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Creating places for everyone

Creating places for everyone: Supporting place-based and community-led racial justice

You can’t have social justice without racial justice. Places can only thrive when every group within them thrives. 

This report and action plan explain how social infrastructure created by and for racialised communities is crucial for this. As are strong, representative, and inclusive community “anchor” organisations that bring groups together within their neighbourhoods.

Our action plan sets out how we will put this into practice, building our developing organisational commitment to anti-racism into a clear, practical support offer for our members, spanning the full range of our organisational activity. 

Supported by Esmée Fairbairn Foundation.

A table of people chatting in a cafe

Overview

This report clarifies our principled stance, that you can’t have social justice without racial justice and that places can only thrive when every group within them thrives. It explains how social infrastructure created by and for racialised communities is crucial for this. As are strong, representative, and inclusive community “anchor” organisations that bring groups together within their neighbourhoods.

We cannot achieve Locality’s organisational vision of a fair society where every community thrives without understanding the structural inequities that stand in the way and actively seeking to dismantle them. As a research report and action plan, “Creating Places for Everyone: Supporting place-based and community-led racial justice” therefore represents a line in the sand for Locality.

Our action plan sets out how we will put this principle into practice, building our developing organisational commitment to anti-racism into a clear, practical support offer for our members, spanning the full range of our organisational activity.

Tony Armstrong, Chief Executive at Locality, reflects on why we wrote the Creating Places for Everyone report and action plan.

Through 18 months of close working with Locality members and partners, we have explored the relationship between place-based community organisations and racial justice through five research themes:

  1. Inequalities in public service provision, highlight “cycles of exclusion” where public services fail to adequately identify and meet the needs of racialised communities. Community organisations play an essential role in addressing these stubborn inequalities, either filling gaps themselves or partnering with the public sector to shape more equitable provision.
     
  2. Meeting diverse community needs, exploring how community organisations often provide services which are universal and open to all, but can inadvertently reinforce inequalities. More targeted services that proactively tailor support for specific racialised groups can be necessary to avoid exclusion.
     
  3. Inequalities in funding, reinforcing the well-established picture that while all VCSE organisations struggle to secure adequate funding, embedded systemic racism means this is particularly acute for organisations led by and for people from racialised communities.
     
  4. Allyship among community organisations, understanding that racial justice can’t just be seen as the preserve of community organisations led by and for people from racialised communities. There is a crucial role for the multipurpose community organisations that make up the bulk of the Locality membership, most of whom have predominantly white leadership teams. This includes embedding anti-racism in their own activities as well as providing wider allyship.
     
  5. Connection, understanding, and belonging within places emerged as a growing concern across our research, with a rise in community tensions around the country. Community organisations are uniquely placed to both tackle racial inequalities and bring people together, but lack support as they increasingly find themselves in the eye of societal storms.

Beth Wilson, Chief Executive Officer at Wellspring Settlement; Sobia Malik, Chief Officer at Northern Community Network Ltd; Soye Briggs, Chief Operating Officer at The Winch; and Tony Armstrong, Chief Executive at Locality, reflect on how they helped develop the Creating Places for Everyone report and action plan.

Building on these insights, we have developed a broad typology of the Locality membership. While not intended to be neat or definitive, it has helped us shape our support offer so that it is relevant to organisations working in different contexts: 

  1. Community organisations led by and for racialised groups
    These are community organisations that are set up to support a particular racialised community within a place. Their work will often have developed beyond this foundational purpose, but they can be described as being led by and working in a place-based way for that specific community.
     
  2. Multipurpose community organisations working in diverse neighbourhoods
    These are generalist community organisations which are set up for and focused on supporting place-based communities, who are working in neighbourhoods that are ethnically diverse or home to a predominantly racialised population. 
     
  3. Multipurpose community organisations working in predominantly white British neighbourhoods
    These are generalist community organisations that are set up for and focused on supporting place-based communities, who are working in neighbourhoods with a high proportion of white British residents. 

