Gypsy and Traveller Accommodation Assessment

Transcription

Opinion Research Services
Wokingham Borough Gypsy and Traveller Accommodation Assessment
Wokingham Borough
Gypsy and Traveller
Accommodation Assessment
Final Report
March 2015
1
March 2015
March 2015
Opinion Research Services The Strand, Swansea SA1 1AF
Steve Jarman, Claire Thomas, Ciara Small, Dan Morris and Ian Woodward
Enquiries: 01792 535300 · info@ors.org.uk · www.ors.org.uk
© Copyright March 2015
Contains public sector information licensed under the Open Government Licence v3.0
Contains OS data © Crown Copyright (2014)
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Contents
1.
Executive Summary......................................................................................................................... 6
Introduction and Methodology ...................................................................................................................... 6
Key Findings .................................................................................................................................................... 6
Additional Pitch Requirements – Gypsies and Travellers ............................................................................... 7
Additional Pitch Requirements – Travelling Showpeople .............................................................................. 7
Transit Provision ............................................................................................................................................. 7
2.
Introduction ................................................................................................................................... 8
The Survey ...................................................................................................................................................... 8
Definitions ...................................................................................................................................................... 8
Legislation and Guidance for Gypsies and Travellers ..................................................................................... 9
Tackling Inequalities for Gypsy and Traveller Communities ........................................................................12
3.
Methodology ................................................................................................................................ 14
Glossary of Terms .........................................................................................................................................14
Stage 1: Desk-Based Research ......................................................................................................................14
Stage 2: Stakeholder Engagement................................................................................................................15
Stage 3: Working Collaboratively with Neighbouring Planning Authorities.................................................15
Stage 4: Survey of Travelling Communities ..................................................................................................16
Stage 5: Bricks and Mortar Households .......................................................................................................18
Stage 6: Current and Future Pitch/Plot Requirements.................................................................................19
Stage 7: Conclusions .....................................................................................................................................20
4.
Gypsy, Traveller and Travelling Showpeople Sites and Population .................................................. 21
Sites in Wokingham Borough .......................................................................................................................21
Sites and Yards in Wokingham Borough.......................................................................................................21
Caravan Count ..............................................................................................................................................22
5.
Stakeholder Engagement .............................................................................................................. 24
Introduction ..................................................................................................................................................24
Focus Groups ................................................................................................................................................24
Telephone Interviews ...................................................................................................................................24
Discussion Agenda ........................................................................................................................................25
Reporting Engagement with Stakeholders ...................................................................................................25
Key Findings - Accommodation ....................................................................................................................25
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Engaging with Bricks and Mortar Households..............................................................................................26
Accommodation for Travelling Showpeople ................................................................................................27
Transit Provision and the Management of Unauthorised Encampments ....................................................27
Future Site Provision ....................................................................................................................................28
Cross Boundary Working and the Duty to Cooperate ..................................................................................28
Parish Council Responses .............................................................................................................................28
Neighbouring Local Authorities – Key Findings ............................................................................................28
Conclusions and Areas of Consideration ......................................................................................................29
6.
Survey of Travelling Communities ................................................................................................. 30
Interviews with Gypsies and Travellers and Travelling Showpeople ...........................................................30
Summary of Site Demographics ...................................................................................................................31
Occupation by Non-Gypsies, Travellers and Travelling Showpeople ...........................................................31
Travelling Showpeople .................................................................................................................................33
7.
Current and Future Pitch Provision ................................................................................................ 34
Pitch Provision ..............................................................................................................................................34
Supply of Pitches ..........................................................................................................................................34
Current Need ................................................................................................................................................34
Future Need .................................................................................................................................................35
Supply of Pitches ..........................................................................................................................................35
Current Unauthorised Developments and Encampments ...........................................................................36
Concealed Households .................................................................................................................................37
Bricks and Mortar .........................................................................................................................................37
Additional Pitch Provision: Future Need ......................................................................................................39
Temporary Planning Permissions .................................................................................................................39
Movement to and from sites and yards .......................................................................................................39
Population and Household Growth..............................................................................................................41
Overall Needs for Wokingham Borough ......................................................................................................44
Split to 2029 in 5 year Time Periods.............................................................................................................44
Needs for Plots for Travelling Showpeople ..................................................................................................46
8. Conclusions ...................................................................................................................................... 48
Introduction .................................................................................................................................................48
Gypsy and Traveller Future Pitch Provision .................................................................................................48
Travelling Showpeople .................................................................................................................................48
Stakeholder Engagement .............................................................................................................................49
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Appendix A: Joint Methodology............................................................................................................ 50
Appendix B: Glossary of Terms ........................................................................................................... 100
Appendix C: Gypsy and Traveller Sites in Wokingham Borough (July 2014) .......................................... 102
Appendix D: Site Record Form ............................................................................................................ 103
Appendix E: Bricks & Mortar Adverts .................................................................................................. 105
Friends, Families of Travellers – May 2014 ................................................................................................105
World’s Fair – May 2014 ............................................................................................................................106
Appendix F: Transit Provision ………………………………………………………………………………………………………….….107
Appendix G: Neighbouring Local Authority Provision Summary ........................................................... 108
Basingstoke and Deane Borough Council ...................................................................................................108
Bracknell Forest ..........................................................................................................................................108
Hart District Council....................................................................................................................................108
Reading Borough Council ...........................................................................................................................109
Royal Borough of Windsor and Maidenhead (RBWM)...............................................................................109
Rushmoor Borough Council ........................................................................................................................109
South Oxfordshire District Council .............................................................................................................109
West Berkshire Council...............................................................................................................................110
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1. Executive Summary
Introduction and Methodology
1.1
The primary objective of the 2014 Gypsy and Traveller Accommodation Assessment (GTAA) is to provide a
robust assessment of current and future need for Gypsy, Traveller and Travelling Showpeople
accommodation in Wokingham Borough. The GTAA provides a robust and credible evidence base which can
be used to aid the implementation of Development Plan policies and the provision of new Gypsy and
Traveller pitches and Travelling Showpeople plots for the 15 year period to 2029.
