Cumbria Gypsy and Traveller Accommodation Assessment

139 Pages·2013·2.22 MB·English

by  Windows 2000 User

Cumbria Gypsy and Traveller Accommodation
Assessment for
Allerdale Borough Council,
Barrow Borough Council,
Carlisle City Council,
Copeland Borough Council,
Cumbria County Council,
Eden District Council,
Lake District National Park Authority, and
South Lakeland District Council

Final Report

November 2013

Main Contact: Michael Bullock
arc4 Ltd
Email: [email protected]
Website: www.arc4.co.uk

©2013 arc4 Limited (Company No. 06205180)
TABLE OF CONTENTS
1. Introduction ........................................................................................................... 7
Study Components .......................................................................................................... 8
Phase 1: Literature/desktop review and stakeholder discussions .................................... 9
Phase 2: Survey of Gypsies and Travellers across Cumbria ........................................... 9
Phase 3: Production of report .......................................................................................... 9
2. Methodology ....................................................................................................... 11
3. Legislative and Policy Context ............................................................................ 14
Legislative background .................................................................................................. 14
Policy background ......................................................................................................... 14
CLG Design Guidance ................................................................................................... 18
4. The Current Picture: provision of Gypsy and Traveller sites ............................... 21
Provision of authorised and unauthorised sites .............................................................. 21
5. The Current Picture: Gypsy and Traveller population and pitch availability ........ 26
Population Estimates ..................................................................................................... 26
Caravan Counts and Authorised Pitches ....................................................................... 26
Tenure of respondents .................................................................................................. 29
Facilities on pitches ....................................................................................................... 30
Amenities elsewhere on the site .................................................................................... 31
Repairs and improvements ............................................................................................ 31
Space Requirements ..................................................................................................... 32
Satisfaction with location of your home .......................................................................... 34
Overcrowding ................................................................................................................ 34
Facilities shared with other households ......................................................................... 35
Cost of accommodation and services ............................................................................ 35
Feelings about neighbourhood, safety and security ....................................................... 36
Moving........................................................................................................................... 38
6. Gypsy and Traveller Pitch and Showperson Plot Requirements ........................ 41
Gypsy and Traveller Permanent Pitch Requirements .................................................... 41
Showperson Permanent Plot Requirements .................................................................. 46
Type of new provision .................................................................................................... 49
Transit sites and stop over places ................................................................................. 51
7. Travelling practices and experiences ................................................................. 60
8. Wider Service and Support Needs ..................................................................... 63
Registration with doctor and dentist ............................................................................... 63
Services used in the last year ........................................................................................ 63
Adaptations ................................................................................................................... 64
9. Stakeholder consultation .................................................................................... 65
Overview ....................................................................................................................... 65
General support for Gypsies, Travellers and Travelling Showpeople ............................. 65
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Provision of accommodation .......................................................................................... 65
Need for additional permanent and transit sites ............................................................. 66
Unauthorised encampments .......................................................................................... 67
Planning ........................................................................................................................ 67
10. Summary of Findings .......................................................................................... 69
Headline findings from the research .............................................................................. 69
Headline findings by local authority ............................................................................... 71
11. Conclusion and Strategic Response ................................................................... 75
Key issues and how to tackle them ................................................................................ 75
Concluding comments ................................................................................................... 81
Appendix A: Legislative Background ............................................................................ 83
Overall approach ........................................................................................................... 83
Appendix B: Policy and Guidance ................................................................................ 86
Introduction ................................................................................................................... 86
Appendix C: Fieldwork Questionnaire .......................................................................... 95
Appendix D: Stakeholder Consultation ........................................................................ 125
Approach ..................................................................................................................... 125
Stakeholder questions and responses ......................................................................... 125
Appendix E: Glossary of Terms ................................................................................... 138