We are developing an organisation-wide response to what we have learnt across the Creating Places for Everyone project, starting with:

  • Our renewed membership charter. To join Locality, we ask members to agree to a set of values and commit to our vision of a fair society where every community thrives. In line with this report, we have redeveloped this to make clear that an explicit and foundational principle of our network is that social justice is racial justice. This is something that all new members and existing members will be asked to re-commit to.
     
  • The Creating Places for Everyone Programme demonstrates Locality’s support offer tailored across our three-part typology of community organisations. The areas of support include:
    • Direct support and advice
    • Membership network for connection
    • Tools and resources
    • Influencing and campaigns
       
  • Three online specialist peer networking groups for Locality members with the Essentials or Membership. Meetings will begin online in May 2026.
    • Leaders of Colour Group for leaders of community organisations who identify as people of colour.
      • This group, established in response to Locality's No More Blank Pages report in 2021, is an existing peer networking group. Locality will continue to resource this group and adapt it to evolving needs, to ensure leaders of colour have a safe and supportive space, rooted in empathy, trust and empowerment, which can help equip them with tools and strategies to address leadership challenges. 
         
    • Embedding Anti-Racism Group for generalist community organisations set up for and focused on supporting place-based communities, working in ethnically diverse – and often predominantly racialised – neighbourhoods.
      • This new group is targeted at supporting multipurpose community organisations to develop their anti-racist “lens”. Group meetings will provide opportunities to share good practice and discuss shared challenges. They will focus on understanding specific experiences of making the shift from a generalist position of social justice to a proactive anti-racist stance, and what it looks like to use anti-racism as a lens to shape community organisations’ activities.  
         
    • Building Bridges Group for generalist community organisations set up for and focused on supporting place-based communities, working in majority white British neighbourhoods. 
      • This new peer learning group is targeted at multipurpose community organisations working in majority white British neighbourhoods and at the sharp end of some of the most toxic debates our country is experiencing. This will be a safe space to learn and unlearn, building strength and solidarity to build inclusion in places which are increasingly being defined by division and to create allyship with wider racial justice movements. 

Ed Wallis, Director of Policy and Engagement at Locality, discusses the creation of our Creating Places for Everyone report and action plan.

Creating Places for Everyone is based on in-depth research with Locality members across the country, supported by expert partners. 

This includes: 

  • A Steering Group of people from racialised communities working for Locality members across England, who shaped the research and ensured lived experience of racial discrimination was at the heart of the project.  
  • Expert support from New Ways – an anti-racist behaviour change consultancy – who acted as a critical friend throughout, providing training and helping facilitate the research activities, as well as supporting analysis and insight development.  
     
  • Interviews with 15 Locality members, representing a broad range of organisation types, in different contexts and at different stages in their racial justice journey.  
     
  • Deep-dive case study research with four of these members in different places.
    • Back on the Map – a community anchor organisation in Hendon, Sunderland, that grew out of the last Labour government’s “New Deal for Communities” programme. It has since evolved into a trusted local institution providing vital spaces and services for the community. 
       
    • Halifax Opportunities Trust – a community anchor organisation serving the culturally diverse Park ward of Halifax and the wider borough of Calderdale. Its services include employment, training, enterprise, wellbeing, and integration-focused language, citizenship, and skills programmes.  
       
    • Northern Community Network Ltd – a community organisation serving the South Asian community in the Daneshouse and Stonyholme area of Burnley through advice, education, health,  and other services.
       
    • The Winch – a local youth charity and community anchor organisation in north Camden, London, working with children, young people, and their families from diverse backgrounds to tackle the systemic challenges they face.  
       
  • Facilitated peer-networking, to bring our four deep-dive case study organisations together to learn from each other.

Creating Places for Everyone Programme

We address the challenges presented in each of the themes from our research by harnessing the breadth of what we do – from strategic leadership and policy influencing, to practical support and programmes – in support of racial justice. It tries to think precisely about optimising our impact – what our specific role is in supporting our different types of members, and where we can make best use of our resources to do so.

