Community Cohesion
Strategy
2010 - 2013
Contents
Page
Foreword
Introduction
3
5
Section 1: Context
- About Blackburn with Darwen
- What do we mean by Community Cohesion?
- Why we need a Community Cohesion Strategy
7
7
15
18
Section 2: Our Approach
- Blackburn with Darwen Legacy
- Institute of Community Cohesion
- 2030 Vision
- Our strategic priorities for community cohesion and
integration
22
22
23
24
26
Section 3: Policy Development and Delivery Framework
- Cohesion Taskforce: Education, Skills & Training
- Cohesion Taskforce: Economy & Employment
- Cohesion Taskforce: Intergenerational
- Cohesion Taskforce: Housing & Regeneration
- Cohesion Taskforce: Community Safety & Crime
- Cohesion Taskforce: Health & Well-being
- Cohesion Taskforce: Neighbourhood & Communities
- Resources
31
34
37
40
43
46
46
47
48
Section 4: Monitoring and Review
- Performance Management
- Roles and Responsibilities
49
49
51
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Foreword
Blackburn with Darwen has a proud, richly diverse and distinct community, where we
have always tried to ensure our citizens have the opportunity to fully engage in
shaping their local community, influence decisions, and have a part in a shared
future. The borough has a strong and proud track record for community cohesion; we
have delivered various initiatives involving the community and local partners to
mitigate tensions and negative impact on the towns.
Our Community Cohesion and Equality Strategy 2010-2013 sets out Blackburn with
Darwen Local Strategic Partnership’s commitment to ensuring that in all communities
across our borough there is a strong sense of belonging and that valuable
contributions made by different individuals and groups in shaping Blackburn with
Darwen’s future are recognised.
This strategy is based on the hard work and expertise of local people and
professionals. It is our statement about our Borough. In it, we outline key
improvement and priority outcomes we want to achieve around community cohesion,
integration and equality for the borough. The priorities are supported by a delivery
framework to support mainstreaming community cohesion and a detailed monitoring
and review process we will use to measure achievements and assess our progress.
It is fair to say however, that our changing population in recent years brings new
challenges and demands on our reduced services. Therefore our community
cohesion strategy will help us build on previous experience to develop an integrated
approach, which addresses the challenges and helps create common understanding
between all our residents.
The Council and LSP have always defined community cohesion as an integral
element and result of broader place-shaping activity. High quality engagement and
consultation activities have always featured in Blackburn with Darwen. High profile
projects such as the Belonging Campaign, 100 Voices, Meet your Neighbours, the
Good Relations Programme and Life swap have all contributed significantly to
promoting community cohesion and integration.
We have also faced a number of defining moments over the past 5 years which has
brought additional challenges to the area. Events such as the visit of Condoleezza
Rice, growth of the Far Right, the review by the Institute of Community Cohesion and
the EDL protest have brought challenges as well as allowing the community to unite
and engage in expressing their views around the well-being of the borough.
The strategy describes our approach to tackling the underlying causes impacting on
community cohesion; a particular focus is to continue to deliver the excellent work
across the borough in a time of financial austerity. The recent funding cuts to the
area combined with new threats bring additional tension and challenges. This
strategy therefore aims to ensure we embed and mainstream community cohesion
into the partnership’s everyday business and service delivery and commit to closely
monitoring the progress we make, whilst remaining self-critical in driving the agenda
forward.
No doubt the issues of community cohesion and integration will continue to shift and
change. It will therefore be important to ensure that this strategy is a living document
and subject to constant review to meet the challenges ahead; whilst also delivering
against the ‘connected communities’ theme of the 2030 Vision.
We also acknowledge equality and diversity is closely linked to community cohesion
and therefore equality is a key strand in our efforts to tackle community cohesion
issues. We believe strongly that the Local Strategic Partnership’s efforts to reduce
inequality in standards of housing, education, health and economic well-being are all
vital to reducing tensions and resentment within communities, and we will therefore
align our efforts around cohesion with broader interventions in support of the 2030
Vision and the borough-wide equality strategy. We must tackle the inequalities within
our communities to bring about real change in cohesion and recognise that a
cohesive community is one which is at ease with itself.
The future of our towns will be shaped by all of us working together, with a collective
vision and ambition to make Blackburn with Darwen an even better place. As we do
so, we commit to foster a high level of trust and mutual understanding; not only
between our respective communities, but also between residents and ourselves.
Kate Hollern
Leader of the Council
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Mike Murray
Chair of the LSP
4
Introduction
This strategy aims to provide an outline of the Local Strategic Partnership’s approach
to community cohesion, integration and equality within Blackburn with Darwen. The
borough has a strong track record in delivering against the agenda with a consistent
and bold strategic approach, and some high profile and successful initiatives such as
the ‘Belonging Campaign’, ‘Meet your Neighbours’ project and a toolkit for working
with young people to promote community cohesion.
This strategy continues to position our approach to community engagement around
promotion of dialogue and interaction between and within communities, in order to
foster better relations and help develop understanding and mutual respect through
short term initiatives and targeted programmes. We also aim to provide an
overarching framework to assist in mainstreaming community cohesion which offers
practitioners and service providers a platform for a collaborative effort to help embed
community cohesion through a consistent approach within all activities and services
provided across the borough.
The over-arching framework provided within this strategy document supports a
process of ‘live’ strategy development. This will ensure that decision-makers around
community cohesion, integration and equality take account of ongoing analysis,
policy development work and evaluation of front-line projects and services currently
being delivered across the borough, continually and iteratively building-up into a live
strategy document.
In keeping with the successful track record in the borough, our focus is on developing
the borough’s long term approach to community cohesion and integration. We
recognise the various factors that influence cohesion and the multiple actions
required through targeted programmes to impact positively towards developing a
sense of ‘togetherness’.
Therefore, our approach embeds community cohesion as a cross cutting agenda,
with clear responsibilities and implications for all partner organisations and serviceproviders. As well as a need to ensure relevant policies and services take into
account their impact on community cohesion and integration. Multiple problems
related to separation within communities require consistent effort and joint
approaches across the borough to deliver multiple solutions. Hence the contributions
of the Local Strategic Partnership are paramount in improving the social regeneration
of the place.
Structure and outline
The strategy is structured in five sections:
Section one provides an overview of Blackburn with Darwen and frames the context
for community cohesion work to be delivered across the borough. It refers to our
understanding of community cohesion and the influences that impact negatively on
the well-being of the borough’s residents.
Section two focuses on our approach to mitigate the causes of the lack of integration
between communities. This section outlines our traditional approach to addressing
community cohesion issues and discusses positive work undertaken towards
developing a safer and stronger Blackburn with Darwen. This section of the strategy
also aims to outline the various aspects of research and engagement activity
conducted to devise our strategic priorities for community cohesion and integration.
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This section also outlines our approach to ‘mainstreaming’ community cohesion
across the borough, in order to provide a long term approach to tackle the underlying
causes related to social cohesion.
In keeping with the ‘live’ aspect of the strategy framework, Section three has been
iteratively developed through the analysis, input and recommendations of a series of
cohesion taskforces throughout 2010/11; and will continue to be so as we move
forward in implementing this strategy. Under this section we will explain the process
each thematic cohesion taskforce undertook and outline key areas of focus within the
relevant subject areas, whilst also providing details of recommendations offered to
the LSP and the Executive Board to take firm policy decisions against each thematic
area. This section will also aim to provide details surrounding the delivery framework
against the recommendations and will focus on defining clear roles and
responsibilities at a service level and across the LSP to implement the
recommendation. The delivery framework will also outline the position of existing
structures to support the action plan and dedicate key resources through
mainstreaming the cohesion agenda to assist in facilitating delivery. A refreshed
version of this live strategy will further contribute to focussed action plans outlining an
integrated approach to addressing borough wide community cohesion issues.
Section four is focused on monitoring, evaluation and review of progress against set
targets and will include a defined time scale to advance the strategy. Furthermore,
broader roles and responsibilities will be outlined to support implementation of the
strategy.
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Section One - Context
About Blackburn with Darwen
Blackburn with Darwen is a unitary authority area in Lancashire. It consists of
Blackburn, the small town of Darwen to the south of it, and the surrounding
countryside. The Borough covers an area of 13,700 hectares and at the time of the
2001 census had approximately 55,000 households.
The borough of Blackburn with Darwen is currently split into five neighbourhood
coordination areas; Blackburn North East; Blackburn North West; Blackburn South
East; Blackburn South West and Darwen and Rural. Summary information for these
are provided later in the chapter.
Demographics:
According to the 2001 census Blackburn with Darwen had a population of 137,470,
the 2009 ONS mid year population estimate shows that this has increased to
139,900. Populations projections indicate that the population of Blackburn with
Darwen will increase by 4.7% by 2030 (England = 16.1%). The number of
households within the borough is also projected to grow to 66,000 by 2029. Of the
population of Blackburn with Darwen there exists a roughly equal split between the
male and female residents, 69,700 were male and 70, 200 female.
Age:
Figures from the 2001 census show that Blackburn with Darwen has a population
that is significantly younger than the UK average, with a 30.3% aged 0-19 compared
to 23.9% nationally, this includes under a quarter (22.6%) aged 0-14. Conversely,
approximately, one in eight (12.9%) of the population is aged 65+ compared to 16%
nationally. The bias towards a much younger population means there are fewer
people of pensionable age than the average for England and Wales.
Overall, three fifths (60.6%) of Blackburn with Darwen’s population are of working
age. Sixty three percent of all males are of working age compared to 57% of females.
The profile is not too dissimilar to that for the North West and Great Britain.
Blackburn with Darwen has a growing population of older people, projections
between 2008 and 2030 show that in 2008 older people made up 25.4% of the
population in Blackburn with Darwen, by 2030 older aged people are projected to
increase to 36.2%.
In August 2009, the state pension caseload in Blackburn with Darwen was 21, 770,
three fifths of these claimants were aged between 60 and 74. The average amount
of pension benefit recorded at the national level was £102.35. Blackburn with Darwen
recorded a weekly average of £107.63, higher than the lowest Lancashire figure of
£103.70 in Blackpool.
The income deprivation affecting older people results from the 2007 Indices of
Deprivation reveal Blackburn to be a particular problem area. Twelve wards within
the local authority contain areas that are in the 10% most deprived nationally for
income deprivation for older people. This not only includes Audley, Bastwell and
Shear Brow, areas with predominantly high BME concentration but also the
Shadsworth with Whitebirk, Mill Hill and Sudell areas with majority white population.
Ethnicity:
Blackburn with Darwen’s population is diverse, with 80% identifying themselves as
White and 21% as non-white. The non-white population is the highest in the region,
and almost four times higher than the national average. Most of the non-white
population comes from Indian (11%) or Pakistani (9%) backgrounds. This
demographic picture is changing dramatically in Blackburn with Darwen and we
anticipate the 2011 Census results to portray a BME population in the region of 30%.
People from BME groups are concentrated heavily in three of the area’s 23 wards. At
the time of the 2001 census Audley, Bastwell and Shear Brow wards accounted for
56.9% of all Asian or Asian British residents in the borough. These together with four
other wards that have large shares of the Asian or Asian British population are
located in the North East of the borough.
The age profile by ethnicity shows that of the Black and Minority Ethnic (BME)