LIST OF TABLES
Table 2.1 Summary of achieved interviews by type of dwelling ............................... 12
Table 2.2 Range of responses achieved by ethnicity and dwelling type .................. 12
Table 4.1a List of sites as at 17th May 2013 .............................................................. 22
Table 4.1b List of yards as at 17th May 2013 ............................................................. 25
Table 5.1 Bi-annual Caravan Cumbria-wide Count figures 2011 to 2013 ................ 27
Table 5.2a Summary of sites and pitches .................................................................. 28
Table 5.2b Summary of yards and plots .................................................................... 28
Table 5.3 Tenure of respondents ............................................................................. 29
Table 5.4 Ownership of land where trailer/caravan located ..................................... 30
Table 5.5 Facilities provided on pitch ....................................................................... 30
Table 5.6 Amenities provided elsewhere on site...................................................... 31
Table 5.7 Repair problems by accommodation type ................................................ 31
Table 5.8 State of repair .......................................................................................... 32
Table 5.9 Repairs or improvements needed ............................................................ 32
Table 5.10 Enough space for trailers, wagons and vehicles ...................................... 33
Table 5.11 Enough space in amenity blocks/sheds on pitch ..................................... 33
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Table 5.12 Enough space on pitch/plot ...................................................................... 34
Table 5.13 Satisfaction with the location of your home .............................................. 34
Table 5.14 Do you think your home is overcrowded? ................................................ 35
Table 5.15 Housing costs covered by Housing Benefit .............................................. 35
Table 5.16 Cost of services ....................................................................................... 36
Table 5.17 Happy with neighbourhood ...................................................................... 37
Table 5.18 Do you feel safe in this neighbourhood? ................................................. 37
Table 5.19 Location to amenities ............................................................................... 38
Table 5.20 Respondents planning to move in the next five years .............................. 39
Table 5.21 Length of residence ................................................................................. 39
Table 5.22 Summary of the origin of moving households .......................................... 40
Table 6.1 Summary of need and supply factors for permanent pitches: Gypsies
and Travellers .......................................................................................... 43
Table 6.2 Summary of current pitch supply and shortfalls 2013/14 to 2017/18 ....... 44
Table 6.3 Summary of overall permanent pitch requirements (Gypsies and
Travellers) ................................................................................................ 45
Table 6.4 Summary of need and supply factors: Showperson Plots ........................ 48
Table 6.5 Summary of overall permanent plot requirements (Showpeople) ............ 49
Table 6.6 Perceived need for new sites/yards ......................................................... 50
Table 6.7 Preferred Site/Yard Management Option ................................................. 50
Table 6.8 Future site/yard location preferences ....................................................... 51
Table 6.9 Preferred location of transit sites ............................................................. 52
Table 6.10 Preferred management of transit provision .............................................. 53
Table 6.11 Preferred location of stop over places...................................................... 54
Table 6.12 Unauthorised encampments 2010/11 to 2012/13 .................................... 55
Table 6.13 Unauthorised encampments 2010/11 to 2012/13 by district and
location .................................................................................................... 56
Table 6.14 Transit pitch recommendations 2013/14 to 2017/18 ................................ 59
Table 7.1 Travelling behaviour by dwelling type ...................................................... 60
Table 7.2 Length of time travelling ........................................................................... 61
Table 7.3 Reasons for travelling .............................................................................. 62
Table 7.4 Problems whilst travelling ........................................................................ 62
Table 8.1 Registration with a doctor and dentist ...................................................... 63
Table 8.2 Services used in past twelve months (%) ................................................ 64
Table 10.1: Allerdale Summary .................................................................................. 71
Table 10.2: Barrow Summary ..................................................................................... 72
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Table 10.3: Carlisle Summary .................................................................................... 72
Table 10.4: Copeland Summary ................................................................................. 73
Table 10.5: Eden Summary ........................................................................................ 73
Table 10.6: South Lakeland Summary ........................................................................ 74
Table 11.1 Summary of overall pitch and plot requirements over five years and
over Local Plan periods ........................................................................... 82
Table 11.2 Summary of transit requirements ............................................................. 82

LIST OF FIGURES
Figure 7.1 Months when travelling takes place ......................................................... 61
Figure 11.1 How does CLT model work? .................................................................... 77