1.2
As part of a collaborative commission between Wokingham, Reading, Bracknell, West Berkshire and
Windsor & Maidenhead local authorities, a Joint Methodology on Modelling Current & Future
Accommodation Needs was developed to provide a common approach for the five Berkshire authorities to
utilise for the basis of their individual Gypsy and Traveller Accommodation Assessments.
1.3
The Wokingham Borough GTAA has sought to understand the accommodation needs of the Gypsy,
Traveller and Travelling Showpeople population in Wokingham Borough through a combination of deskbased research, stakeholder interviews and engagement with members of the Travelling Community living
on sites and yards, as well as those living in bricks and mortar housing. A total of 50 interviews were
completed with Gypsies and Travellers living on sites in Wokingham Borough; 6 interviews were completed
with Travellers living in bricks and mortar; and 1 interview was completed with a representative of
Travelling Showpeople families seeking to relocate to the Berkshire area. In addition 2 focus groups were
held with Officers and Members from the Council; 13 telephone interviews were completed with wider
stakeholders; and responses were received from 6 Parish Councils.
Key Findings
1.4
The majority of households that were interviewed were English Travellers (58%), with Romany Gypsies
making up 29% and Irish Travellers making up 13%. The site interviews identified that a high proportion of
the population were younger and female, although there were instances where it was apparent that there
were men present on sites but that they did not want to be recorded as being resident. As such the share of
adults in the population in Wokingham Borough is almost certainly higher than shown by the household
interviews.
1.5
Officers who were interviewed from the Council supported the expansion of Twyford Orchards public site
and felt this characterised the positive way Wokingham Borough has attempted to meet the
accommodation needs of Gypsies and Travellers.
1.6
Council Officers and wider Stakeholders raised a number of areas of consideration including the need to
advertise the waiting list; to continue to improve engagement and communication with the Travelling
Communities; to improve awareness of Gypsy and Traveller issues to Officers and Members; sharing best
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practice across neighbouring local authorities; and exploring opportunities for joint transit provision with
neighbouring local authorities if a need is identified.
1.7
Based upon discussions with representatives from the Council and neighbouring local authorities the
Traveller population appears to be fairly static and there is little evidence of movement across local
authority boundaries. The majority of the neighbouring local authorities have completed a GTAA and were
working towards meeting the identified pitch and plot requirements.
Additional Pitch Requirements – Gypsies and Travellers
1.8
Based upon the evidence presented in this study the additional pitch provision required for Gypsies and
Travellers to 2029 in Wokingham Borough is for 52 net additional pitches, as detailed in the table below.
These figures should be seen as the projected amount of provision which is necessary to meet the statutory
obligations towards identifiable needs of the Gypsy and Traveller population arising in Wokingham
Borough. A detailed breakdown which sets out the components that make up this additional need,
together with any other issues that have been taken into consideration are included in Chapter 7 of this
report, together with a detailed breakdown of sites and pitches (Appendix C) and the demographics of
residents (Chapter 6).
1.9
The study has assumed (see pages 45-46) that the needs arising from all unauthorised pitches, concealed
households, net movement from bricks and mortar, net migration and pitches with temporary planning
permissions – less an identified supply of 19 pitches - are met in the first 5 years. In addition total new
household formation of 46 is apportioned over the 5 year time periods based on a net compound growth
rate of 2.00%.
Table 1
Extra net pitch provision in Wokingham Borough in 5 Year Periods (Financial Year 01/04-31/03)
2014-2019
2019-2024
2024-2029
Total
21
15
16
52
Wokingham
Borough
Additional Pitch Requirements – Travelling Showpeople
1.10
Whilst the study has identified no direct evidence of need for Traveling Showpeople currently living in
Wokingham Borough, from the contact with a representative for local Travelling Showpeople in Berkshire it
is advisable that Wokingham Borough continue to keep open contact with Travelling Showpeople in order
to explore further whether there is any future additional plot requirements specifically in the Wokingham
Borough.