population 37.5% are aged 0-15 and a further 18.5% aged 16-24. In comparison, of
those with White ethnicity 21.7% are aged 0-15 and 9.7% aged 16-24. These
differences are reflected in school populations in the Borough; 37% of secondary
school pupils are of BME background while in the first three years of primary school
(5-8 year olds) 51% are BME.
This trend reverses with age; with the proportion in each age group increasing for the
white population and decreasing for the BME population such that 12.8% of the white
population are aged 50-59, 4.9% aged 60-64, 8.5% aged 65-74 and 7.6% aged 75+
compared to 4.8%, 1.9%, 2.3% and 1% of the BME community.
The age profile shows that BME groups generally having younger populations with
considerably fewer older people. Children are especially predominant in the mixed
group, 54.8% of whom are under 15 compared to 21.7% of those from a White ethnic
background. Asian people are more likely than the White population to be young or
with a particular concentration of people in their twenties. The large Indian population
contains fewer children than the Pakistani and Bangladeshi ones.
Whilst only 3.3% of the BME population is aged over 65, the percentages of people
from BME backgrounds increases to 6.7% for those aged 50-64. Five percent of the
Chinese and Other ethnic group and 8.8% of Black ethnic groups are aged over 65.
The young BME population will lead to a growth in the percentage of the workforce
from a BME background, conversely, the profile of older people in Blackburn with
Darwen will change in the coming years, particularly with the increasing proportion of
older people from BME groups, thus over time increasing proportions of people
above pensionable age will be from BME households.
International migration:
International migration has always played a role in shaping the demographic profile
of Blackburn with Darwen, migration in the early and late 60’s saw people from the
Indian subcontinent arrive to take up employment in cotton mills in the area, more
recently with the opening up of borders many migrants from EU accession states
have come to the county.
Worker registration scheme figures provide information for local authorities on
applications to work in the UK by those from the eight EU accession countries.
Workers from these countries have to register for each job they take until they have
worked a total of 12 out of 13 months.
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Poland remains the source of most (2,080) registrations in Lancashire in 2008/09.
Registrations from Poland accounted for 27% of the total. India and Pakistan are the
second and third main contributor countries to Lancashire migration with 930 and 600
from each country respectively. China is the fourth main origin of migrants (with 300).
Blackburn with Darwen had a high number of registrations in 2008/09 with 930, more
recent figures for 2009/10 show national insurance registrations to have fallen to 780
in Blackburn with Darwen, a decrease of 16%. Between 2008/09 and 2009/10
registrations fell in all local authority areas in Lancashire, registrations in Lancashire
fell by over a quarter (27.9%). Poland continues to be the highest contributor to
registrations with India second.
Housing and Households:
At the 2001 census there were 55,000 households in the Blackburn with Darwen
unitary authority area and this is predicted to grow to (in line with population
projections) to approximately 66,000 in 2029, an increase of 20%.
Over 70% of households were owner occupiers and 30% rented, the majority of
owner occupier households were owned with a mortgage or loan and of the rented
households, just less than 10% were rented from the council and 10% from a
housing association or social landlord.
The highest proportion of housing for Blackburn with Darwen is terraced including
end terrace at 47.9%. Compared to other districts in Lancashire it is the 4th highest
after Pendle, Hyndburn and Burnley.
Indian households are more likely to be owner occupiers than all other ethnic groups
and amongst those with Asian ethnicity Bangladeshi households, Black residents and
those with a mixed ethnicity were most likely to occupy social housing.
High level of owner-occupation in some BME groups does not necessarily reflect
greater wealth. BME households are most likely to be living in the poorest quality
housing in each tenure, they are also most likely to be living in the most deprived
wards, irrespective of tenure. BME households are, in addition, more likely to be
overcrowded.
In 2004, 35.3% of dwellings in Blackburn with Darwen were considered unfit, this
figure had fallen to 17.2% by 2006, while there has been some improvement, the
figure is well in excess of England Average of 4.2% and higher than Pendle (16.6%)
and Hyndburn (15.9%) and higher than the East Lancashire average (12.8%) the
highest proportion of housing was in council tax banding B.
Religion:
In Blackburn with Darwen, just under two thirds described themselves as Christian,
8% had no religion and 8.6% did not state their religion. One in five of the population
follow Islam, the third highest proportion in England and Wales and the highest
outside London. Less than 1% followed other religions.
Religious belief is related to ethnicity, In Blackburn with Darwen 80.4% of White
residents were Christian, 9.9% had no religion and 8.9% did not state their religion.
Amongst those of mixed heritage 39.5% were Christian and a high proportion, over 1
in 10 said they had no religion or did not state their religion. Compared to White and
mixed groups Black and in particular Asian groups were less likely to have no
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religion. Over a third of those with mixed ethnicity were Muslim compared to 90% of
those with Asian ethnicity.
Disability:
There is currently no single definitive source of information on disabled people at
local area level but a number of data sources can be used to assist in building a
geographical picture of disability in a locality. These include benefit data on people
claiming Disability Living Allowance (DLA) or Incapacity Benefit/Severe Disablement
Allowance (IBSDA) and Census 2001 data on people reporting a limiting long term
illness or disability (LLTI).
According to the 2001 census 20.3% of the borough’s residents have a limiting long
term illness, which is on a par with the North West figure of 20.7% and above the
England and Wales figure of 17.9%. The number of people claiming Disability Living
Allowance is 10,720 as at August 2008
More recent statistics (May 2010) from the Department of Works and Pensions show
that there were 19,490 claimants in Blackburn with Darwen, 22% of the resident
population of the area, this is higher than the North West figure of 17.9% and much
higher than the national figure of 14.7%. The largest proportion were in receipt of
ESA and incapacity benefits (10,050) followed by job-seekers allowance 3,650.
Sexual Orientation:
Data from the last census shows that there were 138 same sex couples living
together in Blackburn with Darwen, more recent data from the 2003 Living and
Working in East Lancashire survey shows that of the 335 respondents, 4.3%
described their sexual orientation as bisexual, 1.4% gay, 0.2% lesbian and 1.7%
transgender, the remaining ones described their sexual orientation as heterosexual..
The North West Development Agency (NWDA) commissioned research in
partnership with other agencies. According to the research, the Northwest region has
a lesbian, gay, bisexual and transgender (LGBT) population of roughly 430,000. The
NWDA however recognise there is a lack of data available on the lesbian, gay,
bisexual and transgender (LGBT) communities at national, regional or local level.
The question on sexual orientation will not be included in the forthcoming 2011
census.
Deprivation:
The 2007 Indices of Deprivation revealed a number of areas in the unitary authority
with very high levels of deprivation. The index presents information for small areas,
these are known as lower super output areas (LSOAs). According to the 2010
Indices of Deprivation the ward of Wensley Fold contains the most deprived LSOA in
Blackburn with Darwen. However, since 2007 this area has become less deprived on
national rankings. The areas was ranked the 35th most deprived LSOA in the country
in 2007, it is now ranked 68th nationally. The other four areas in our most deprived
five lower super output areas are found in the wards of Mill Hill, Shadsworth with
Whitebirk and Queen’s Park. All these areas have experienced increases in
deprivation compared to 2007. One of the four LSOAs in Mill Hill was ranked as the
220th most deprived LSOA in England in 2007, it is now ranked 123rd, similarly one of
five LSOAs in Shadsworth with Whitebirk was ranked 184th in 2007 and another
285th, these areas are now ranked 141st and 158th respectively. Of the four LSOAs in
Queen’s Park, one was ranked 218th most deprived nationally in 2007, in 2010 it was
ranked 208th most deprived nationally.
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Blackburn with Darwen recorded an average index of deprivation score of 35.83,
ranking 17th on the ‘rank of average score’ (out of 354 local authorities) in 2007. In
2010 Blackburn with Darwen again ranked as the 17th most deprived local authority
in England (out of 326) local authorities). Its average index of deprivation score on
this occasion was 35.23. Any change in rank between 2007 and 2010 will therefore
be influenced by the different number of authorities, in addition to any change in
relative deprivation.
The most deprived wards are concentrated in the centre and north east corner of the
Authority. These include the areas with the highest concentrations of BME residents.
However, deprivation is by no means confined to the BME communities, more White
than BME residents live in the seven most deprived wards and two of the wards are
over 90% White.
Analysis of 2007 IMD shows that in Blackburn with Darwen approximately 1 in 12
(8%) of residents live in the 1% most deprived areas, this increases to a fifth of
residents in the 5% most deprived and over a third in the 10% most deprived area. A
breakdown by age shows that 43.5% of all 0-15 year olds live in the 10% most
deprived areas, this percentage falls as age increases such that by age of retirement
28.7% of all residents live in the 10% most deprived wards. Thus from the data those
aged 0-15 are 1.5 times more likely to live in the 10% most deprived ward than those
who are retired, this ratio reduces for 5% and 1% most deprived areas such that
8.2% of all 0-15 year olds live in the 1% most deprived areas compared to 6.9% of
those who are retired. Analysis of 2010 data is ongoing and will be made available in
the future.
Qualification levels play an important role in determining the future earnings potential
of residents. Most recent data for GCSE achievement in 2009/10 suggests that
educational attainment levels are highest in 2009/10 from those with an asian ethnic
background, and lowest for those with black ethnicity. Three fifths (59%) of asian
heritage pupils achieved five or more GCSEs including English and mathematics,
compared to 49% from a white ethnic background and 43% from those with a black
ethnicity.
Whilst educational attainment for 16 year olds is significant to long term skills supply,
a more immediate issue is that of skills and qualification levels in the current
workforce.
Data on educational attainment for adults is available through two key sources, the
2001 Census and the ONS Annual Population Survey. The ONS data will be more
current. The data shows that within the workforce there is an upward trend in
attainment levels for NVQ levels 4, 3 and 2.
At the end of 2004 18.9% of the population achieved an NVQ level 4 qualification by
2009 this has increased to 21.2%, similarly the percentage attaining NVQ level 3
increased from 39% to 42.1%.
The percentage of the population achieving a level 1 qualification decreased from
74% in 2004 to 72% in 2009 at the same time the percentage of the population with
no qualifications in Blackburn with Darwen increased slightly from 18.9% in 2004 to
20% in 2008, it has since decreased below 2004 levels.
The 2010 ASHE (Annual Survey of Hours and Earnings) results reveal that the
average median weekly earnings for full time resident employees in the Blackburn
with Darwen area was £439.9, 12.3% lower than the national average of £501.8.
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Over the year earnings of for all full-time employed residents in Blackburn with
Darwen increased by 2.5% and by similar but lesser amounts regionally, 2.4% and
nationally 2.3%.
The gap between male and female wage rates remains substantial. The median male
weekly earnings figure for Blackburn with Darwen residents of £466.2 is considerably
higher than the female result of £424.8 (i.e. the median wage for male residents is
10.2% higher than that of female residents).
Similarly the median male weekly earnings for those for whom Blackburn with
Darwen is a place of work show female earnings to be £441.5 compared to £453.1
for males, male earnings in this case are 2.6% or £11.60 more than that for females.
In general terms, not taking into account the gender of wage earners, resident based
earnings are lower (1.1%) than workplace earnings.
At the ward level, the variation in income levels between the most and least affluent
wards in Blackburn with Darwen is extreme. Wards, either with good connections to
the M65 or bordering the Ribble Valley, have income levels that are amongst the
highest in the county. In contrast, the urban wards of Sudell, Bastwell, Wensley Fold
and Audley have some of the lowest income levels recorded in Lancashire.
Neighbourhood areas:
Although the LSP neighbourhood structure is under review, for managerial purposes
we can still observe the five geographic neighbourhood areas with distinctive
characteristics.
However, the proposed neighbourhood engagement model could provide further
opportunities to engage with residents at both a ward and neighbourhood level,
therefore allowing us to work effectively in the heart of communities and away from
established institutions.
Blackburn North East
The North East Coordination Area is made up of four wards: Shear Brow, Bastwell,
Little Harwood and Roe Lee, these cover a population of approximately 24,000.