The support offer is informed by three principles: 

  1. The importance of strategic headspace to enable a culture of anti-racism 
    Community organisations are operating in conditions of “permacrisis”. Support needs to provide the capacity to innovate, stepping away from day-to-day delivery pressures to develop leadership in anti-racism.
     
  2. Using racial justice as a lens through which we see community development work 
    Anti-racism for place-based community organisations does not mean developing a new set of services or approaches. The broad range of activities is the same – what needs to change is the stance we take when designing and delivering them.  
     
  3. We need to do different things to support different members in different ways 
    Locality’s strategic framework organises our activity across four different areas: direct support and advice; membership network for connection; tools and resources; influencing and campaigns. Across our typology, different parts of this offer will be relevant in different ways, and the role we play will vary.

We recognise that, as a national infrastructure organisation, we are in a position of relative power and privilege. We have resources we can deploy in support of the goals we have defined in Creating Places for Everyone. However, those resources are finite, and some of what we want to do sits outside of what we can do within our existing projects and budgets.

This outlines the broad areas of support, recognising that this is not a fixed typology and there will be overlapping support needs for organisations across the areas. 

 Direct support and advice 
(finding external funds to do)
Membership network for connection 
(using our own existing resources)
 Tools and resources 
(using our own existing resources)
Influencing and campaigns
(using our own existing resources)
Community organisations led by and for racialised groups

Working in collaboration and resourcing as expert partners on Locality’s membership-wide anti-racism support programmes

Targeted practical support for operational areas of historic exclusion e.g. community assets, commissioning, access to grants  

Providing access to peer support from fellow leaders from racialised communities Targeted resources for operational areas of historic exclusion eg community assets, commissioning, access to grants  

Using our national platform and relationships with policymakers and funders to dismantle systems of exclusion, in particular, creating more equitable funding systems

Providing a platform and raising profile with decision makers

Showcasing impact and value through policy work and a dedicated communications campaign

Multipurpose community organisations working in diverse neighbourhoodsTargeted programme of support to embed anti-racism in operations, from governance to services to partnershipsProviding access to peer learning from leading community anchors developing anti-racist practiceWebinars and toolkits on how to embed anti-racism in operationsShowcasing good anti-racist practice and the importance of inclusive community anchors in policy work, via a communications campaign
Multipurpose community organisations working in predominately white British neighbourhoodsTargeted programme of support to build inclusion and bridge divides, building capacity and capability to work across racial and cultural lines and embed inclusion in increasingly hostile conditions Providing access to peer learning to share challenges and build collective strength Webinars and toolkits on bridge building, community cohesion and anti-racismProducing a policy evidence report on community organisations’ bridge-building role to inform policy debates and ensure community organisations are central to any government cohesion strategy.  

Case studies

  • Shantona: Breaking the cycle: supporting Bangladeshi women experiencing domestic violence and abuse

    Shantona, based in Leeds, was established in the late 1990s by local women seeking a safe, independent space to support their community. 

    The organisation provides culturally tailored services for women from a range of ethnic and cultural backgrounds, including refugees and asylum seekers. Shantona addresses domestic violence and abuse, mental health and wellbeing, child sexual exploitation, and advocates to help clients access mainstream services. 

    The organisation engages in preventative work, supports women through the criminal justice system, and works in partnership with other local and national organisations to promote gender equality. 

    Shantona collaborated with their local council to improve understanding of domestic violence and abuse within the Bangladeshi community. Mainstream services had previously underestimated the scale of the issue and, in many cases, were unaware it existed.

    Cultural taboos, stigma, and religious misconceptions mean that women in the community are often less likely to report abuse, leaving gaps in service provision. To address this, the organisation collected data, stories, and case studies directly from the community to evidence the need for targeted, culturally competent support.

    As a result of these efforts, the council recognised the gap and concluded that existing services were unlikely to adequately meet the needs of Bangladeshi women experiencing abuse. They explored options and decided to roll out a specialist service, leading to Shantona securing funding to deliver this work.