LIST OF MAPS
Map 4.1 Location of Gypsy and Traveller Sites and Showpeople’s Yards ............. 24

arc4 Limited accepts no responsibility or liability for, and makes no representation or warranty with
respect to, the accuracy or completeness of any third party information (including data) that is contained
in this document.
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Please note that in this report some of the tables include
rounded figures. This can result in some column or row
totals not adding up to 100 or to the anticipated row or
column ‘total’ due to the use of rounded decimal figures. We
include this description here as it covers all tables and
associated textual commentary included. If tables or figures
are to be used in-house then we recommend the addition of
a similarly worded statement being included as a note to
each table used.

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1. Introduction

1.1 In March 2013, arc4 were commissioned by Allerdale Borough Council, Barrow
Borough Council, Carlisle City Council, Copeland Borough Council, Cumbria
County Council, Eden District Council, Lake District National Park Authority and
South Lakeland District Council (“the Authorities”) to undertake a Gypsy and
Traveller Accommodation Assessment to identify the housing needs of Gypsies
and Travellers and Travelling Showpeople from across the County.
1.2 The overall objective of the research was to provide a robust evidence base to
inform future reviews of Local Plans and housing strategies.
1.3 The research provides information about the current and future accommodation
needs of Gypsies and Travellers, and Travelling Showpeople; as well as
providing information about additional support needs.
1.4 The study adopts the definition of ‘Gypsies and Travellers’ set out within the
Government’s ‘Planning policy for traveller sites’ [sic] (March 2012) within which
the following definition of Gypsies and Travellers is adopted:
‘Persons of nomadic habit of life whatever their race or origin, including such
persons who on grounds only of their own or their family’s or dependants’
educational or health needs or old age have ceased to travel temporarily or
permanently, but excluding members of an organised group of travelling
Showpeople [sic] or circus people travelling together as such.’
1.5 Similarly, the following definition from the Guidance in respect of Travelling
Showpeople is used:
‘Members of a group organised for the purposes of holding fairs, circuses or
shows (whether or not travelling together as such). This includes such persons
who on the grounds of their own or their family’s or dependants’ more localised
pattern of trading, educational or health needs or old age have ceased to travel
temporarily or permanently, but excludes Gypsies and Travellers as defined
above.’
1.6 The following definitions also apply:
‘[A] “pitch” means a pitch on a “gypsy and traveller” [sic] site and “plot” means a
pitch on a “travelling Showpeople” [sic] site (often called a “yard”). This
terminology differentiates between residential pitches for “gypsies and travellers”
[sic] and mixed-use plots for “travelling Showpeople” [sic], which may/will need to
incorporate space or to be split to allow for the storage of equipment.’1
1.7 For the purposes of this study, Gypsies and Travellers live on pitches on sites,
whilst Travelling Showpeople live on plots on yards.
1.8 The overall objectives of the Gypsy and Traveller Accommodation Assessment
are:

1 CLG Planning policy for traveller sites Appendix A Glossary March 2012
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 To produce a new Gypsy and Traveller Accommodation Assessment (which
includes Travelling Showpeople) covering Cumbria’s six districts and Lake
District National Park, this providing distinct analysis, conclusions and
recommendations for each of these authorities having regard to Cumbria’s 20
Housing Market Areas which are dispersed across these authority areas.
 To understand the current accommodation circumstances of Gypsies and
Travellers and Travelling Showpeople residing in the six districts and the
Lake District National Park Authority.
 To provide a clear and robust understanding of the permanent, transit and
other accommodation needs of Gypsies and Travellers and Travelling Show
people.
 To produce an assessment of the mobility patterns and the drivers of mobility
within communities.
 To establish a clear baseline for existing provision.
 To make recommendations for each district on the level of future pitch
provision to 2031 across Cumbria with data provided for each authority to
2031 having regard to the current development plan period of each authority,
these are as follows:
 Barrow 2031
 Allerdale 2029
 Carlisle 2030
 Copeland December 2028 (with Site Allocations DPD running to 2030)
 Eden 2025
 South Lakeland 2025
 Lake District National Park Authority 2025
 To provide an understanding of the demographic profile of the Gypsy and
Traveller community, household formation, routes into accommodation and
wider support needs.
 To provide best practice advice around key issues to be considered when
preparing policies for the provision of sites and accommodation for Gypsies
and Travellers and Travelling Showpeople.