The North East neighbourhood has a younger than average population, and the
highest birth rate in the borough.

The percentage of Indian and Pakistani residents is the highest of any of the five
neighbourhoods in the borough.

70% of the population falls within the Mosaic group known as 'Close knit, inner
city and manufacturing town communities'.

The southern part of the neighbourhood generally has higher deprivation and
poorer health outcomes than the north.
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Blackburn North West
The North West co-ordination area is made up of 4 wards, Beardwood & Lammack,
Corporation, Roe Lee – part of, consisting predominantly of the Pleckgate area; and
Wensley Fold. These wards cover a population of approximately 22,000.

The North West neighbourhood has an age profile similar to that of Blackburn
with Darwen as a whole.

At the 2001 Census, 13.8% of its population was of Pakistani heritage, compared
with a borough average of 8.7%.

The area has a higher than average proportion of professional and older families
in sought-after or suburban locations.

Residents are more likely than average to work in a service industry, and
correspondingly less likely to work in manufacturing.

There is a higher than average birth rate, and a higher proportion of low birth
weight babies.
Blackburn South East
Blackburn South East consists of wards, Audley, Queens Park, Shadsworth
with Whitebirk and Highercroft. These wards cover a population of approximately
28,000.

*The South East's population is younger than average for the borough, and much
younger than the England age profile.

*The neighbourhood has a substantial BME population, concentrated in Audley
and part of Queen's Park ward.

*Most of the area consists of inner city communities or low-income social
housing, with over 90% of houses in Council Tax bands A&B.

*Maps of the neighbourhood suggest generally unhealthy levels of exercise,
smoking, and fruit and vegetable consumption.

*The area has relatively low life expectancy and above average death rates,
including those from Circulatory Disease and Cancer.
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Blackburn South West
The South West Coordination Area is made up of five wards; Meadowhead, Mill Hill,
Ewood, Fernhurst and Livesey with Pleasington. These cover a population of
approximately 33,000 people.

South West neighbourhood's population is well over 90% white, and has an older
age structure than Blackburn with Darwen generally.

The biggest Mosaic group is 'close-knit, inner city communities', followed by
'younger families in newer homes'.

The inner-city core of the neighbourhood tends to have the highest levels of
deprivation and worst health outcomes.
Darwen and Rural
The Darwen and Rural Coordination area is made up of the wards of Earcroft, Sudell,
Sunnyhurst, East Rural, Marsh House, North Turton with Tockholes and Whitehall.
The communities total 33608 which is 24% of the total population of Blackburn with
Darwen, with 82% of citizens living in the urban area (27495) compared to 18%
(6113) living in the rural communities.

Darwen & Rural's population is well over 90% white, with an older age structure
and lower birth rate than the borough generally.

Over half the population lives in 'close-knit, inner city' communities, and very few
in low-income social housing estates.

Over 30% of jobs are in manufacturing, which is well above the borough average.

The more rural areas are generally better off, but have a high proportion of
residents at medium to high risk due to alcohol.
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What do we mean by Community Cohesion and Integration?
This section describes what we mean locally by ‘community cohesion’ (and equality)
and why it is essential to continue building a real sense of belonging in Blackburn
with Darwen. We have traditionally shared the view of DCLG 1 and iCoCo that
community cohesion is what must happen in all communities to enable different
groups of people to get on well together. A key contributor to community cohesion is
integration, which is what must happen to enable new residents and existing
residents to adjust to one another to promote equal participation in wider society.
We have therefore remained overt in promoting the Local Strategic Partnership’s role
in fostering integration as an element of a cohesive community. Moreover, we have
encouraged and supported all Blackburn with Darwen residents to take a positive
stance towards ensuring that integration occurs within their own communities.
Blackburn with Darwen’s vision of an integrated and cohesive community has
historically focused on three foundations:
 People from different backgrounds having similar life opportunities
 People knowing their rights and responsibilities
 People trusting one another and trusting local institutions to act fairly.
And three key ways of living together:



A shared future vision and sense of belonging
A focus on what new and existing communities have in common, alongside a
recognition of the value of diversity
Strong and positive relationships between people from different backgrounds.
‘Equality’ is therefore a key strand of our efforts to tackle community cohesion issues.
We believe strongly that the Local Strategic Partnerships efforts to reduce inequality
in standards of housing, education, health and economic well-being are all vital to
reducing tensions and resentment within communities, and we will therefore align our
efforts around cohesion with broader interventions in support of the 2030 Vision 2 .
There has been much debate both locally and nationally regarding a definitive
meaning of community cohesion, hence a wide spread consultation in Blackburn with
Darwen has provided the opportunity for our understanding of community cohesion to
evolve towards a definition that is promoted by the Institute of Community Cohesion 3
and incorporates a broader notion of co-existence, respect and understanding.
Blackburn with Darwen’s agreed perception of community cohesion 4 recognises it as
both a process and an outcome involving five key characteristics:
 Positive interaction between individuals, communities and wider society to
promote trust, respect and common understanding;
 Active citizenship involving active participation in civil society, in public
institutions, the work place and in political life to enhance civic engagement and
influence across the borough;
1
Department for Communities & Local Government (Labour) - Cohesion Delivery Framework 2010
Blackburn with Darwen LSP Vision 2030 Report
Institute of Community Cohesion – Policy Framework
4
LSP Community Cohesion Workshop (02/02/11)
2
3
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 Equality of access and opportunity for all residents to the labour market,
housing, education, healthcare, social welfare and wide-ranging services;
 Local identity for Blackburn with Darwen, to help generate collective pride and a
sense of belonging to the area, where individuals and communities feel safe and
welcomed;
 Promotion and awareness of the rights and responsibilities of citizens and
organisations to enhance the borough’s social capital, strengthen community
leadership and support social inclusion.
In recognising the challenges the borough faces in relation to deprivation, community
tensions and the current issues brought about by the economic climate, our local
perspective of cohesion does not ignore the ongoing challenges of the structural
inequalities within society. The borough’s holistic view, through our understanding of
community cohesion and approaches to tackling the issues, aspires to developing a
cohesive society which promotes civic engagement, a sense of belonging, interaction
within and between communities, and a safe and fair society which promotes equality
of opportunity regardless of one’s race, faith, gender, age, sexuality, disability or
socio-economic position. Community cohesion in Blackburn with Darwen holds a
strong ambition to reassert the areas solidarity and ‘togetherness’ regardless of
personal and cultural backgrounds.
Our definition of community cohesion also acknowledges the need to celebrate the
diversity of Blackburn with Darwen, recognising the valuable contributions residents
can make, and where citizens share experiences and hold both common concerns as
well as ambitions for themselves and the borough.
The concept of integration continues to be embedded within our understanding of
community cohesion and we recognise both cohesion and integration occur at
various levels and within numerous domains: the institutional domain of the
workplace and places of learning; the social and spatial domain of the community
and neighbourhoods and the political and economic domain across civil society.
Community cohesion in Blackburn with Darwen therefore aims to preserve and
enhance the relationship between the individual and their community with wider
society. Locally we have a strong ethos that both cohesion and integration is the
responsibility of all living, working, and studying in the borough and not just focused
towards migrants and minority ethnic communities.
Preventing violent extremism
We have previously endorsed DCLG’s view that although different, community
cohesion and preventing violent extremism (PVE) are interrelated and can help build
a safer and stronger Blackburn with Darwen. However from a local perspective, while
cohesion can help prevent violent extremism, this is not enough on its own and in
order to avoid it becoming counter productive, the success of PVE relies heavily on
community buy-in and ownership. Although clearly over-simplistic, the diagram below
depicts our view that efforts around community cohesion and PVE are essentially on
the same spectrum. As outlined in the diagram below, clearly only a tiny minority of
individuals at the undesirable end of the spectrum are responsible for violent
extremism, and therefore the majority of the LSP’s investment around both PVE and
wider cohesion initiatives focus on ‘prevention’ for those people who are socially
excluded and vulnerable.
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These principles are particularly important for Blackburn with Darwen at a time when
the Government is reshaping it’s PREVENT Strategy, Hence, on this basis we need
to be preparing for challenging conversations about local priorities around PVE in the
context of Blackburn with Darwen and community cohesion.
Therefore, this strategy acknowledges that lessons can be learnt from the initial
launch of PVE and the potential negative impact of PVE on community cohesion. An
integrated approach to cohesion and PVE strategy is therefore required,
acknowledging that community ownership and engagement is vital to prevent
extremism in all sections of society whilst being conscious of the potential of PVE
interventions to exacerbate community cohesion tensions.
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Why we need a Community Cohesion and Equality Strategy
National Drivers
The notion of Community Cohesion emerged following disturbances in three northern
towns (Oldham, Burnley and Bradford) in the summer of 2001. Central and local
government prioritised the agenda following the Cantle Report where the Community
Cohesion Review Team highlighted significant residential and educational
segregation as a major factor contributing to the breakdown in community relations,
suggesting different communities were in effect living ‘parallel lives’.
Over recent years national and international events such as 9/11 (Twin Towers), 7/7
London bombings in 2005 and the attack on Glasgow Airport in 2007 have placed
further focus on the importance of community cohesion and integration. In addition,
perceptions across the country fuelled by the media and various ‘think tanks’ raise
public awareness of the rise in Islamaphobia, growth in political support for the far
right and radical extremism, increasing concerns surrounding immigration and a rise
in hate crimes and numerous terrorist arrests.
The Commission on Integration and Cohesion was established following the London
bombing in 2005 to effectively focus on local and practical approaches to build
cohesion. In response to the Commission the Government produced a ‘Cohesion
Delivery Framework’ to act as a resource to support local authorities and their
partners to continue driving towards building a cohesive and fair society. The
framework emphasises on local authorities to proactively address community
cohesion issues and measure the impact through local and national indicators.
The Local Government White Paper ‘Strong and Prosperous Communities’ (2007)
further reinforces local authorities (and partners) to promote community cohesion
within a leadership role.
There is no doubting the strong relationship between community cohesion and
equality; hence the Equality Act 2010 provided a universal framework for antidiscrimination law in the United Kingdom. The Act seeks to streamline and
modernise legislation to tackle disadvantage, inequality and discrimination, with the
aim to embed and mainstream equality and diversity.
The Act has further strengthened and mainstreamed discrimination laws with a
broader definition of equality to provide appropriate protection against the harmful
discrimination people experience due to their:
• Age
• Disability
• Gender reassignment
• Marriage and civil partnership
• Pregnancy and maternity
• Race
• Religion or belief, or no faith
• Sex
• Sexual orientation
An equal society is more cohesive and at ease with it self, therefore community
cohesion and equality go hand in hand to promote positive relations and equal
opportunities for people from different backgrounds and all walks of life, including
age, race, faith, gender, disability, sexual orientation, education and social class.
Furthermore, the current national initiatives such as the flagship Big Society
programme and the Localism Bill promoted by the coalition government, promotes
the devolving of power and influence to a local level. The initiatives broadly contribute
to the community cohesion agenda in empowering individuals and the community,
encouraging social responsibility and influencing change at a local level.
Increasing threats such as the rise of Far Right activity and propaganda, combined
with emerging challenges associated with factions such as the English Defence
League (EDL) result in additional risks to community cohesion. Direct stigmatisation
and provocation of the Muslim community is a factor in inflaming local communities,
resulting in exacerbating tensions and a breakdown in relationships between different
sections of the communities and with professionals in the area.
Furthermore, areas such as Blackburn with Darwen often experience the rise of
conflict and disorder brought about by external threats such as representation from
towns and cities up and down the country protesting and leading on provocation
locally. Bearing this in mind, divisionary protests in areas such as Blackburn with
Darwen can potentially be viewed as watershed moments around community
cohesion, providing a platform for local partners and the community to build on. Such
situations are a challenge to harness energy and relationships, and to utilise as a
catalyst in enhancing community cohesion and integration. Local approaches will
require a step change which focuses on collaborative working and effective
community engagement with local citizens to first understand and then address
tensions. The process needs to involve a change in attitude and accept the
opportunity to unite in confronting all forms extremism, whist celebrating diversity that
raises the profile of the place.
Local Context
Blackburn with Darwen Local Strategic Partnership (LSP) commissioned the Institute
of Community Cohesion (iCoCo) to conduct a review 5 on community cohesion and
integration across the borough. iCoCo engaged with council officers, elected
members and local partners from the public, private and third sector, as well as the
wider community to provide a detailed analysis of the current position and potential
issues the borough faces.
Key issues identified include separation in neighbourhoods, education, employment
and leisure. iCoCo’s findings suggest that residents of the borough are living
separate lives. Deprivation was also recognised as a significant issue for the borough
and identified as a determining factor to community cohesion and integration issues.
Educational attainment levels for certain groups of young people are low and
unemployment and a low wage economy is above the regional and national average.
Various levels of neighbourhood engagement activities, particularly Neighbourhood
Voices events and tension monitoring across the borough have highlighted issues
relating to place, which include intergenerational and cohesion related tensions.
Some sections of the community have raised concerns about feeling unsafe within
their own community as well as other neighbourhoods across the borough.
Furthermore, an increase in hate crimes and local terror arrests has placed additional
pressures on community relations. For example the Vulnerable Localities Index (VLI)
within the Lower Super Output Areas (LSOAs) for some of our most deprived areas
scores between 200 and 300, (a score of 200 or more indicates vulnerability at least
twice the Lancashire average).
5
Blackburn with Darwen: Baseline Community Cohesion review with a focus on integration (2009)
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Findings from local surveys suggest there is less of a ‘sense of belonging’ in
Blackburn with Darwen and also a decline in the residents feeling that ‘people from
different backgrounds get on well together in their local area’. For example, data from
the 2008 Place Survey suggests that 61% of Blackburn with Darwen residents
surveyed believed that people from different backgrounds go on well together, which
represents a decline of 5% from the previous survey in 2006. Furthermore, only just
over half of residents (56.3%) felt a very or fairly strong belonging to their
neighbourhood.
In addition, a recent survey conducted locally has begun to identify the impacts of the
recession on our residents and communities:






