Scottish Government

CHAPTER THREE: EXPLORING THE LINKS BETWEEN DEPRIVATION AND LOW CTCS MEMBERSHIP

3.1 CTCS MEMBERSHIP IN THE THREE SAMPLE AREAS

This study has a particular focus on three local authority areas with particularly low levels of CTCS membership coupled with high levels of deprivation. This approach was adopted to enable in depth fieldwork to be undertaken to explore the opportunities for increasing membership in socially excluded areas.

The three areas were identified through analysis of the distribution of socially excluded areas and CTCS uptake and discussion with the CTCS Working Group. Analysis of areas of high social deprivation was based on the Scottish Index of Multiple Deprivation, which measures deprivation levels across Scotland (see Section 3.2). This resulted in the following three areas being selected:

• Glasgow - this local authority area has by far the highest levels of social deprivation in Scotland. Membership levels of CTCS in Glasgow are the lowest in Scotland, at just 43 per cent. These characteristics make this an obvious starting point for tackling the relationship between social exclusion and low CTCS membership.
• Dundee City - again, this local authority exhibits very high levels of social deprivation. CTCS membership is relatively high in the Tayside area as a whole - at 55 per cent - but previous research has identified that membership in the Dundee City area is low, particularly in areas of social deprivation ⁹.
• East Ayrshire - this area has slightly above average levels of social deprivation. However, this local authority is one of the few rural authorities which demonstrate high levels of deprivation using the Scottish Index of Multiple Deprivation ( SIMD). This characteristic - coupled with low levels of CTCS membership at just 47 per cent - meant that this authority offered a rural-urban balance to the study which would ensure that lessons learned are applicable across the country, rather than only in urban areas.

3.2 MAPPING CTCS MEMBERSHIP AND DEPRIVATION

In order to update our understanding of the relationship between deprivation and low CTCS membership, we have undertaken a review of 2004 CTCS uptake figures in relation to the 2004 Scottish Index of Multiple Deprivation ( SIMD). The SIMD is the Scottish Executive's official measure for identifying concentrations of deprivation at a small area level and brings together six core measures of deprivation:

The information is gathered at a local area level - with Scotland split into over 6,500 datazones of approximately 750 people. The SIMD then ranks each of the datazones in terms of overall level of deprivation, giving an indication of the areas with the highest and lowest levels of multiple deprivation in Scotland.

To demonstrate the link between deprivation and low CTCS membership an analysis has been undertaken for the eight Road Safety Units with the highest levels of deprivation. This is based on the percentage of the population living in the 15 per cent most deprived areas in Scotland.

For each of these areas, levels of CTCS uptake were assessed and a clear relationship can be established. For example, Glasgow has the highest levels of deprivation in Scotland (1) as well as the lowest levels of CTCS Uptake (1). The only area where this correlation is not so clear is in Tayside. Although Tayside is in the top eight most deprived RSUs in Scotland, CTCS uptake is slightly higher than in other deprived areas. However, the Tayside Road Safety Unit covers Dundee City - which has a high concentration of deprivation - as well as Angus and Perth and Kinross where deprivation levels are much lower.

Table 3.1: Social deprivation and CTCS membership, 2004

Source: SIMD (2004) and Road Safety Scotland
* 1 represents highest level of deprivation and lowest level of CTCS uptake

With the exception of Tayside, each of the eight most deprived Road Safety Unit areas has a CTCS uptake level of less than 50 per cent. In Glasgow, where deprivation is strongly concentrated, the uptake level falls dramatically to just 43 per cent. There are only nine Road Safety Unit areas in Scotland where CTCS uptake levels are less than 50 per cent, and seven of them are those with the highest levels of deprivation.

