9 - Policy Implications
There is a wealth of information in the studies reviewed. Summarising and recording references in this study helps make this information more available for other work, as does a detailed contents listing.
It is apparent from reviewing these reports that the very process of doing the research can be valuable development tool for the local community. Benefits include people feeling that they have an opportunity to influence policy and provide a picture of how it is "to walk in their shoes"; provoking consideration of issues that are important but require thinking beyond the day to day of normal activity; and providing contact with researchers who have assisted in facilitation-type activities such as identifying, clarifying, and summarising common issues. Several of the projects include some form of feedback where preliminary findings were reported back to community representatives and the feedback incorporated in the final reports (A, C, D, S3a, S5, S9). This type of research is described as "participatory methodology", where both the researchers and the research subjects contribute as partners in the research process (C, p12). This appears to be an effective way to undertake social research as it provides additional benefit to the research subjects. For example, the succession case study report provided an opportunity to discuss succession and have some figures worked through, which was sufficient motivation to attract the case study farmers (S2a, p78). Similarly, farmers involved in alternative enterprises study found the meetings valuable to their businesses (S3, p91), and the Roxburgh/Teviot community started to consider future strategies (C, p72).
It would be valuable to make the studies results more accessible. Despite increasing computer use, the written word still prevails. Trade journals and other written sources are the most popular means for farmers to obtain information. Discussion of such results in focus farm or monitor farm projects could also be a useful dissemination method. Providing "popular summaries" in trade journals and/or the Rural Bulletin may be effective in getting the report findings to a wide section of relevant people and organisations.
A decline in services appears to be self-perpetuating. Whether the decline is actual or perceived, it results in outward migration and service decline (C, p70). This could justify collecting and disseminating accurate time-series based indicators of issues like access to services. Countering cynicism about political "spin" is another reason to consider compiling such time series data. The Clutha Study (S9, Section 16, p113) outlined potential indicators.
There are elements of good news in the reports reviewed which provide examples for other communities to consider adopting or adapting. However, as stated in one of the reports, the affected communities feel they "cannot be expected to carry the full responsibility for assessing and implementing appropriate responses to their situation when many conditions and changes are perpetuated by trends and decisions taken well beyond the study area." (C, p71).
The Tuatapere study indicated that there is a leveraging effect of paid community workers. These workers were described as "adding capacity to cope with the demands of voluntary work and they also initiate positive outcomes that will slow down to turn around some of the effects of economic downturn." (D, p28). The relative strength of Maori organisations is partially attributed to being "able to access valuable information and other resources with the support of the local community worker of the time." The use of the past tense, however, implies that the organisations have continued to function effectively beyond the period for which they had the support of the community worker. The REAP study also indicated a significant contribution of the REAP programmes in their local areas (Anderson, 1997).
MAF was asked to "communicate to researched communities what departmental and policy responses and actions have been taken as a result of the research." And "to recognise that the New Zealand economy benefits from the social and economic work of rural economies through domestic productivity and export earnings, government agencies should pursue opportunities for government-community partnerships that can increase the ability of rural communities to respond to change with initiative and appropriate resources." (C, p72). It is apparent that these communities want their efforts acknowledged and want "support" to help themselves.
Fragmentation of government services is an issue mentioned in several of the reports, together with the demands of increased "community based governance" which are harder to share among a small population. Some of the access to information about government services is being addressed by recent moves such as the phone book "blue pages", toll-free phone numbers and help desks to government agencies, and information provided in the Rural Bulletin and websites.
However, increased community-based governance also increases fragmentation as there is a proliferation of service delivery agencies. Diverse agencies may be delivering services funded in part or whole from central government but with limited resources to promote their services, as well as delivering them, or limited ability to meet any additional demand initiated by wider promotion. For example, in the Rangitikei study, the need to promote services such as provided by REAP, the Agricultural ITO, Skill Start and training programmes for unemployed workers co-ordinated from Wanganui is identified (A, p43).
Community-based governance has also become confused with "underfunding" and bureaucracy. Continuing programmes to make government information more accessible is important such as the "Government in Reach" programme (A, p68).
Consideration of further leadership training (that would benefit both men and women), community workers and business networking support within rural communities also appears justified.
The fundamental change in farm employment from full-time staff to a mixture of contractors and seasonal workers has important implications. For example, seasonal work is not continuous so workers are likely to have recurring periods of unemployment or under-employment and will likely seek income support from government on a seasonal or intermittent basis.
Movement of casual workers to different districts affects delivery of services such as education, housing and health programmes and general community stability. In Roxburgh, substantial support for itinerant workers is described as important because significant numbers of these people have limited resources and run out of money when rain prevents work (C, p91).
Transition to and from Income Support and motivation to undertake seasonal work are issues that need addressing. For example, in the Roxburgh study, a couple on Income Support (unemployment benefit) with young children did not mention undertaking any seasonal work (C, p63) even though this was an option. Conversely, a local superannuitant (in her late 60s) undertook seasonal work to top up her government superannuation (C, p66).
For farmers, and the increasing number of self-employed contractors, there are implications for the uptake of government policies such as sustainable agriculture, ACC, eligibility for the Community Services Card, and education. For example, the authors understand that training through the Agricultural ITO is directed at employed farm workers who are a declining group, particularly in pastoral farming. A study into the eligibility of horticultural producers for the Community Services Card found that most would only be eligible in the year after they received the low income (Underwood, 1992).
The significance of travel time to services and of unpaid work is an issue for rural communities.
Compliance costs are also significant for very small businesses of one or two people.
Public recognition of the three aspects of voluntary input would be well received. These are: the substantial input made by many rural New Zealanders; the constraints on undertaking further voluntary work; and the contribution that voluntary inputs make to the economy. Mechanisms to reduce the demand on voluntary services, such as combined administration, should be investigated.
Farmers often are not aware of the extent of policy analysis being done on issues of great concern to them such as the effect of logging traffic on rural roads. More consideration of effective tools for improving communication, and participation in policy development would be welcomed.
The effects of policy decisions on farming are cumulative, and many of the social effects are incremental. Some communities feel they are at "breaking point". Further development of time use survey data should be carried out by agencies with interests in the health of rural New Zealand. Sheep and beef sector communities are most at risk.
Generating community support for initiatives is a key to harnessing the considerable efforts farming communities will expend voluntarily. Thus the education/incentives/evolution approach should be considered a first option. This approach would, for example, give communities the option to evaluate trade-offs such as facilities versus travel time for any school or club amalgamations.
Other issues for farmers include how to analyse or obtain sufficient data outside the main commodity groupings, and how best to keep abreast of trends and issues. As production and labour data shows, trends can change dramatically in relatively short time-frames.
The environmental aspect of sustainable agriculture is a low priority in tough times unless it is coupled with other more immediately tangible benefits. This has implications for sustainable agriculture programmes. Sustainability initiatives in other farming countries tend to be at least partially government funded. This adds to farmers' disillusionment about the lack of a "level playing field" in trade.
Causes for farmer optimism are lacking. Climatic conditions, product prices and trade barriers all limit farmer optimism. Although lower interest rates and low inflation are beneficial, they do not fully offset these other challenges.
These reports suggest farmers need more acknowledgement of their difficulties by decision makers. The 'social science' listening skills may be a useful tool.
The influence of government and community actions on the welfare of farmers is ever-present. In order to maintain a viable sustainable farming community, there must be careful consideration of the impact on farmers. Farmers perceive that they are in a vulnerable position. The impact of policy changes can be significant and sustained, particularly with regard to basic services such as education, health and roading.
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