More than one in five residents (23%) are finding it difficult to live on present
income
Almost half (46%) feel financially worse of than a year ago
Almost three in four (71%) respondents are concerned about their families
financial situation in the coming year
Two out of three (68%) are more anxious or worried about their finances than
a year ago
One in five (21%) have had to borrow money in the last year to pay bills
Two in five (40%) have been paying off debts rather than spending or saving
money.
The Department of Communities and Local Government commissioned the
Campaigns Company to carry out qualitative analysis 6 of acute cohesion issues in
specific areas of the borough using a value modes analysis. This method of analysis
segments people according to the way they see the world and this provides a
valuable means to interpret findings and develop bespoke approaches. The three
categories used are Pioneers, Prospectors and Settlers and the research concluded
that from the total participants, 11 were settlers, 6 prospectors and 1 a pioneer. This
means that the research is particularly useful for helping the council and the LSP
work with the settler group, which can receive less attention than other Value Mode
segments, allowing the LSP to work with specific sections of the community to
develop bespoke approaches to enhance community cohesion.
In relation to the Big Society and the Localism agenda, additional proxy measures
related to cohesion suggest that inline with the regional and national picture,
Blackburn with Darwen also demonstrates limited participation (12.2%) and regular
volunteering (23%) in the local area 7 . It is worth recognising that the notion of ‘Big
Society’ arguably already exists within areas such as Blackburn with Darwen, either
through neighbourly activities or active volunteering as well as through well
established community groups and a thriving community and voluntary sector, which
contribute significantly to enhancing community cohesion in the area. However,
potential funding reductions will impact negatively on the excellent work currently
being delivered.
National media attention involving sensationalised headlines relating to high profile
terror arrest locally, far right activities, and segregation and polarisation, combined
with political discourse on topics such as ‘burkas’ and veils, forced marriages and
sexual exploitation have placed additional pressures on integration and exasperated
6
Community Cohesion for Blackburn with Darwen Borough Council, The Campaign Company with the Leadership
Centre for Local Government (2010)
7
2008 Place Survey
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tensions in the community. Simultaneously the current growth of far right groups such
as the English Defence League attacking the race and in particular the faith of
Muslim residents in Blackburn with Darwen and nationally has accumulated to further
causes for concern to safety and community cohesion issues.
Significant reductions in funding to the area plus total reduction of discretionary
grants to Blackburn with Darwen will potentially bring additional pressures to
community tensions through a feeling of unequal allocation of resources, social
inequality, structural barriers and lack of opportunity for interaction and developing
understanding.
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Section Two – Our Approach
Traditionally LSP partners’ efforts around community cohesion in Blackburn with
Darwen have mainly focussed on race and faith related issues; however, in
developing what community cohesion means within Blackburn with Darwen in the
current context, we have broadened this understanding to include the wider equality
agenda. By this we mean that although cohesion locally will always have a strong
emphasis on breaking down tensions, tackling myths and building relationships within
and between all communities, our approach will also look to extend our efforts to
include equal opportunities and accessibility for a safer and fairer society for all living,
working, studying or visiting the borough.
Over recent years Blackburn with Darwen has had a strong track record of
engagement, understanding and intervention to deliver successful projects and
initiatives to impact positively on the well-being of the borough. The Council, with the
LSP, has defined community cohesion as an integral element and result of broader
place-shaping activity. With a culture of partnership working and joint accountability,
the LSP continues to place a strong emphasis on community engagement; bringing
communities together to develop relationships and discuss common areas of
interests and ambitions. High quality engagement and consultation activities are
therefore common practice in Blackburn with Darwen.
Blackburn with Darwen Legacy
Some of the key initiatives (2004 – 2009) are briefly described below.
The Belonging Campaign emphasised values of citizenship, pride in the Borough
and positive images of different heritage groups through an extensive campaign
using ordinary – and some extraordinary – citizens’ stories. The high-profile
campaign was accompanied by a charter signed by LSP members and community
members
The Meet your Neighbours project is built on the principle of fostering links between
young people from different faith and cultural backgrounds. The projects provided the
ideal environment in which to stimulate open and honest debate and to encourage
participants to explore their views around culture, race and religion. This is vital if we
are to empower young people to make a valuable and sustainable contribution
towards community cohesion.
The 100 Voices initiative heralded a concerted and embedded approach to
community engagement in Blackburn with Darwen; seeking to facilitate positive
debate between residents around common issues of concern (e.g. parallel lives,
single faith schools, the wearing of the veil, how sport can bring people and
communities together, the impact of drugs, and discrimination in the workplace). The
events were celebrated as uniting residents around common areas of interest and
providing a superb platform for future strategy development.
The Neighbourhood Voices events (developed on the notion of ‘100 voices’)
encourage large numbers of residents from different backgrounds to attend events in
their local neighbourhoods to discuss their needs, aspirations and concerns, and
identify actions to help achieve improvements in their area. As well as a key
community engagement mechanism to feed into the neighbourhood area plans and
work of the neighbourhood board’s, Neighbourhood voices is a valuable tool to
promote cohesion within a place shaping activity.
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The People and Communities Forum has four objectives: promoting a sense of
shared futures, emphasising a model of rights and responsibilities; an emphasis on
mutual respect and civility; and delivering visible social justice. In so doing it is
accountable for several LAA targets relating to volunteering, civic participation and
equality, diversity and community cohesion.
The Area Agency Panels are a means of coordinating public service delivery across
the different neighbourhood areas of Blackburn with Darwen (5 areas in total). They
include high-level representation from council officers and other statutory and
voluntary organisations and provide a platform to explore local issues which affect
quality of life and support community cohesion within a place shaping agenda.
The Interfaith Forum brings together statutory and voluntary organisations to
“advance public knowledge and mutual understanding of the teachings, traditions
and practices of the different faith communities in the borough of Blackburn with
Darwen; including an awareness both of their distinctive features and their common
ground and to promote good relations between persons of different faiths”.
Discover Communities (previously known as discover mosques) – a project that
promotes understanding and respect between the largest faiths in the borough.
Children & Young People
The borough has a string track to delivering various activities aimed at developing
relationships and understanding between children and young people from different
backgrounds, faiths and cultures through school twinning work or youth work projects
and residentials, as well as intergenerational events.
12 Point Community Cohesion Action Plan recommending key areas for
development and outcomes to achieve the overarching aims of:
 Better dialogue between all people and communities in the borough;
 Shared understanding within neighbourhoods, and between people and
communities;
 Mutual respect;
 Healthy, safe, prosperous and cohesive neighbourhoods;
The development of five Neighbourhood Boards in the borough was in-part,
reflective of a focus on enhanced community-leadership and capacity-building
around community cohesion efforts.
The Council and the LSP have, for a number of years, been proactive in seeking to
tackle the considerable challenges facing our community around fostering
‘togetherness’ and enhance integration and community cohesion. The borough’s
approach to the issue has constituted a high-profile and nationally emphasis on
engagement and dialogue around the cohesion issue through a concerted series of
engagement events and initiatives discussed above. Our approach has focussed on
cementing a positive and collective vision around the shared, common quality of life
issues and concerns around which communities can be brought together.
Institute of Community Cohesion
Following the development of the Community Cohesion 12 Point Action Plan,
Blackburn with Darwen Borough Council committed to an independent review on
community cohesion by the Institute of Community Cohesion (iCoCo). A core
element of the review centred on interviews with key stakeholders, community
leaders and focus groups with citizens. Findings highlight Blackburn with Darwen’s
proactive stance, expertise and national reputation around cohesion and discuss
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some of the excellent work delivered around community cohesion across the
borough; however iCoCo also identified key areas of improvement including
challenges the borough needs to address together with potential issues we could
face in the future.
The key initiatives mentioned above are consistent with our short term approach to
community cohesion and integration and following the review by the Institute of
Community Cohesion the LSP endorsed a continued approach to deliver
programmes that impact directly on developing a sense of understanding and
togetherness across Blackburn with Darwen.
Our continued investments towards innovative and meaningful projects since the
iCoCo review include:

The Good Relations Programme – concerted investment in community skills
development, leadership and capacity building, and conflict resolution through
the neighbourhood board structures.

