The Impact of Discourses of Authenticity on the Development and Application of Statutory Definitions of Gypsies and Travellers; A Study of their Legal Access to Accommodation in England and Wales since 1959 SIMON MARK RUSTON A thesis submitted in partial fulfilment of the requirements of the University of the West of England, Bristol for the degree Doctor of Philosophy Faculty of Environment and Technology, University of the West of England, Bristol September 2013 The Impact of Discourses of Authenticity on the Development and Application of Statutory Definitions of Gypsies and Travellers; A Study of their Legal Access to Accommodation in England and Wales since 1959 Abstract The research investigates the impact of discourses of authenticity on the development and application of statutory definitions of Gypsies and Travellers in England and Wales since 1959, and the subsequent consequences for access to accommodation for these communities. These definitions are concerned with land use, equalities, housing, and homelessness legislation. The basis of these definitions is found in statute and policy and decision makers ranging from local authorities through to the European Court of Human Rights (ECtHR) are responsible for their development and application. Each of these definitions has different consequences with regard to access to accommodation. The research examines a chronological analytical narrative of the development and application of these definitions over a 53 year period, which consists of an examination of relevant case law, policy, law and other useful sources. Interviews with key informants involved in the development and application of statutory definitions serve to reinforce the interpretation of the evidence. The evidence is assessed using the notions of discourses of authenticity, which are constructed as the discourse regarding the authenticity of an individual or group as Gypsies or Travellers as prescribed by other individuals, groups or institutions and the implications of this ascription. There has not been a comprehensive analysis of the relationship between the discourse around the authenticity of Gypsies and Travellers and statutory definitions in modern times. This research bridges the gap in the existing literature by undertaking a comprehensive analysis of the development, application and consequences of statutory definitions in the light of the existing knowledge on discourses of authenticity with regard to Gypsies and Travellers. Simon Ruston – PhD thesis Page 1 The Impact of Discourses of Authenticity on the Development and Application of Statutory Definitions of Gypsies and Travellers; A Study of their Legal Access to Accommodation in England and Wales since 1959 Acknowledgments First, special thanks must go to my director of studies and supervisor, Professor Katie Williams and Dr. Avril Madrell who have assisted me greatly. In particular, I am grateful for their help in achieving far greater precision in my writing. Their support and guidance has been greatly appreciated. Second, appreciation is shown for all those who took time to be interviewed: Stephen Cottle, Chris Johnson, Helen Jones, Tim Jones, Robbie McVeigh, David Watkinson and Marc Willers. All these individuals have busy schedules so the time offered to me is greatly appreciated. Special thanks in particular to Stephen Cottle for the donation of a significant collection of case bundles and to Chris Johnson who has assisted me for a number of years in a variety of different ways. Third, there are a number of other individuals to whom I would like to show appreciation. Professor Thomas Acton, who was kind enough to let me go through an extensive archive to find some particularly obscure documents, which formed a significant amount of the early evidence in the research period. Sharon Baxter and Parminder Singh at Community Law Partnership who have assisted me on particular cases. Dr. Zoe James and Dr. Jo Richardson have both provided specialist Gypsy and Traveller academic input. Dr. Angus Murdoch, who has spent time with me discussing the relevant case law and was instrumental in unlocking certain points. Karon Monaghan for being kind enough to dig out the O’Leary transcript (seemingly the only one in existence). Siobhan Spencer MBE and Tom McCready who took the time to discuss the definitions from a Romani perspective. Richard Spalding for much valued assistance and encouragement over the last ten years. Alison Heine for specialist assistance with Gypsy and Traveller planning matters. Hannah Parry for the assistance in design and print. Alfie and Amy Bird for accommodating me for two months whilst writing up. Billy Clayton for PhD and computing expertise. Finally, special thanks to Maggie Smith Bendell BEM for her ongoing support of my work. Simon Ruston – PhD thesis Page 2 The Impact of Discourses of Authenticity on the Development and Application of Statutory Definitions of Gypsies and Travellers; A Study of their Legal Access to Accommodation in England and Wales since 1959 Contents Abstract ......................................................................................................................... 1 Acknowledgments .......................................................................................................... 2 Glossary ....................................................................................................................... 10 Chapter 1 - Discourses of authenticity and statutory definitions of Gypsies and Travellers .......................................................................................................... 11 1.1 Introduction: the purpose of the research ................................................................ 11 1.1.1 Gypsies and Travellers ............................................................................................ 11 1.1.2 Discourses of authenticity ...................................................................................... 12 1.1.3 Statutory definitions, their development, application and consequences for access to accommodation for Gypsies and Travellers ....................................................... 12 1.2 The research objectives ............................................................................................. 13 1.3 The rationale for research ......................................................................................... 14 1.4 Geographical and time constraints of the research .................................................. 14 1.5 Structure of the thesis ............................................................................................... 15 Chapter 2 - Gypsies and Travellers in England and Wales, inequalities they encounter and points of interaction with the state with regard to legal access to accommodation ................................................................................................ 17 2.1 Different communities of Gypsies and Travellers in England and Wales .................. 17 2.1.1 Note on statistics .................................................................................................... 17 2.1.2 Romani Gypsies ...................................................................................................... 18 2.1.3 Irish Travellers ........................................................................................................ 19 2.1.4 New Travellers ........................................................................................................ 19 2.1.5 The use for the word ‘gypsy’ .................................................................................. 21 2.2 Inequalities, including access to accommodation ..................................................... 21 2.2.1 Legal access to accommodation ............................................................................. 22 2.2.2 Substantive equality ............................................................................................... 24 2.2.3 Race and planning literature .................................................................................. 25 2.3 Points of interaction with the state ........................................................................... 25 2.3.1 Statute, regulations, policy and guidance ............................................................... 26 2.3.2 The courts ............................................................................................................... 26 2.3.3 Judicial review ......................................................................................................... 28 2.4 Conclusion ................................................................................................................. 29 Chapter 3 - Theoretical framework – Discourses of Authenticity ................................ 31 3.1 Power, control, discourse and Gypsies and Travellers .............................................. 31 3.1.1 Power, control and gaze ......................................................................................... 31 3.1.2 Foucault’s conception of discourse ........................................................................ 34 3.1.3 The legal and policy discourse around the authenticity of Gypsies and Travellers 34 3.2 The historical relevance of discourses of authenticity in the context of Gypsies and Travellers ............................................................................................................................ 35 Simon Ruston – PhD thesis Page 3