black and Minority Ethnic
(BME) Inclusions Project report by the Norwich and Norfolk Racial
Equality Council (NNREC) estimated that there was a minimum of
7,000 migrants from the A8 countries registered with an employer
in Norfolk. Data provided by King's Lynn Asylum and Refugee Support
(KLARS), supported by various anecdotal sources suggest that figures
are much higher.
This gap in knowledge of who is moving to West
Norfolk is further compounded by the lack of any national data
that is collected along grounds of nationality opposed to ethnicity.
Census data is collected along predominantly ethnicity lines—ie
"White-British", "Asian-British" and "White-Other".
However this information often fails to highlight differences
that can impact substantially upon community cohesion, particularly
in an area such as West Norfolk. The category of "White-other"
encompasses all of the nationalities of those EU-accession migrants
that make up the bulk of those coming to King's Lynn, therefore
masking the national and particularly linguistic differences which
has a significant impact on planning for service provision and
on community relations.
The lack of accurate numbers makes it difficult
to predict and plan for change. The difficulty in being able to
accurately map the diverse and rapidly changing communities of
West Norfolk has implications for strategies for tackling community
cohesion.
RISE OF
THE FAR
RIGHT
The recent rise of the British National Party
in parts of King's Lynn is worthy of note. In the local elections
held on the 3 May 2007 one BNP candidate in North Lynn came within
59 votes of being elected, with both BNP candidates picking up
34% of the vote in this ward between them. It has been noted that
if the BNP had fielded a single candidate opposed to two in this
two-member ward then the BNP probably would have been elected.
Such a dramatic rise in an area not normally considered politically
extremist attracted national media attention:
For the first time the BNP will be fighting for
votes in such areas as King's Lynn, Norfolk, anti-fascists campaigners
suspect the BNP is attempting to exploit fears over the arrival
of eastern-European workers to pick up support.
(Nigel Morris, Home Affairs Correspondent Independent
13 April 2007)
The near electoral success in one ward in King's
Lynn highlights not only the rapidly changing demographics but
also the spatial variances in experiences of migration and the
small scale that these often operate within.
Misconceptions
Intrinsically linked with the potential for
the increase in BNP support in King's Lynn are more widespread
misconceptions about the perceived threats of inward migration
into the area. Anecdotal evidence suggests that common perceptions
amongst members of the resident population are that immigrants
are "taking all our jobs". This perception is contradictory
to statistical evidence that overall unemployment across the borough
is low and immigration has had limited impact upon this. In fact
many migrant workers constitute and important element of the local
economy, taking on jobs in the agricultural and food processing
industries, contributing to the success of these industries locally.
The committee will be aware that such misconceptions
and sentiments are not limited to King's Lynn but have a national
resonance and can lead to a resident population feeling not only
fear and threat towards migrants but a certain degree of victimisation
at the hands of in-migration. In King's Lynn such misconceptions
have been fuelled by the local media, who are equally unused to
reporting the complex issues and impact of these on society locally.
For example headlines related to criminal activity mention the
nationality of the perpetrator in the case of people of non-British
nationality (see appendix B, taken from the Lynn News on
15 January 2008).
The West Norfolk Diverse Community Forum, established
by the West Norfolk Partnership, has recognised the impact on
community cohesion that the local media can induce. Appendix C
to this memorandum is a copy of correspondence sent on behalf
of the West Norfolk Diverse Community Forum to a local newspaper
in response to the concerns highlighted above.
Lack of Knowledge and Skills
The often provocative prose of the media, as
well as the more overtly inflammatory literature distributed by
the BNP is often not being challenged enough. As mentioned previously
King's Lynn is one of the areas that is experiencing large scale
in-migration for the first time in recent history. There is lack
of dedicated resource capacity and knowledge and skills to address
many of the aspects around community cohesion or to challenge
many of the negative impacts upon this mentioned above. As a consequence,
the following statement resonates strongly with our experiences:
Those rural areas with clusters of migrant workers
can face significant public service challenges. Local authorities
and their partners can have capacity challenges (compared to larger
and better resourced urban authorities) as well as issues around
knowledge and skills they need to respond effectively.
(A8 migrant workers in rural areas, Briefing
paper.
Commission for Rural Communities: January 2007)
We are clear about the challenges this element
of local community leadership presents to the council and its
councillors, largely inexperienced in handling issues of this
nature and sensitivity. Much of the expertise available on managing
migration and community cohesion is urban-centric. In West Norfolk
and across similar rural authorities, particularly around the
Wash, we recognise that there needs to be a greater understanding
of the issues involved in service provision and the impacts on
community cohesion that the recent migrations from the A8 accession
countries are having. The WNP has recently been successful in
securing funding and support through the IDeA Migrant Worker Excellent
Practice Programme and has been working closely, at both a strategic
and operational level, with our neighbouring authority Fenland
District Council to jointly promote equality and diversity in
a bid to tackle the cohesion issues arising around in-migration.
