2.8 Changes in Rural Policy
Until the 1990s, the rural economy was seen as an agricultural economy. This meant that rural policy was dominated by agricultural, and to a lesser extent forestry, policy. Changing economic conditions facing the farm sector saw the government’s preoccupation with production widening in the 1970s to include economic analysis of agricultural sector trends (Nightingale, 1992). This analysis was extended to include social conditions, although this was still mainly linked to agricultural production (Lloyd, 1974). Although recognition was being given to the totality of the rural economy by the late 1970s (Levett, 1980; Gillies, 1979) it was usually from the perspective of the dependence of the agricultural sector on viable servicing and processing sectors.
The macro-economic reforms introduced in 1985 included trade liberalisation, deregulation of the financial, goods and labour markets, an overhaul of the public sector, and reduction of fiscal debt and the rate of inflation. Regional development programmes which had supported the establishment of manufacturing industries in rural and regional service centres were also abolished. At the same time a process of review and modification of policies providing for rural education, rural health services, housing, transport, postal delivery and telecommunication services, began.
Public sector reform resulted in the centralisation of some services provided by government and the corporatisation or privatisation of others. The restructuring of many services does not appear to have materially reduced the numbers of people from rural areas involved in providing these services, but instead has seen a transfer of the funding of the services from the central government to either the local government sector or community, private and corporate sponsorship. For example, the Department of Health used to control water supply and sewerage systems. These are now a local government responsibility. Irrigation and drainage work, formerly one of the tasks of the Ministry of Works, is now undertaken by private operators. Soil conservation and rivers control were also under the umbrella of the Ministry of Works, and are now the responsibility of Regional Councils. The restructuring of the post office system has meant banking and telecommunications are now privately owned and operated, and mail delivery is partly private, partly under government corporate ownership (as a State Owned Enterprise). While many secondary health services are still funded by the Government, communities have taken over delivery of many services on contract to the government.
Not all of the services have been retained within rural areas or minor urban areas. The loss or potential loss of services and facilities in rural areas and small towns was raised by almost all of the women interviewed for this report. Facilities and services specifically mentioned were local halls/meeting rooms (often formally provided in local government offices now closed), schools "the centres of our community life", banks, health services, shops, and government department depots.
The loss of services was considered to disproportionately affect women, youth and the elderly — the elderly because of their lack of access to private transport and reliance on specific services, youth also because of their dependency on others for transport, and women because responsibility for taking children to schools and facilities tended to fall to them:
| The more services that are lost the more pressure goes on the women. |
The loss of services was seen to be encouraging the depopulation of more remote areas and adding to the financial stresses on rural communities:
| We can’t afford to be having to travel long distances for basic necessities. The importance of rural areas to the rest of New Zealand has to be recognised so they can survive. |
Transport problems were seen as increasing as a consequence of the transfer of many services from rural areas to larger urban centres and the higher level of interaction between town and country for both social and economic reasons. Inadequate telecommunications were mentioned by several Councillors in the North as adding to women’s sense of isolation. Specific problems were phone lines unable to carry the volume of telecommunication traffic (causing engaged signals, ghosting, incomplete transmissions, and frequent breakdowns coupled with delays in getting repairs carried out).
Concern for the impact on agriculture from the relocation of services out of rural, and often minor urban, areas led the farm community (and in particular Women’s Division Federated Farmers) to seek explicit government support to broaden agricultural policy. What was required were policies which ensured rural people (not just those working within the agricultural sector, but rural people in general) had adequate access to basic services. The Ministry of Agriculture was seen as the lead department for matters affecting rural areas and in 1990 MAF began the task of monitoring rural issues and encouraging other government agencies to reflect on their policies and consider their impact on rural communities and the agricultural sector (Pomeroy, 1994; Anderson and Pomeroy, 1994). The establishment of a rural affairs capability within MAF was formalised in 1991.
While the thrust of government support has been to establish the policy framework and economic climate to encourage private sector and community initiatives, several policies aimed at overcoming specific rural impediments rural people have in accessing employment opportunities and health, education, and social services, have been put in place.