It is likely that this correlation would be demonstrated clearly through analysis at a neighbourhood level within each Road Safety Unit. Previous research has demonstrated that CTCS uptake levels in areas of deprivation are much lower than in other areas ¹⁰. However, the way in which the Scottish Index of Multiple Deprivation ( SIMD) is produced has changed, making it a complex job to correlate CTCS membership with areas of high deprivation at a neighbourhood level. While the SIMD used to be produced on a postcode basis - which is consistent with CTCS uptake statistics - it is now produced on a datazone basis. Matching postcodes with datazones is possible, but time consuming and not within the scope of this study. In future, as the way in which statistics are produced at neighbourhood level improves, it may become easier to relate postcode data to datazones.

3.3 POTENTIAL FACTORS AFFECTING MEMBERSHIP

Research has clearly demonstrated that CTCS membership in areas of high deprivation is lower than in other areas. Some characteristics of areas of deprivation may result in the CTCS materials not being suitable or appropriate for some parents, carers and children, thereby having an impact on CTCS uptake levels.

Potential factors which may impact on CTCS membership in areas of high deprivation are explored below.

3.3.1 ADULT LITERACY AND THE CTCS

One potential reason for lower membership of the CTCS in socially excluded areas is the correlation between adult literacy and social exclusion. In 2000, the Scottish Executive established an Adult Literacy Team to consider the scope and scale of adult literacy and numeracy problems in Scotland and make recommendations on addressing these. The Adult Literacy Team found that:

"There is a high correlation between living in a disadvantaged area and having poorly developed literacy and numeracy skills"¹¹

The Adult Literacy Team suggested a number of potential reasons for this correlation, including unhappy memories of school, a belief that learning has little to offer, and a lack of information about the opportunities available. In addition, those who left school at 16 or earlier, who are on a low income, and who are not working or are in a manual social class group are all more likely to have low literacy and numeracy skills.

Although this correlation has been established, it is difficult to undertake any detailed analysis of levels of adult literacy across Scotland and how this may affect road safety education and membership of the CTCS. As the Adult Literacy Team identifies "Scottish based research is virtually non- existent", meaning that the majority of information about adult literacy in Scotland has been gathered by the International Adult Literacy Survey ( IALS) which was undertaken in 1996.

The IALS identified that levels of adult literacy in Scotland were low in comparison with other countries, with almost one quarter (23 per cent) of adults having low literacy and numeracy skills. The survey identified that a further 30 per cent of adults may have difficulty coping with the knowledge and information age due to their literacy and numeracy skills.

Overall, these statistics would mean that approximately 800,000 adults in Scotland have low literacy and numeracy skills. Due to the linkages between adult literacy and social exclusion, many of these adults will be living in areas of high deprivation. It is likely that for at least some, literacy issues have a bearing on whether they register their child with the CTCS and on the extent to which they make use of the materials once they have registered. However, due to the lack of detailed local level information about adult literacy this cannot be backed up statistically. This issue was explored through the fieldwork carried out as part of this research (see Chapter Four).

3.3.2 HEALTH AND ADDITIONAL SUPPORT NEEDS

There are clear links between areas of high deprivation and ill health or Additional Support Needs ( ASN). Life expectancy in areas of high deprivation is significantly lower; a higher proportion of people have limiting long term illnesses; there are higher levels of drug and alcohol abuse; and a higher proportion of individuals are in need of support or care ¹². Where these issues affect either children or parents, it is likely that this could have an impact on the relevance and appropriateness of the CTCS materials to these families.

In terms of the use families with children with ASN made of road safety materials, research undertaken in 2005 ¹³ found that "at home, parents focussed on practical roadside education with little use of resources, and stressed the need for appropriate resources for use with children with Additional Support Needs". In relation to the CTCS, the research found that while some parents of young children with ASN were aware of CTCS materials "they felt that they were too complex for their children when aged 3 to 5". This was a particular issue for children with learning difficulties, but was also raised by parents of children with physical disabilities which can mean they require different advice on road behaviour. However, "some indicated that they may be useful in the future when their children grew older". This belief that the materials are too complex has the potential to result in lower levels of membership in families with children with Additional Support Needs.