    Through the service, staff work closely with women and girls to explore and challenge religious interpretations and feelings of shame surrounding domestic violence and abuse, empowering them to seek support and assert their rights. Co-production and community engagement ensure the service is shaped by the experiences of the women it supports. 

    This case demonstrates how organisations like Shantona can fill critical gaps in public provision, advocate for systemic change, and ensure the needs of specific communities are recognised and addressed. By combining culturally sensitive practice with partnership and advocacy, Shantona shows the impact of local expertise in breaking cycles of exclusion and supporting vulnerable women.

  • Sähëlï Hub: Targeted services to address racial inequalities in physical activity

    In a diverse urban area such as Birmingham, health inequalities have remained largely unchanged for nearly two decades. 

    Local physical-activity services, while officially open to everyone, have often been designed with a narrow user group in mind –  typically men – making them less accessible to many women from racialised communities.

    Community organisation Sähëlï Hub identified a clear gap in provision for South Asian and Muslim women, particularly those of Pakistani heritage, who were among the least likely to participate in physical activity. 

    Mainstream gyms and classes were largely mixed-gender, which many women found unsuitable due to cultural or religious beliefs. As a result, women who could benefit most –  particularly those living with or at risk of long-term health conditions such as diabetes, cardiovascular disease, or musculoskeletal issues – were effectively excluded from services intended to be universal. 

    Sähëlï Hub responded by engaging directly with women in the community, listening carefully to their needs, preferences, and wider life circumstances. These conversations highlighted that women-only sessions were essential to enable participation and support women to build confidence in managing their physical health. 

    In response, the organisation developed women-only physical-activity sessions, including aerobics, Zumba, walking, cycling, swimming, and multisport classes. These activities are designed not only to improve physical and mental wellbeing and support the prevention and management of long-term health conditions, but also to help women establish routines, reduce social isolation, and increase confidence to engage more fully in family, community and public life.

    Sessions are delivered at Sähëlï Hub in Balsall Heath and in other local community venues, creating familiar and accessible spaces.  Instructors are recruited, supported and trained from within the communities being served, ensuring cultural understanding,  building trust, and enabling participants to feel safe discussing health needs and limitations related to long-term conditions. 

    The impact has been significant. Participation increased, and women reported greater confidence, motivation, and improved ability to manage their health through regular physical activity. Many also described wider benefits, including stronger social networks, improved mental wellbeing, increased independence,  and greater readiness to pursue learning,  volunteering or employment opportunities. The sessions created opportunities for women from different ethnic and cultural backgrounds to meet and interact, fostering social bonds, community cohesion, and supporting integration. 

    Sähëlï Hub treats these targeted sessions not as an alternative to universal provision, but as a first step. Some women, once confident in these tailored settings, go on to participate in mixed-gender or wider community activities, training, and even employment – a “stepping stone” approach to inclusion. This demonstrates how adopting a targeted approach can help secure more equitable outcomes for all groups.

  • Navigating funding inequalities in a marginalised community

    One of the organisations participating in our research reported that their ability to serve their communities has been severely constrained by a lack of funding and support from key partners, particularly the local council. 

    Founded to support South Asian migrants, this small community organisation has long helped clients navigate the complex landscape of public services and understand their rights.

    Originally a grassroots network, it developed expertise in welfare and immigration advice, becoming a trusted source of support for disadvantaged communities. Today, it continues to serve a diverse neighbourhood with a majority Asian population, one of the most deprived wards in the town, facing complex disadvantages such as health inequalities, poverty, and limited access to quality public services. 

    Despite its critical role, the organisation has repeatedly struggled with a lack of funding and support. Operating with only one paid staff member, it faces the constant challenge of trying to meet community needs on a shoestring budget. 

    At times, the organisation had sufficient funding to expand its services, allowing them to support a wider range of residents, including an increasing number of Eastern European families. However, when those funding streams ended, staff and capacity were lost, leaving the organisation unable to fully deliver its services. 