Youth 4 Unity – a highly successful Community Cohesion residential bringing
young people together from all the neighbourhoods across the borough.

Living Libraries – the start of a process of breaking down barriers through
sharing individuals’ life-stories, through an initial pilot approach with Unison.

Life Swap – a bold and innovative approach to sharing experiences from
contrasting aspects of the community, through a partnering approach
featuring a 24 hour ‘life swap’. Filming of this pilot has enabled the roll-out of
the life-swap model to other sections of the community and the initiative has
received national recognition.

LSP Equality, Diversity and Community Cohesion Group – integrating
and aligning our approaches to community cohesion with wider equality and
diversity issues, through a re-vamped and revised LSP group and proactive
work programme.
In addition to the short term initiatives deployed to address community cohesion
issues, the LSP has initiated policy development measures that will assist in
addressing longer-term efforts around entrenched structural and social issues.
With such a significant, complex and multi-faceted agenda around community
cohesion, it was important for the Council and the LSP to cross-reference the iCoCo
findings with local perspectives to develop a fit for purpose response locally.
Therefore, the robust consultation process around the development of a 2030 Vision
for Blackburn with Darwen enabled this ‘local fit for purpose test’ to be carried out,
and has contributed to the development of a collective Vision, a medium- long term
approach around equality and cohesion.
Vision 2030
In order to avoid becoming complacent and remain at the forefront of striving towards
a more equal and cohesive society, the LSP committed to a robust exercise to define
an aspirational long-term future for the borough. Vision 2030 has been drawn up with
involvement of residents, neighbourhoods and partners; who considered the history
and development of the place, aspirations of residents, communities and business;
and the global, national and local challenges to provide the aim and the ambition for
Blackburn with Darwen in 20 years time.
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Findings from both the Vision 2030 panel survey and the relevant focus groups
identified community cohesion and integration as one of top five priority issues for the
borough. Findings suggest residents and partners placed a significant emphasis on
continuing to develop a better sense of belonging and community spirit to tackle
issues of separation and polarisation. An important and valuable ambition for Vision
2030 is to have a borough that is more cohesive, with differences put aside for
people to get on with one another and share a cultural identity.
Throughout the research, consultation and engagement with local people, four
fundamental 2030 themes emerged which reflect the needs and aspirations of people
and communities. One of the themes titled ‘connected communities’ is pertinent for
the development of the community cohesion strategy;
“People wanted to see integrated communities that were closer and more connected
than they are, where there was a fair chance for all. Concerns were expressed about
segregation through cultural divisions between Asian and White communities. People
wanted a new identity for the people of Blackburn with Darwen developed from the
cultures of people that live in the Borough.” 8
8
Blackburn with Darwen LSP Vision 2030 Report
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Our consistent strategic approach has therefore been augmented by various
consultation and engagement processes (such as Neighbourhood Voices, the iCoCo
review, and the Vision 2030 consultation) which, when combined with relevant
national guidance, leads us to propose the following four strategic priorities be
embedded across Blackburn with Darwen to mainstream community cohesion within
all LSP activities and services. They build on one of the agreed outcomes; “Increased
Community Cohesion and Resilience”, on the theme of ‘Connectivity’ within the
Borough’s Vision 2030; and we will build a metrics system to allow us to monitor and
evaluate the progress being made in due course.
The research conducted by the Campaigns Company highlighted the importance of
maintaining minimal distance between decision makers (pioneers) and the
community (settlers). Therefore our strategic priorities aim to increase cohesion
between these two groups whilst also continuing to develop cohesion between
community members. The proposed neighbourhoods review aims to further enhance
community engagement; increasing citizenship and opportunities for local residents
to express there views and influence decisions and service provisions.
The proposed new structures across both the LSP and the neighbourhood will also
raise the profile of local leaders and elected members; increasing visibility and
accountability.
Our strategic priorities for community cohesion are:
1. Shared futures and sense of belonging
2. Leadership and community engagement
3. Young and Older people
4. Continuous improvement, review and communication
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Shared futures and sense of belonging
Objectives:

Establish a sense of pride, and a ‘new cultural identity for the residents of the
borough’

Understanding of rights and responsibilities,

Integration of new and existing communities,

Improvement on positive relationships between and within communities,

Pluralistic society for all citizens playing an active role,

People from different background have equal life opportunities and access to
services,

Opportunities for dialogue to help break down barriers and develop better
understanding and mutual respect,

Celebrate diversity,
Rationale:
The aspirations for most participants who engaged in the 2030 Vision research were
associated with bringing different communities together and ending separation within
the borough. The responsibility for integration was identified as being the
community’s willingness for people to integrate and the LSP’s in the form of a
responsibility to distribute resources and services equally across different
communities. Participants expressed the need for people to feel a sense of belonging
to their town and “more pride in the place where they live”.
iCoCo’s suggestion that geographical and educational separation in Blackburn with
Darwen is not only high but increasing and argue this can perpetuate disadvantage,
limit choice and aspirations and create insular communities.
The Commission on Integration and Cohesion 9 found that whilst a large number of
people interacted with others in everyday settings such as the workplace, in schools
or at the shops, these interactions were not translated to meaningful contact. Only
20% of respondents to their MORI poll said that they had daily or weekly contact with
people of other ethnic groups outside of work or school.
Cohesion Taskforce members also acknowledged the concentration of
unemployment, worklessness and limited opportunities for economic growth in the
area, coupled with poor living conditions and the inequality of opportunity and life
chances available to certain sections of the community posed additional threats to
social cohesion.
9
Commission on Integration and Cohesion - Our Shared Future (2007)
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Leadership and community engagement
Objectives:

Strong leadership at a political, organisational and community level,

Civic leadership is developed and leaders work as ‘gateways’,

Local people are empowered to have a greater voice and influence over local
decision making and have a greater role in public service delivery,

Partnership approach across all sectors to actively identify and tackle
inequality and community cohesion issues – narrow the gap,

Equality and cohesion are an integral part of all policies and procedures
across Blackburn with Darwen,

Our community trusts and engages with all local institutions,

Active drive across all sectors to promote community cohesion,

Preparedness to expose and engage in open and honest dialogue about
difficult and challenging issues,

Voluntary, community and faith sector organisations are supported to deliver
cohesion activities in a coordinated way,

Understand and respond positively to change in communities,
Rationale:
Residents who participated in the 2030 Vision research felt that the council listens
but ‘never acts on what people say’ and relationships between the council and
particular communities were seen as negative with a need to be strengthened.
Various other neighbourhood engagement activities locally (Neighbourhood Voices,
Neighbourhood Boards and Area Partnerships) have also expanded on the
aspirations of local people to have a stake in local community’s to shape their
neighbourhoods, influence service provisions and develop a common sense of
purpose through shared activity.
The iCoCo review highlighted the unhealthy separation that exists across the
communities of Blackburn with Darwen. ‘Living parallel lives’ undoubtedly inhibits the
opportunity for interaction to help develop an understanding and respect between
people of different cultures, faiths and backgrounds. In addition, the research by the
Campaign Company discussed the need to narrow the gap between leaders and
decision makers, and the wider community of Blackburn with Darwen.
Historically national policies such as The Strong and Prosperous Communities White
Paper 10 and the Commission on Integration and Cohesion placed a strong emphasis
on empowering citizens and communities to influence services they receive, shape
the neighbourhoods they live in and develop shared values and trusting relationships.
Similarly the current governments ‘Big Society’ initiative and the Localism Bill share a
similar rhetoric around empowerment, civic participation and community engagement
to influence place shaping and local decision making.
10
DCLG: Strong & Prosperous Communities – The Local Government White Paper (2006)
Young and Older people
Objectives:

Fostering positive relationships across and throughout generations,

Provide opportunities through formal education to support community
cohesion – duty on schools and within learning environments to promote
cohesion,

Provide learning environments for all children, young and older people to
reach their full potential,

Provide opportunities for the exchange of skills between young and older
people

Promote cohesion and integration through young people’s voluntary
participation within youth work provisions,

Integrated services to support children and young people’s personal and
social development contributing to better understanding of diverse cultures
and differing ages across the borough,

Continue to raise the aspirations and attainment levels of under achieving
groups of all ages,

Provide positive opportunities at key transitional years of children and young
people’s lives to build confidence from interaction with their peers from
different backgrounds and older people,

Develop an environment for young and older people to feel safe within their
community and across other communities in Blackburn with Darwen.
Rationale:
Some residents who participated in the focus groups for the 2030 Vision research felt
better interaction between Older and Younger People was required to develop
understanding, mitigate community tensions and tackle issues around the feeling of
fear, intimidation and safety. Participants felt there was a real need to enhance and
foster intergenerational relationships.
The iCoCo review similarly identified tensions between the age groups in Blackburn
with Darwen, and suggested the issue is concentrated in certain sections of the area.
Furthermore iCoCo highlighted a number of cohesion and inequality issues
surrounding children and young people in particular, focusing on the increasing level
of separation in both communities and schools, changing population of 0-19 years
and low levels of aspirations and attainment.
The Blackburn with Darwen Children, Young People and Families Plan inline with
Government policies has always contributed to community cohesion, either through
previous key initiatives such as ‘Every Child Matters’ or current priority outcomes;
Keeping children and young people safe; Reducing health inequalities; Helping
children and young people to maximise their educational attainment and potential;
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Mitigating the effects of poverty and improve family wellbeing. The outcomes work to
tackle the wider determinants of cohesion and integration. The Plan also has an
overarching theme of Engagement and Participation, aimed at ensuring young
people’s voices are heard thus providing them with opportunities to play an active
role in society.
The Blackburn with Darwen 50+ Partnership works closely with Children and Young
People’s Services to actively build links with younger people. The partnership has
undertaken intergenerational activities with primary and secondary school pupils in
Darwen and has also worked with young people from local schools to consider
solutions to issues of youth nuisance.
IA/Policy/2010
30
Continuous improvement, review and communication
Objectives:

Ensure information is provided in a consistent manner that best meets the
needs of the all residents of Blackburn with Darwen,

Disseminate information via active PR and Marketing to elected members,
partners and the community that supports a proactive approach to
communication of place and community cohesion,

Actively challenge potentially divisive extremist views & myth busting,
ensuring messages are founded on robust intelligence.