3.3.3 ENGLISH AS A SECOND LANGUAGE

Another potential factor influencing membership of the CTCS is the language spoken in the family home. In Scotland, the CTCS materials are only available in English, as are all registration and promotional materials. This could have an impact on membership for those for whom English is not their first language.

Accurate statistics on language spoken at home are not available on a national level, as the 2001 Census only asked households about knowledge of Gaelic and not about other languages. It is anticipated that this will be included in the 2011 Census - as the Scottish Executive is currently reviewing the Census categories - but at present Scotland wide statistics are not available.

Due to the lack of statistics, it is difficult to assess whether there is any link between deprivation and language spoken at home. However, one area where deprivation and language spoken will often be linked is with asylum seekers and refugees in Scotland. In 2004, the Scottish Executive and Scottish Refugee Council estimated that there were 10,000 asylum seekers and refugees in Scotland, mainly in Glasgow ¹⁴. Figures for 2005 indicated that there were approximately 6,200 asylum seekers in Glasgow alone, as well as an unquantifiable further population of refugees and people with leave to remain ¹⁵.

The profile of asylum seekers in Glasgow indicates the importance of ensuring that these communities are offered the opportunity to access guidance on road safety for young children. The 'Information Centre About Asylum and Refugees in the UK' states that approximately 15 per cent of asylum seekers in Glasgow are under six years old - almost 1,000 children ¹⁶.

Asylum seekers are concentrated strongly in Glasgow, the most deprived local authority in Scotland, and within Glasgow there is a tendency for asylum seekers to be housed within the more deprived areas. With a high population of young children, reaching these communities becomes very important for the CTCS.

However, the CTCS may not be reaching these communities as the resources may not be accessible or appropriate. Asylum seekers in Glasgow come from at least 54 different countries and, although there is limited information on language proficiency, it is likely that in many cases English will not be spoken or read. This means that CTCS registration materials may not encourage membership among many asylum seekers, who may be unable to understand the materials, or may prefer to educate their children in another language.

3.3.4 MOVING HOME

Another factor which may influence membership of the CTCS is the mobility of households living in socially excluded areas. Scottish Executive analysis of the Scottish Index of Multiple Deprivation indicates that households in the most deprived areas of Scotland are the most likely to move home. The analysis also found that people were likely to move within their own locality ¹⁷.

This higher level of movement could have an impact on the receipt of invitations to join the CTCS. The invitations are sent out using the Child Health Index database, which includes the addresses of households as held by their GP. Where households are moving more often, and generally within the same locality, it is possible that these households do not re-register their address with the GP, and consequently are not up to date on the Child Health Index. This could, in a small number of cases, result in a higher level of invitations being sent to the wrong address in deprived areas than in other areas of Scotland.

3.4 SUMMARY OF CHAPTER 3

• There is a strong link between low CTCS membership and high levels of deprivation at a local authority level
• Glasgow, Dundee and East Ayrshire have been selected within this study as areas demonstrating a strong correlation between low CTCS membership and deprivation
• Some characteristics of areas of high deprivation may result in lower levels of CTCS membership
• Lower levels of adult literacy in areas of high social deprivation could impact upon CTCS membership
• Due to a lack of statistical information on adult literacy in Scotland this relationship cannot be quantified and is explored qualitatively in this study
• There are clear links between ill health and deprivation, meaning that in deprived areas there may be a higher proportion of households for whom CTCS resources are not suitable due to the child's Additional Support Needs
• Language spoken may also influence CTCS uptake, although a lack of statistics on language spoken at home means that this cannot be evidenced
• The concentration of asylum seekers in local authority areas with high levels of deprivation - particularly in Glasgow - may impact on membership levels due to the languages spoken
• Households in deprived areas are more likely to move home - often within their local area - meaning that there is a higher chance of invitations being sent to the wrong address and registration forms not being received in these areas.