Study Components
1.9 The study comprised three phases, which are set out and detailed below:
 Phase 1: Collation and review of existing information and literature and
stakeholder survey and discussions;
 Phase 2: Survey of Gypsies and Travellers and Travelling Showpeople
across the County; and
 Phase 3: Report production and dissemination.
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Phase 1: Literature/desktop review and stakeholder discussions
1.10 This phase comprised a review of available literature, including legislative
background and best practice information; and available secondary data relating
to Gypsies and Travellers.
1.11 Relevant regional, sub-regional and local information has been collected,
collated and reviewed, including information on:
 The national policy and legislative context;
 Current policies towards Gypsies and Travellers in the County; and
 Analysis of existing data sources available from stakeholders.
1.12 Views have been sought from a range of stakeholders identified by local
authority partners, including providers, education officers, housing and planning
professionals, and community representatives.

Phase 2: Survey of Gypsies and Travellers across Cumbria
1.13 The survey of Gypsies and Travellers across the local authority areas was
organised and undertaken by Homespace Sustainable Accommodation (HSSA).
Interviews were carried out during April and May 2013. Interviews were carried
out with residents living on authorised local authority and private sites across the
County. Additional interviews were held with Gypsy and Traveller respondents
living in bricks and mortar accommodation; and with respondents on
unauthorised encampments.
1.14 Interviews were undertaken by trained members of the Gypsy and Traveller
community. Using members of the community as interviewers helps secure a
good response rate, and ultimately deliver a more comprehensive picture of
need.
1.15 The cultural needs of Gypsies and Travellers and Travelling Showpeople differ
from those of the rest of the population and consideration of culturally specific
requirements such as the need for additional permanent caravan sites and/or
transit sites and/or stopping places (or improvements to existing sites) are key to
this study. The research has therefore explicitly sought information from
Travelling communities across the County living in housing, on sites, on
unauthorised encampments and unauthorised developments.
1.16 To maximise the value of the fieldwork, we have also obtained information on
housing and housing-related support issues.

Phase 3: Production of report
1.17 The report structure is as follows:
 Chapter 1 Introduction: provides an overview of the study;
 Chapter 2 Methodology: provides details of the study’s research
methodology;
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 Chapter 3 Legislative and policy context: presents a review of the
legislative and policy context;
 Chapter 4 The current picture: looks at the current provision of sites across
the County to provide a baseline picture of what is currently
available;
 Chapter 5 The current picture: reviews estimates of the Gypsy and
Traveller and Travelling Showpeople population across the
County and the scale of existing site provision. A review of the
current accommodation situation of Travellers will identify any
issues arising;
 Chapter 6 Pitch requirements: focuses on current and future pitch
requirements. This chapter includes a detailed assessment of
drivers of demand, pitch supply and current shortfalls across the
County, as well as an assessment of transit need;
 Chapter 7 Travelling practices and experiences: highlights issues relating to
experiences whilst travelling;
 Chapter 8 Wider service and support needs: considers the wider service
and support needs of Travellers including health and education;
 Chapter 9 Stakeholder consultation: reports on the responses of the
various stakeholders included in this research;
 Chapter 10 Summary of findings: focuses on key outputs and headlines
emerging from the research by authority; and
 Chapter 11 Conclusion and strategic response concludes the report,
identifying headline issues, and recommending ways in which
these could be addressed.
1.18 The report is supplemented by the following appendices:
 Appendix A which provides details of the legislative background underpinning
accommodation issues for Gypsies and Travellers.
 Appendix B Policy and guidance
 Appendix C Questionnaire
 Appendix D Stakeholder survey questionnaire
 Appendix E Glossary of terms

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