Continue to engage with the local media to help understand and support the
approach to cohesion and integration,

Be transparent with relevant information,

Appropriate research and consultation with residents to better understand
their needs and issues,

Effectively provide information regarding the changing face of Blackburn with
Darwen,
Rationale:
During the 2030 Vision research residents from the older age groups struggled to
articulate their views around cohesion, which in turn gave rise to the use of racist
language in some instances. Residents felt that ‘political correctness’ was one of the
biggest causes of segregation in the borough with people not being aware of how to
dialogue with the council or with different communities. This in turn, it was felt’ led to
a lack of understanding between people from different communities.
The iCoCo review inline with the Commission on Integration and Cohesion
acknowledged the importance of local partnerships to better understand the needs of
their diverse and changing communities and the necessity to share and disseminate
key information to settled communities to tackle false information and myths whilst
also supporting relevant communications targeted towards new communities settling
in the area.
Neighbourhood engagement activities have often identified a level of disconnect and
disengagement between key decision making processes and the wider community A
lack of effective communication and dissemination of relevant information was
highlighted as an issue to meaningful involvement and influence in shaping ‘place’
and services.
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31
Section Three - Policy Development & Delivery Framework
This section of the strategy provides a framework for the development of a long term
integrated strategic approach to the causes of community cohesion issues, as we
seek to foster a better sense of togetherness and fairness in the borough. Building on
the iCoCo review, the LSP launched seven thematic groups (illustrated in the
diagram below) referred to as ‘cohesion taskforces’, which have iteratively
contributed to the LSP’s longer-term strategic approach.
Education,
Skills &
Training
Economy
&
Employment
Health
&
Wellbeing
Executive
Board / LSP
Board
Community
Safety &
Crime
Neighbourhoods
& Communities
Intergenerational
Housing &
Regeneration
The seven thematic taskforces, made up of local ‘experts’ related to the subject
areas to lead on solutions, are analysing research and local knowledge to lead
discussions for sustainable yet innovative approaches to addressing the causes of
community cohesion issues. The advice and recommendations provided by the
taskforces will assist the Executive Board and the Local Strategic Partnership Board
in adopting a firm policy position around each of the key areas of focus.
In the current backdrop of diminishing resources, the recommendations and
ultimately the delivery framework proposed by the taskforces will aim to ‘mainstream’
community cohesion, by that we mean both targeted actions as well as service
delivery will focus on taking account of cohesion at all levels. With limited funding to
support cohesion and integration programmes, mainstreaming in Blackburn with
Darwen refers to building community cohesion into everyday decisions and functions
delivered by the partnership. We envisage this to help develop understanding and
embed cohesion in all core responsibilities without dependency on unique
discretionary grants or specific programmes.
The local plan to tackle concerns will be addressed by each of the taskforces
recommendations, aligned with an interlinked approach across the taskforces to
address cohesion issues at multiple levels and across societal domains.
The following section of the strategy concerning the delivery framework will be
populated throughout 2010/11 and informed by the work of the community cohesion
taskforces.
IA/Policy/2010
32
As the taskforces’ delivery framework develops and the LSP structure takes form,
there may be opportunities for the taskforces to contribute to the work programme of
the LSP’s five thematic groups.
IA/Policy/2010
33
Community Cohesion Taskforce: Education, Skills & Training
Key Areas of focus:
•
•
•
•
•
•
•
•
•
Separation across school community.
Local schools admissions policy.
The role of faith schools in promoting community cohesion.
Low levels attainment and under achievement amongst certain groups of
young people.
The potential role of BSF around community cohesion.
Focus of the 14-19 agenda around community cohesion,
Lack of coherent school twinning programme.
The issue of out-migration of pupils to schools in neighbouring areas.
The role of schools in delivery of the ‘Prevent’ strand of Preventing Violent
Extremism (PVE).
Recommendations:
Taskforce members were clear in their expression of a long-term vision for cohesion
within the borough; with the core of their vision focussing on pupils’ entitlement to live
in a diverse and pluralistic society.
Themes such as the local schools admissions policy, out-migration of pupils to schools
outside Blackburn with Darwen as well as apprehension relating to gender and faith
schools, were also recognised as issues for debate at both a national and local level.
Admissions policies
The taskforce’s ability to overtly put in place measures to address the admissions
policies issue is limited, nevertheless, proactive dialogue and influence of parental
choice and societal attitudes around such issues is recommended.
Out-migration of pupils
A detailed discussion highlighted the issue of out-migration of pupils to schools outside
Blackburn with Darwen. Potential solutions proposed related to the role of BSF in
promoting local schools, and direct marketing of school performance levels in
comparison to schools in neighbouring areas. Such approaches would target the
parents in communities where out-migration may occur, with an emphasis on
engagement approaches to flush out genuine concerns of parents. Such investigation
and qualitative research analysis is required to challenge the myths and perceptions
around migration to develop a better understanding of future actions required to try
and address the issue. In this respect, the group challenges the acceptance of
‘polarised schools’ and ‘white flight’ as a trend, and seeks to sensitively raise the level
of dialogue around such issues.
Shared Vision, Values & Guiding Principles
Promotion of the shared vision, values and guiding principles to promote an integrated
approach to community cohesion within the education sector through, for example, a
local authority-led community cohesion ‘toolkit/guidance’ for schools to promote a
consistent approach which meets Ofsted requirements as well as outlining minimum
standards and fundamental entitlements for pupils, schools and families. It is
envisaged this approach will develop better understanding, share and embed the
IA/Policy/2010
34
excellent practice that exists within Blackburn with Darwen and refocuses activity away
from superficial initiatives to much more sustainable and meaningful interactions
between pupils, teachers and head teachers.
Particular interest was expressed around conducting attitudinal surveys with young
pupils to identify current perceptions of society. In the short term, members felt that
young people’s negative stereotypes could be challenged and understanding
developed, if attitudinal change was monitored and measured amongst a cohort of
young people over an allocated length of time.
Statement of pupil entitlement
To launch a clear statement of pupil entitlement; to be signed by all head teachers and
promoted to all students; cementing pupils’ rights to learning opportunities that
prepares them for a positive and progressive role within a pluralistic society.
Curriculum Development
There is a commitment to establish a robust community cohesion element to the
curriculum of every educational establishment within Blackburn with Darwen; seizing
the opportunity this may hold to develop a wider understanding and a positive learning
experience relating to community cohesion.
Share effective practice
Auditing existing community cohesion activities across the borough in order to both
identify good practice and avoid duplication, and also to provide an opportunity to
develop integrated approaches which pool resources, provide support and share
practice/experiences.
Further develop existing structures
To formalise and enhance support and governance arrangements through existing
structures such as the EIP (Education Improvement Partnership) to embed
commitment to narrow gaps, reduce inequality and foster community cohesion as part
of educational improvement.
Review & Monitoring
Develop a robust monitoring and accountability framework to measure progress
against action plans and work delivery for a coherent and integrated approach across
the education sector and beyond.
Delivery Framework:
In order to take these recommendations forward however, it is acknowledged that a
joint approach to ‘mainstreaming’ of cohesion investment is required, with commitment
from a range of partners.
Taskforce members felt a short to medium term action plan was required to outline a
clear way forward and felt additional resource and support would be necessary to
deliver effectively in combination to policy and service review including reallocation of
resources in some areas could be an appropriate way forward.
It was suggested that a joint approach to resource management was required to
enable the coordination, support and delivery of the initial recommendations, involving
the education sector, the Council’s Families, Health and Well-Being department and
the Connecting Communities Panels. It is envisaged such an approach can build on
the momentum developed by this taskforce process, and would provide a sustainable
future resourcing model involving shared ownership of agendas around community
IA/Policy/2010
35
cohesion, narrowing of gaps and tackling inequality.
Education Sector
Shared ownership
of Community
Cohesion Strategy
with
‘mainstreamed’
investment
Families, Health &
Connecting
Well-Being
Communities Panels
(Council / LSP)
The collaborative model to deliver key priorities identified by the Education, Skills and
Training Cohesion Taskforce would entail key roles and responsibilities to be shared
across relevant sectors and services as discussed below:




Families, Health &
Well-Being
(Council / LSP)
Focus on strategic
coordination, critical
friend challenge and
quality-assurance of
cohesion initiatives in
education, skills and
training sectors.
Embedding
community cohesion
as a service priority,
and reviewing the
level of mainstream
investment to support
community cohesion.
Reallocation of
resources to support
delivery of a small
number of key
priorities.
Dedicated coordinator
role to provide a focal
point for coordination,
monitoring and review
of the action plan.
IA/Policy/2010
Education Sector

Focus on operational
delivery within
institutions.

Pooling of resources
across the education
and learning sector
(from early years to
post 16) to ensure
commitment,
ownership and
consistency in the
delivery of key
initiatives.

Effectively utilise key
structures and
networks to promote
community cohesion
agenda.

Dedicated staffing
resource /
responsibility in each
institution, with a
networked delivery
model sharing good
practice and rollingout impact.
36
Communities/
Neighbourhoods:

Focus on bridging role
between institutions and
the community, with
some delivery of joint
projects.

Neighbourhood
structures to actively
engage schools, parents
within the wider
community.

Neighbourhood
structures to recognise
schools, colleges and
early years centres as a
key asset and resource
to support community
cohesion agenda at a
neighbourhood level.