In the 1990s the government has increased formal interaction between agencies and consultation with client groups. Government agencies attempt to avoid duplication by working in tandem and sharing information. The process of consultation includes partnerships between rural people, advisory services and central, regional and local government. Unfortunately, the reform of large parts of the government sector at the same time has imposed a burden on those living in rural areas. In addition to new requirements to participate in the management of their local schools and provide feedback on their requirements to health agencies, rural people are expected to provide more of their time and personal finances to the many agencies trying to consult with them. While such consultation is essential to improving policy, the small base population in each rural community compounds the workload especially for key spokespeople and the cost of travel to meetings is rarely reimbursed. In any time of transition many people are confused about the implications of proposed changes, and are fearful that they will be worse off.
The kind of intervention provided by government in the areas of health, education, business and job development, among other things, has changed. Some agencies are attempting to take their services to rural people by running clinics in rural areas or providing a mobile service. There is concern at government level that rural people are not aware of the allowances they are entitled to, or the range of government programmes and policies for rural people (and people generally). Rural women have taken the initiative in gaining the skills needed to manage new structures, to consult with government, and to draw the government’s attention to rural social issues. Women’s Division Federated Farmers (which includes non farming rural women) have been instrumental in bringing rural social issues to the agenda of the Landusers Forum, and in encouraging Federated Farmers to consider health and education matters in addition to the agricultural and agricultural servicing issues usually dealt with. They also act as an important reference group for MAF in bringing the attention of government to specific problems faced by rural people, and in broadening the policy and research focus to include gender issues.
2.9 Summary
Rural women are influenced, directly and indirectly, by changes occurring at a national and global level. Decision makers are now realising that incorporating gender analysis can make a difference to the success or failure of agricultural developments or initiatives. The roles played by women in their communities, and their experiences and knowledge, are therefore increasingly recognised.
The rights of indigenous people are also increasingly recognised. International laws on the ownership and use of resources and intellectual property rights have placed the onus on governments to recognise those rights and endeavour to rectify any historical wrongs. Many physical resources are rurally based, and Maori women have a history of playing a pivotal role in the revival of Maori culture and grassroots movements. Indigenous people’s issues can therefore be expected to have an impact on both Maori and non-Maori rural women.
Sustainable development has been described as meeting the needs of the present without compromising the ability of future generations to provide for themselves. While the concept is not new, sustainable development is now on the international agenda. Women are involved in sustainable development directly and indirectly. In New Zealand the Women’s Division Federated Farmers have been developing a Landcare Scheme in conjunction with two government Ministries. As the bearers of children and buyers of food women can be more directly affected by environmental contamination than men. The work carried out by women in the community is important as strong, sustainable communities have been identified as important to sustainable development. Women therefore need to be represented on decision making bodies at both community and national levels.
The inclusion of agriculture during the latest GATT Round is an international development that should prove important to rural communities. The removal of tariffs and trade incorporated in the GATT will only affect apples, pears and hops. In return New Zealand exports will have access to many major and potential markets. A specific role rural women can play in ensuring GATT benefits accrue to New Zealand is to become involved in company and producer boards. Industry cooperation is vital to New Zealand taking full advantage of the latest Gatt Round. Women have both perspectives and ways of communicating that could prove useful in resolving some of the problems besetting some agricultural sectors.
Within the context of these international developments rural New Zealand has been undergoing rapid change. Farm subsidies have been removed and the agricultural sector has been subject to much internal variation. In general the rural economy is beginning to improve, and land use is increasingly diversified.
The economic changes have been accompanied by social changes. Between 1986 and 1991 rural areas were subject to the loss of many full-time jobs. Subsidies were removed, new technology was introduced, and the meat processing industry needed fewer workers. There has been an increase, however, in the number of rural people working in community servicing industries. Populations have also changed, as rural areas close to tourist attractions or favoured retirement centres have increased, and areas reliant on forestry or pastoral agriculture employment have experienced population losses.
In the past ten years rural people — men and women — have become involved in a greater range of activities. Land is used for more diverse purposes. Farm women are now more likely to be recognised and to refer to themselves as farmers in their own right, rather than as farmers’ wives. Off-farm employment and investments are an increasing source of income. In the 1990s farm women have home, farm, farm business partner, community and paid workforce demands on their time.
Contact for Enquiries
Rural Affairs Coordinator
Sector Performance Policy
MAF Policy
Ministry of Agriculture and Forestry
PO Box 2526
Wellington
NEW ZEALAND
Phone: +64 4 894 0675
Fax: +64 4 4 894 0745
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