    While the organisation has received support from the National Lottery Community Fund, which has been helpful, there remains a long-term absence of core funding, preventing sustainable planning and expansion. 

    The organisation’s attempts to advocate for resources have often been met with frustration. Despite demonstrating high levels of need, including stark local health inequalities, council engagement has been limited, reflecting a broader lack of political will to understand and respond to the realities of racialised communities.

    On rare occasions when the organisation successfully secured additional funding for their community, they faced active opposition from some within the council, illustrating the systemic barriers they must overcome. 

    They highlight a culture of gatekeeping with links based on preferred partners rather than merit. Funding allocated to local groups often bypasses this organisation in favour of established providers who lack deep engagement with their community, leaving the neighbourhood under-resourced. 

    Through persistent advocacy and campaigning, the organisation is beginning to gain traction with local partners. An NHS advisory group has been established to address racial inequalities, and the ward has been designated a priority area with increased engagement from local partners. 

    Despite these developments, the organisation’s small team continues to face burnout and emotional exhaustion, constantly going the extra mile to support residents without sufficient resources to expand their workforce. 

    Their experience highlights both the human cost of funding inequalities and the critical need for long-term, core funding and genuine engagement from public sector partners to deliver meaningful change in marginalised communities.

  • Back on the Map: Embedding racial justice in a community anchor organisation

    Back on the Map is a large community anchor organisation with a mission to regenerate its local area, empower residents, and strengthen social cohesion through improvements to housing, commercial property, and community infrastructure. 

    Operating in a predominantly white area – where 84 per cent of residents identify as white – they have long been mindful of the need to promote diversity, inclusion, and racial justice.

    To proactively challenge prejudice and segregation, particularly toward migrants, Back on the Map runs initiatives such as catered welcome events for refugees, which introduce new arrivals to the wider community and help build early connections. 

    These efforts became especially important in the wake of the 2024 city riots. The organisation also works closely with by-and-for organisations and networks, contributing to wider work on diversity and inclusion across the voluntary and community sector. 

    Despite these initiatives, the organisation recognises there is more to do to advance racial justice. Staff are aware that people from racialised communities may feel intimidated entering community spaces dominated by white faces and are therefore exploring more tailored approaches to engagement. 

    While robust equality, diversity, and inclusion policies and procedures are in place, the organisation is reflecting on whether these go far enough in practice. It is learning from other organisations about how to apply a racial justice lens to strategic decisions – such as the siting and design of new youth justice facilities – to reduce cultural barriers and improve accessibility. 

    The organisation is also working to address systemic inequities. For example, some refugees and asylum seekers who attend welcome events wish to volunteer but lack the documentation required to complete DBS checks. Staff have raised this issue with statutory partners in an effort to influence policy and practice. 

    While this has not yet resulted in statutory reform, pragmatic workarounds – such as enabling individuals to shadow DBS-checked volunteers – allow them to participate safely and meaningfully. 

    This case study demonstrates the organisation’s proactive and reflective approach to racial justice. It combines direct community engagement with efforts to influence systemic change, while recognising that this is an ongoing journey and committing to continuous learning and improvement.

  • Building bridges in a diverse community

    Several organisations in our research demonstrated a strong commitment to fostering community cohesion. 

    One large, well-resourced community anchor organisation, located in a diverse area, exemplifies this commitment. With a clear mission to build a vibrant, multicultural community, cohesion is a frequent topic of discussion at Board level, and it informs their day-to-day work.

    The organisation operates in a complex environment, and the local community, which primarily comprises residents of Pakistani and Muslim heritage,  experiences ongoing racism both directly and via local online forums. Recently, racist discourse has become noticeably louder and overt. 

    Despite these challenges, there is significant mixing and inclusivity within community settings in the area. However, divisive media narratives and social media posts have led residents to question their previous strong sense of belonging in the wider area, leaving some feeling “othered” or fearful. 

    In response, the organisation takes deliberate steps to bring people together, emphasising shared experiences and commonalities without imposing an agenda. Activities are designed to foster exposure and understanding in subtle, meaningful ways. 