Specific cross-reference
to community cohesion
activity (in institutions)
as part of
neighbourhood planning
and budget framework.
Community Cohesion Taskforce: Economy & Employment
Potential areas of focus:
•
•
•
•
•
•
Skill levels and aspirations are low in deprived communities,
BME, women and young people under-represented in workforce
Activity rates in Asian population 20% below white population
Almost half the Asian workforce has no qualifications
Separation in business sector e.g. white – construction, BME – retail
Low levels / low paid jobs for BME community
Findings / Recommendations:
PROGRESS TO DATE:
Following the independent review by iCoCo, which came to an end in 2009, the
Executive Board invited the Chief Executives from Enterprise for All and CB Partners
CIC to establish an Economy and Employment Cohesion Taskforce to:



Conduct further analysis and consult widely on relevant ICoCo findings and
recommendations;
Bring local perspectives to bear in helping shape a fit for purpose response;
Bring local context to bear and ultimately advising the Executive Board and
the LSP Executive on appropriate policy positioning and action planning.
Taskforce membership
Chief Executive
Chief Executive
Chief Executive
Chief Executive
Employer Responsiveness Manager
Branch Manager
Personnel Manager
Chief Executive
Chief Executive
Director of Investment and
Infrastructure Services
Managing Partner
Managing Director
Director
Managing Director & Head of
Community Affairs
Managing Director
Chair
Chief Executive
Foyer Manager
IA/Policy/2010
Enterprise for All (Chair)
CB Partners CIC (Vice Chair)
Youth Action
BGlobal
Blackburn College
Adecco
Herbert Parkinson
Graham & Brown
Training 2000
BAE Systems
Taylors Solicitors
MPG
Euro Garages
Blackburn Rovers Community Trust
eBusiness UK
BwD Health Care Trust Plus and
Blackburn College Corporation Board
Bootstrap Enterprises
Blackburn Foyer
37
Taskforce activity
The Chairs agreed to call a meeting and identified a number of local employers and
support organisations to test out the findings highlighted in the iCoCo review. The
meeting would determine the scale and scope of work involved. Members of the
Taskforce were encouraged to challenge the iCoCo findings and identified a
limitation in that iCoCo focused on race and faith and not wider equality and diversity
factors such as gender and disability.
The meeting highlighted a need for us to consult more widely on our initial finding
that Community Cohesion does not appear to be an issue amongst employers in
relation to race and faith however; there is a need to address economic
deprivation. The Taskforce agreed that cohesion can be improved if economic
deprivation is addressed. Looking back a generation, during a time of economic
prosperity, the Taskforce identified that the workforce was mixed and cohesion did
not feature as an issue. Today despite unemployment being high there is an
abundance of examples of mixed workforces. The lack of employment opportunities
may be a factor which negatively impacts on cohesion. By following this line of
inquiry the Taskforce should focus on business and enterprise support to grow
opportunities in order to return to the increase we need in improving the employment
rate of the borough.
The taskforce recognised that we are challenged with raising aspirations on a large
scale as there is a perception that there is a lack of opportunity for individuals.
Approximately 20% of vacancies are now advertised through the Job Centre,
employers prefer to use a range of methods such as Recruitment Agencies, specific
websites such as www.monster.co.uk as well as their own company website. It is
important that employment opportunities are more visible especially for young people
from apprenticeships through to graduates. Where there are vacancies these need
to be promoted.
After further discussion it was decided to undertake a wider consultation with
businesses. An electronic survey has been drafted in consultation with the group
and is being circulated widely through group members and organisations such as the
East Lancashire Chamber of Commerce, Lancashire Education Business Partnership
and Regenerate Pennine Lancashire.
The survey can be accessed at http://www.surveymonkey.com/s/H7MHK82 the
password is cohesion. The survey is timed to close on 31st March 2011. Responses
will be analysed and presented to the group who will then make recommendations for
the LSP to consider.
Taskforce members are clearly committed to a long-term vision for cohesion within
the borough; their vision is focused on promoting businesses and marketing the
borough’s employers. There is a distinct pride amongst the Taskforce businesses
with a strong and positive feeling of belonging to Blackburn with Darwen. This has
not been recognised nor celebrated before as previous initiatives have focussed on
individuals.
Delivery framework
It is anticipated that objectives to realise this vision will be developed at the next
meeting of the taskforce and incorporated into the Local Strategic Partnership’s
cohesion strategy. The objectives will form the basis of a framework with clear
actions and outcomes.
IA/Policy/2010
38
Pending Executive Board and LSP Executive acceptance, it is anticipated that the
Taskforce’s recommendations will be taken forward by some of the new LSP themed
groups over the next financial year. In order to take these recommendations forward
there needs to be a joint approach to mainstreaming of activities with commitment
from a range of partners.
IA/Policy/2010
39
Community Cohesion Taskforce: Intergenerational
Key Areas of focus:
Personal Safety
Transport
Life Style
Finance / Work
opportunities
Education
Lack of
understanding /
knowledge
Life Skills /
Mentoring /
Volunteering
Both older and younger people expressed concerns regarding
their personal safety particularly during evenings and in the
borough’s town centres.
It was felt that the public transport currently being offered in the
borough does not meet the needs of young and older people,
e.g. frequency and routes on offer.
The group feel that more can be done to ensure there are
different entertainment choices in the borough to encourage
more interaction between young and older people.
Both groups believe more needs to be done on providing
flexible work opportunities for both groups. The younger group
felt that they had very few opportunities to gain work based
skills and older people voiced concerns regarding employment
opportunities post retirement. The lack of economic prospects
then impacts the disposable income available to the groups
which has a knock-on effect on aspirations and well-being as
well as making them more susceptible to accumulating debt,
often through unofficial channels. Age discrimination within the
financial services industry, including opening a bank account
was also cited as a problem alongside the complexity of the
current benefits system.
There needs to be more of a variety on offer to attract people
into gaining new skills but also catering for the needs and
wishes of local people.
Trying to overcome the preconceived ideas both groups have
of each other to tackle stereotypes and discrimination.
Providing opportunities for the exchange of skills between the
two groups such as IT skills, digital photography, budgeting and
cooking etc.
Recommendations:
Further in-depth discussions and analysis provided some tangible and proactive
suggestions which can be developed into a medium term work programme. The
following intergenerational taskforce recommendations to community cohesion are both
strategic and outcome focused: Establish a strategic joint approach to media and communications across the
partnership to help influence the local media and joint communication strategies
to promote positive messages about young people, particularly tackling the
perpetuating stereotypes and discriminative messages generated whilst also
actively promoting positive intergenerational activities.
 The use of social media to generate interest in the borough’s town centres.
 Positive marketing of the town centres as a neutral and welcoming ‘place’,
particularly in the evenings to support the night economy and opportunity for
participation in different provisions, contributing also to an increase in the feeling
of personal safety;
 An increase in the use of CCTV and white lighting was recommended as a
method to increase the safety in the town centres after dark;
 Increase in the provision of Wi-Fi hotspots was identified as a means of
encouraging people to visit the town centres and surrounding leisure
establishments;
 A coordinated programme of activities/events needs to be outlined to ensure
continuous and effective engagement and interaction between older and
younger people.
 Intergenerational Life Swap initiative aimed at bringing younger and older people
together over a period of time to share life experiences and share common
interests and concerns (similar to original Life Swap initiative). Producing a DVD
would allow the project and experience to be shared with a wider audience
through established groups (youth clubs, older people’s forum) and institutions
(schools). Furthermore, existing capacity and skills the young people possess
could help support learning and transfer of skills to filming and producing a DVD
of the intergeneration Life Swap;
 The establishment of community engagement forums to provide opportunities for
younger and older people to meet and interact.
 The Youth Zone to play an active role as a catalyst for better services to/from
Blackburn town centre and potential contributor to cohesion activities in the
neighbourhood;
 Building on local work, to establish regular monthly conferences allowing young
and older people to come together for a day – these would have to be young
people and older people who weren’t part of the Forums so that a wider range of
people can be involved. The environment at these conferences should be
informal and personal;
 Encouraging the private businesses/youth work services to pay for the
promotion of the bus service to their venue. The bus companies would receive
free promotion (leaflets/flyers/word of mouth etc) through this initiative. For
example during summer 2009/10 young people were able to travel anywhere in
the borough for a pound. This was to encourage operators to increase services;
 The development of more work based training packages for both older and
younger people especially during the summer;
 Opportunities for transfer of skills for example, allowing young people to teach
IT/Internet/digital photography skills and older people teaching budgeting skills.
 Encourage local stores to take on volunteers / paid workers regardless of any
prior training or experience.
 The provision of more work experience opportunities during school – especially
longer periods (i.e. three weeks) but broken up in three separate one week
IA/Policy/2010
41
periods, or alternatively, a day a week throughout the school year to genuinely
enhance work skills and understanding.
 The use of institutions such as Blackburn College and its facilities as a central
and accessible location to allow younger and older people to share their
experiences of education.
 A further recommendation is to allow skill based education to take place on a
more regular basis so rather than having a one off session where young people
teach older people how to use IT, it becomes a block teaching system (for
example: 6 months, once a week).
Delivery Framework:
Some strategic recommendations outlined above are concerned with embedding
intergenerational cohesion at the LSP level, providing a timely opportunity to actively
incorporate priorities that enhance a sense of understanding and togetherness across
ranging age groups
A number of initiatives discussed relate to operational activities and provide an
opportunity to build on existing mechanisms to add further value to the work across the
partnership and within organisations in promoting social development and cohesion
between and across different generations. Positive working relationships in progress
between community and voluntary organisations, statutory establishments and the local
community can contribute to implementing the recommendations of the taskforce.
A detailed discussion involving key stakeholders needs to take place prior to confirming
key role and responsibilities. However, initial discussions relate to an active role and key
responsibilities of Blackburn with Darwen Young People’s Service and the Community
Network partnership to offer strong leadership within the community and amongst young
people to help drive the agenda and recommendations forward.
IA/Policy/2010
42
Community Cohesion Taskforce: Housing & Regeneration
Key Areas of focus:
•
•
•
•
•
•
•
•
•
The consequences of the housing interventions that have already taken place
and the lessons learnt for the future;
Interventions to help mitigate the effects of existing inequalities around the
boundaries of housing programmes and initiatives;
Affordability & Market Analysis;
Define the role of housing in the cohesion strategy – as a driver, as a barrier
and as part of the solution;
The relationship between community infrastructure and housing; community
capacity around the amenities that augment the housing offer, the ‘welcome’
effect; and ‘big society’ investments / activity;
Link between cohesion and worklessness in the Borough – appropriate
interventions;
Blackburn with Darwen definition of ‘cohesion’ – inspired by the local context;
Choice and suitability - enable people to choose where they want to live and
provide the means to interact positively with the wider community;
The initiatives/activities need to ‘drill-down’ and look at the causation factors
and not just the effects of a ‘weak’ cohesive society;
Recommendations:

.