The WNP believes that increased research needs to be undertaken
to examine the geographies of migrant workers' lifestyles, as
they often differ greatly from that of established populations.
Better cross-boundary working would be one way of approaching
this, recognising that traditional district; county and regional
boundaries are regularly crossed and have little relevance to
many of the new migrants, particularly around the Wash area.
Language Difficulties
One of the biggest challenges facing local service
providers are issues around translation. The ability to deliver
effective translation has significant resource implications for
the council and partners, but also has the ability to impact on
community cohesion. Norfolk Police Constabulary has spent £192,000
pounds on translation costs in the Western division of the county
in 2006-07, mainly on Polish, Lithuanian and Russian. This figure
represents two thirds of the police's county-wide spend on translation
services. The amount of money spent on translation across local
service providers remains a contentious issue, as demonstrated
by the reports in the local media:
Translation costs you £100,000 a year (Lynn
News front page head line 2006)
The scarcity of resource for translation costs,
crucial for increased integration and understanding between migrants,
service providers and established populations is a concern in
West Norfolk and providing an effective and comprehensive translation
service is seen as important tool in tackling many of the issues
around community cohesion highlighted within this evidence to
the committee.
The West Norfolk Partnership, as well as many
of the component service providers, has taken forward a number
of local initiatives in tackling this issue. A "Welcome Pack"
for West Norfolk has been developed since 2005. Supported by the
West Norfolk Diverse Community forum, "Welcome to West Norfolk
is a booklet, translated in five different languages, containing
key information on five key themes of employment and benefits,
housing, health, education and community services. Information
is included on rules and procedures surrounding ownership and
the use of vehicles and on the electoral register and voting.
A second edition of the welcome pack is in development and funding
has recently been secured from GO-East for an audio version of
the pack.
Service providers have also actively recruited
from the recent migrant groups in a bid to improve their service
provision to new members of the community. Both the local police
and PCT have recruited multi-lingual staff as an approach to this
problem. The West Norfolk Partnership is also in the process of
developing English courses for new migrants in community centres.
Despite the positive activity in addressing language barriers,
led by the WNP, there is considerable concern about continuing
ability to resource such initiatives. For example government funding
for ESOL training has been withdrawn.
Demand on Services
The influx of a predominantly young migrant
population has impacted on the ability to provide key services
and has led to increased pressure on certain specific local services.
The rapid pace of this change has increased this pressure too.
For example the Queen Elizabeth Hospital has reported that maternity
services are particularly under strain from the changing demographics
of the local area, as migrant Latvians especially place a greater
demand on resources.
A recent report has also highlighted a problem
which is difficult to tackle and is becoming increasingly prevalent:
Those with ongoing medical conditions or sudden
health needs have occasionally turned to the hospital based services
such as Accident and Emergency at Queen Elizabeth Hospital, King's
Lynn. Sometimes gangmasters or even the police have been involved
in getting such patients seen. Because anyone can access emergency
care at A&E without having to produce documentation or proof
of address, and because the GUM clinic stresses confidentiality,
they are considered safer than other NHS outlets be undocumented
migrant workers. Unsurprisingly this involves requests for help
with problems beyond the remit of hospital services.[48]
Such increased demand on specific services is
by no means unique to West Norfolk, but a consequence of an influx
of migrants in other parts of the country. However the rural nature
of the borough has magnified the effect of this increased pressure,
with fewer access points to key services than many more urbanised
areas. Services such as maternity care and schooling experience
"bottle-necks" as a consequence and often there is lack
of resource to deal with all the issues involved with increased
pressure from a new migrant community. The concentration of new
migrants in certain parts of a sparsely populated borough can
be highly visible which in turn also exacerbates the problem,
and can increase community tensions, particularly if perceived
inequalities are seized upon by the media. The example of certain
key services experiencing increased pressure in certain spatial
locations is demonstrated by the increase of Eastern European
enrolment in primary schools. In certain parts of King's Lynn,
such as the Greyfriars Primary School the percentage of pupils
with English as a second language has increased to over 30%, whilst
in other parts of the borough it remains extremely low.
Obviously such unequal impacts of migration
require more spatial specific solutions than borough-wide initiatives.
This has significant community cohesion issues especially when
the possibility of unequal allocation of resources between localities
and different groups can be viewed negatively.
45 ONS (2006) Estimate. Back
46
ONS (2004) mid-census figure. Back
47
Workers registration scheme approved applications by Government
office region, local authorities and nationally (May 2004-07). Back
48
Dr Becky Taylor and Dr Ben Rogaly (2003) Report on Migrant working
in West Norfolk. Back
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