    For example, they run arts and crafts sessions which are aimed at providing new social connections for isolated adults and which are not aimed at any particular demographic group. Community events, such as those based at the organisation’s community garden, have been particularly successful in engaging residents from across social “divides” and creating informal, social spaces to meet people from all sections of the local community. 

    A key strength of the organisation is its diverse staff team. An inclusive recruitment policy ensures the workforce reflects the communities they serve, enabling the organisation to model multiculturalism in practice. 

    Staff diversity also enhances responsiveness to different cultural needs. The organisation actively supports this through structured cultural induction: when a new team member joins from a different cultural background, they give presentations to the team explaining cultural practices, festivals, and traditions, fostering mutual understanding and respect. 

    The organisation is also taking proactive steps to create inclusive spaces within the community. They are investing in local buildings to ensure they can be used for a range of purposes that serve all residents. Their inclusivity programs, including ESOL (English for Speakers of Other Languages) classes, support new arrivals in learning English, connecting them to the area and to other groups in the community. 

    Partnerships are another cornerstone of their approach. By collaborating with a wide variety of local organisations, they are able to reach and engage the diverse communities in their area, extending the impact of their bridge-building work. 

    This case demonstrates that even in areas facing societal divisions and tensions, community organisations can play a vital role in bridging differences, fostering understanding, and creating inclusive spaces where everyone feels they belong.

Our use of language describing racial justice

There are many different terms used to describe people, groups, ideas, and concepts in the area of racial justice. Some are more contested than others – all language is subjective, and its meaning evolves with context and use.

We must also be conscious not to let debate over language distract from tackling the substantive impacts of racism.

While we don’t expect everyone to use the same language, it has been important for this work to ensure we use a consistent terminology to avoid talking at cross purposes with others.

Here, we lay out the core terms we use and what we mean by them.

  • Describing people who experience racism

    Following discussion with our project Steering Group and in line with Locality’s previous use of language, we have decided to use the term “racialised” to describe those who experience racism.

    As described by our friends at Spark, this term “describes the process in which a group of people are defined by their race. Processes of racialisation begin by attributing racial meaning to people’s identity.” This then affects how they experience systems like housing, employment, education, health etc.

  • Justice, equality, and equity

    At various points in this report, we refer to the concepts of “racial justice”, “race equality”, and “race equity”. 

    By “racial justice”, we mean the long-term systemic change to ensure race no longer predicts life outcomes. This includes through the dismantling of the systems in our society (like those mentioned above) that perpetuate racism, both separately (“systemically”) and together (“structurally”).

    By “race equality”, we mean the equal access to and enjoyment of rights, opportunities, participation, and services, and the outcomes that flow from these, regardless of race.

    This is distinct from “race equity”, which describes the fact that different groups start from different, unfair positions because of systemic and structural racism, and the taking of targeted action to achieve fair outcomes.

  • The focus and leadership of community organisations

    At times throughout the report, and with a particular focus on the typology of organisations and our subsequent support offer, we refer to community organisations based on their focus on racial justice issues and/or the ethnicity of their leadership.

    For example, we refer to “organisations led by and for racialised groups”, often shortened to “by-and-for organisations”. By this, we mean community organisations that have been set up by those from, and with the goal of supporting, a particular racialised community within a place.

    Elsewhere, we refer to “organisations with predominantly white leadership”, often shortened to “white-led”. By this, we mean community organisations whose senior leadership and Board are comprised mostly or entirely of white people, wherever they might be working.

  • Community cohesion

    We sometimes use the term “cohesion” when referring to the shared sense of connection, understanding, trust, and belonging between different groups within a place.

    This term is sometimes contested, with negative connotations for some when used too vaguely or as a euphemism for assimilation of racialised communities without a necessary focus on justice for those groups. We explore its merits and limitations within the context of our research further in the report. 

Supported by Esmée Fairbairn Foundation

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We examine how, in a time of increasing social division and a loss of trust in politics, we must we get power back to communities through the local organisations that know them best. 

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