Develop a sustainable and collaborative Blackburn with Darwen approach and
support package to improve integration, with a specific package of support
offered to young people, particularly through their transient years,
Identify an integrated approach across the partnership (Police, Housing
Associations, Local Authority, Community Networks, etc,) to support wider choice
for families/tenants, particularly BME residents to live outside their comfort zones,

Identify an approach to develop local community infrastructure and promote
social regeneration, by enhancing community capacity and support mechanisms
on a voluntary basis to help address cohesion, integration and support issues.
Potential apparatus for engagement and support could involve community
groups, community associations, and community centres, alternatively ‘Ward
Forums’ could operate as a support mechanism at a micro level (local) and
‘Connected Communities Panels’ at a macro (neighbourhood) level,

Appropriate interventions required to support families to move to larger or
suitable homes,

Increase opportunities to enhance workforce representation through initiatives
such as positive action, to support a better understanding and experience of
housing needs of a diverse community,

Positive publicity and marketing of communities and neighbourhoods to promote
positive messages of an area and raise awareness of the demographics,
volunteering and community/neighbourly activities, to help develop pride and a
sense of belonging to an area,

Utilise social media (Facebook/Twitter) to engage with tenants and the wider
community,

To align the work of the Housing and Cohesion Taskforce (and other Cohesion
Taskforces) to the LSP Equality and Community Cohesion Strategy and therefore
outline relevant action plans, and review and monitoring processes to develop a
coherent and integrated approach across the borough,
Delivery framework:
In order to take these recommendations forward however, it is acknowledged that a
joint approach to ‘mainstreaming’ cohesion is required, with commitment and
potential investment from a range of partners.
Social Housing Sector
(TVH, PfP)
Shared ownership of
Community Cohesion
Strategy with
‘mainstreamed’ investment
Community Infrastructures
Environment,
Neighbourhoods & Housing
department (Council / LSP)
Environment,
Neighbourhoods &
Housing department

Focus on strategic
coordination, critical
friend challenge and
quality-assurance of
cohesion initiatives in
the housing sectors.
IA/Policy/2010





Community Groups,
Community Associations,
Community Centres,
Ward Forums,
Connected Community
Panels,
 Tenants Associations
Social Housing Sector

Focus on operational
delivery within
organisations.

Pooling of resources
across the social
44
Community
Infrastructures

Focus on bridging role
between institutions
and the community,
with some delivery of
joint initiatives.

Embedding
community cohesion
as a service priority,
and reviewing the
level of mainstream
investment to support
community cohesion.

Redistribution of
resources to support
delivery of a small
number of key
priorities.

Dedicated coordinator
role to provide a focal
point for coordination,
monitoring and review
of the action plan.
IA/Policy/2010
housing sector to
ensure commitment,
ownership and
consistency in the
delivery of key
initiatives and support
packages

Community /
neighbourhood
infrastructure to
actively engage with
new and existing
tenants and the wider
community.

Effectively utilise key
structures and
networks to promote
community cohesion
agenda.


Dedicated staffing
resource /
responsibility in each
organisation, with a
networked delivery
model sharing good
practice and rollingout impact.
Community centres
and community
infrastructures to
recognise their role in
actively supporting
new and existing
tenants and
promoting community
cohesion at a local
level,
45
.
In light of the recent neighbourhoods review and structural changes to health and
public sector organisations combined with the subsequent impact on organisations
and services supporting the crime and community safety agenda, we have
postponed the launch of the remaining three taskforces. However, in keeping with
the reiterative approach of a ‘live strategy’, the taskforces outlined below will be
launched imminently.
Community Cohesion Taskforce: Crime & Community Safety
Potential areas of focus









Issues related to extremism and Far Right activity (particularly rise of EDL)
Hate crimes
Community tensions highlighted in the media
General issues identified by tension monitoring at neighbourhood level,
Issues related to young people and cohesion
Tensions regarding PVE agenda and the new PREVENT strategy
Fear of attack and personal safety issues across different sections of the
community
Children and vulnerable adults safeguarding
Incorporate current Community Safety Partnership priorities: Domestic
violence / ASBOs / PREVENT / Road safety.
Findings / Recommendations

To follow.
Delivery Action Plan

To follow pending final recommendations.
Community Cohesion Taskforce: Health, Well-being and Social Care
Potential areas of focus
•
•





Strong links between deprivation and ill-health
Health Inequalities:
- On average health poor in the borough
- On average live 8 years less in BwD compared to affluent areas of UK
- Large GP lists, particularly in BME community
- CVD and diabetes high in BME community
- Children’s tooth decay – one of the worst in the country
Wider determinants of health linked to community cohesion
Community oriented primary care in relation to cohesion
Role of new local NHS in Blackburn with Darwen (GPs + Health & being
board)
Child mortality rates
Equal access to health and social care services
IA/Policy/2010
46


NHS employment: Senior positions profile
Asylum / migration: guidance for GPs around rights of individuals etc
Findings / Recommendations

To follow. Recommendations could potentially be incorporated into ISNA,
Commissioning plans or the H & W-B Board plans.
Delivery Action Plan

To follow pending final recommendations.
Community Cohesion Taskforce: Neighbourhood & Communities
Potential areas of focus






Implementation of the new community engagement model
Neighbourhoods Review to include clear roles and responsibility around
community cohesion
Strong connection between strategic and operational work embedded with
connectivity theme of Vision 2030 priorities.
Exit strategy for Good Relations Programme and future role of community
mediators
Future support for neighbourhood activities to promote community cohesion
PREVENT – develop better community relations to ensure prevention of the
development of extreme views.
Findings / Recommendations

To follow.
Delivery Action Plan

To follow pending final recommendations.
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Resources
Historically, the government since 2007 had supported community cohesion by
funding councils with the Area Base Grant (ABG). £132,600 was allocated to
Blackburn with Darwen Borough Council in April 2010 but withdrawn in year due to
funding cuts we are facing in the current economic climate.
The current fiscal challenge the borough faces creates additional difficulties in
supporting key programmes and initiatives, therefore the agenda to mainstream and
embed community cohesion and equality within all decisions and functions provided
by the strategic partnership is paramount. Realignment of provisions and service
reviews need to ensure conventional grant and standard resources for services are
allocated to support diversity and cohesion at the frontline. In order to overcome the
challenge of limited resources and discretionary grants it is more important now than
ever to ensure repositioning of services and resource investment at the frontline
delivery can continue to contribute significantly to delivering improvements across the
borough. Legacy issues facing Blackburn with Darwen have a risk of becoming
exasperated and heightened if the Partnership fails to respond proactively in
ensuring the limited resources currently available are allocated to best support
progress that meet the strategic priorities for mainstreaming community cohesion.
Community cohesion is an important aspect of ‘place shaping’ and hence needs to
be embedded into the roles and responsibilities of the LSP’s thematic groups. All
organisations across the partnership are required to adopt this strategy to support
robust delivery plans around community cohesion. The role of the policy unit is to
own and oversee the process of strategy development whist maintaining an
overarching coordination and monitoring role that supports the LSP in delivering
against the strategic priorities.
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Section Four – Monitoring & Review
Performance Management
National Indicators
PSA 21 - National Indicators below were traditionally used as diagnostic measures
only, as they are perception indicators that can not be directly impacted upon, but are
useful to measure the current situations and test potential community perceptions:
Indicator
NI1:
Issue
Percentage of people who believe people from different
backgrounds get on well together in their local area
%
61.0
NI2:
Percentage of people who feel that they belong to their
neighbourhood
56.3
NI4:
Percentage of people who feel they can influence decisions in
their locality
29.8
Data from the 2008 Place survey results show that three fifths (61%) of Blackburn
with Darwen residents surveyed believed that people from different backgrounds go
on well together and over a half (56.3%) felt a very or fairly strong belonging to their
neighbourhood. Three out of ten (29.8%) residents felt they could influence decisions
in their local area.
In addition to the perception indicators for cohesion there were other proxy indicators
that measured community participation and perception towards a sense of equality
and togetherness.
Indicator
Issue
%
NI3:
Civic participation in the local area
12.2
NI6:
Participation in regular volunteering
23.0
NI23:
Perception that people in the area do not treat one another
with respect and consideration
36.4
NI140:
Fair treatment by local services
65.3
Just over 1 in 10 residents (12.2%) surveyed said they would like to be more involved
in decisions that affected their local area. Under a quarter of the residents surveyed
(23%) participated in regular volunteering, over a third (36.4%) said people in the
area not treating one another with respect and consideration was a very or fairly big
problem. Two thirds (65.3%) of residents surveyed said they received fair treatment
from local services all or most of the time.
Future measures
Monitoring future performance and progress against the recommendations will be
outlined in due course following the performance measurement outlined as part of
the Vision 2030 process and in particular performance measurements relating
cohesion within the ‘connected’ thematic group.
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Further measurement around community cohesion and integration will be captured at
a local level through a pilot study employing a ‘connected communities’ project. The
pilot study will take place in the Shadsworth and Whitebirk ward and aim to outline
social and organisational network maps of the local area. Connected communities is
as an action research programme will employ ‘social network analysis’ as a means to
understand, plan for and foster the kind of communities residents want to live in and
help gain appreciation for the relationship and connectivity of local residents. A
Residents Survey is due to be established and this will provide information and data
regarding residents’ perception and community participation across the borough.
This strategy will play a pivotal role in mainstreaming community cohesion across the
LSP as a key plank to delivering the Vision 2030 priority of ‘Connected Communities’
and in particular the associated outcome for ‘Increased Community Cohesion and
Resilience’. In due course additional appropriate measures and performance
indicators will be identified to allow the LSP to evaluate progress against the priority
and subsequent outcome.
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Roles and Responsibilities
Taskforces
Taskforces will continue to play a role in monitoring performance and progress within
their respective areas following their recommendations to the LSP and the Executive
Board. The role of the taskforce members will be to provide challenge against limited
progress and help drive the agenda forward.
Overview and Scrutiny Committee
It is proposed that the Policy and Resources scrutiny committee will have oversight
on the broad progress and impact relating to ‘performance and people’ around
equality, diversity and community cohesion. Elected members will be in a position to
challenge and support the monitoring and review of policies and procedures to
improve both services and the well-being of the borough.
Connect Communities Panels & Ward Engagement Forums
Sustained consultation and engagement with residents, through Neighbourhood
boards, to enhance mutual understanding and respect will continue to be a core
principle of our strategic approach.
The role of ward engagement forums and connect community panels in creating the
space for this dialogue is vital, and will be formally supported through the delivery of
this strategy. Furthermore, neighbourhood managers and associated support staff
are ideally placed to project manage community cohesion interventions at the frontline, with community capacity building and positive activities in community /
neighbourhood plans all contributing to community cohesion. Connected Community
Panels and Ward Engagement Forum members will be continually consulted as part
of the iterative review and monitoring of our community cohesion approach across
the borough.
LSP & Partner Organisations
The LSP will maintain an overview of the work programme and receive advice and
support from taskforce members and the ‘Connected’ thematic group to lead and
provide direction in promoting community cohesion and integration across the
borough.
Partner organisations will aim to respond appropriately and support implementation
of the taskforce recommendations and agenda to mainstream community cohesion
through respective planning frameworks. Accountability will be positioned with
members of the connected communities thematic groups including connected
communities panels, ward engagement panels and respective partners and services
identified to deliver on key aspect of the LSP priority and work programme.
Blackburn with Darwen Borough Council Policy Unit
Although the overall ownership of the strategy rests with the LSP, the Equality and
Cohesion Unit within the Policy and Communications department will maintain
oversight and responsibility of the iterative strategy development, along with
integration and alignment of strategic initiatives. The Unit will continue to facilitate the
process around the remaining cohesion taskforces, orchestrating debate and
feedback with the LSP Board, LPSB and Elected Members. In addition the
management, quality assurance and evaluation of key cohesion projects and
programme of activities contributing to the strategies aims will continue remain with
the Councils Equality and Cohesion Unit.
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