Transit Provision
1.11
The study identified very limited levels of unauthorised encampments on land not owned by Gypsies and
Travellers in Wokingham Borough over recent years. Combined with the fact that there are more effective
mechanisms to accommodate visiting families, it is recommended that there is not a need for the Council to
deliver any new transit provision at this time, but that the situation be closely monitored with neighbouring
local authorities during the plan period, with a view to delivering future provision on a cross-border basis.
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2. Introduction
The Survey
2.1
Opinion Research Services (ORS) were commissioned by Wokingham Borough Council in February 2014 to
undertake a Gypsy and Traveller (and Travelling Showpeople) Accommodation Assessment (GTAA).
2.2
The study seeks to provide an evidence base to enable the Council to comply with their requirements
towards Gypsies, Travellers and Travelling Showpeople under the Housing Act 2004, the National Planning
Policy Framework (NPPF) 2012, the National Planning Practice Guidance 2012, and Planning Policy for
Traveller Sites (PPTS) 2012.
2.3
The primary objective of the 2014 GTAA is to provide a robust assessment of current and future need for
Gypsy, Traveller and Travelling Showpeople accommodation in Wokingham Borough. This GTAA provides a
robust and credible evidence base which can be used to aid the implementation of Development Plan
policies and the provision of new Gypsy and Traveller pitches and Travelling Showpeople plots for the 15
year period to 2029. As well as identifying current and future permanent accommodation needs, it will also
seek to identify whether or not the Council needs to plan for the provision of transit sites or emergency
stopping places. The study was undertaken in parallel with GTAAs for Bracknell Forest, Windsor and
Maidenhead and West Berkshire, and included the development of a Joint Methodology to ensure that a
consistent methodological approach was followed. Whilst Reading Borough Council participated in the
development of a Joint Methodology they have yet to progress with a GTAA.
2.4
We would note at the outset that the study covers the needs of Gypsies (including English, Scottish, Welsh
and Romany Gypsies), Irish Travellers, New (Age) Travellers, and Travelling Showpeople, but for ease of
reference we have referred to the study as a Gypsy and Traveller Accommodation Assessment.
2.5
This document summarises the key findings of the study, in particular where they relate to existing policies,
or have implications for future policy decisions across the study area.
Definitions
2.6
For the purposes of the planning system, the current definition1 for Gypsies and Travellers means:
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 or circus people travelling together as such. (Planning Policy for Traveller
Sites, Department for Communities and Local Government (CLG), March 2012).
1
Changes to this definition are the subject of a consultation by CLG that ended in November 2014
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2.7
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Within the main definition of Gypsies and Travellers, there are a number of main cultural groups which
include:
»
Romany Gypsies
»
Irish Travellers
»
New (Age) Travellers.
2.8
Romany Gypsies and Irish Travellers are recognised in law as distinct ethnic groups and are legally
protected from discrimination under the Equalities Act 2010.
2.9
Alongside Gypsies and Travellers, a further group to be considered is Travelling Showpeople. They are
currently2 defined as:
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 family’s or
dependant’s 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.
(Planning Policy for Traveller Sites, CLG, March 2012).
Legislation and Guidance for Gypsies and Travellers
2.10
Decision-making for policy concerning Gypsies, Travellers and Travelling Showpeople sits within a complex
legislative and national policy framework and this study must be viewed in the context of this legislation
and guidance. For example, the following pieces of legislation and guidance are relevant when developing
policies relating to Gypsies, Travellers and Travelling Showpeople:
»
Planning Policy for Traveller Sites (PPTS), 2012
»
National Planning Policy Framework (NPPF), 2012
»
National Planning Practice Guidance (NPPG), 2012
»
Gypsy and Traveller Accommodation Needs Assessments Guidance, 2007
»
The Human Rights Act 1998 (when making decisions and welfare assessments)
»
The Town and Country Planning Act, 1990
»
Criminal Justice and Public Order Act, 1994 (Section 62a)
»
Anti-social Behaviour Act, 2003
»
Planning and Compulsory Purchase Act, 2004
»
Housing Act, 2004 (which requires local housing authorities to assess the accommodation
needs of Gypsies and Travellers and Showpeople as part of their housing needs
assessments. This study complies with this element of government guidance)
»
Housing Act, 1996 (in respect of homelessness).
2
The CLG consultation in 2014 sought views on whether those Gypsies and Travellers who have given up travelling
permanently, for whatever reason, and apply for planning permission for a site, should be treated in the same way as
those who do not lead a travelling life.
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2.11
To focus on Gypsies and Travellers, the Criminal Justice and Public Order Act 1994 is particularly important
with regard to the issue of planning for Gypsy and Traveller site provision. This repealed the duty of Local
Authorities from the Caravans Act 1968 to provide appropriate accommodation for Gypsies and Travellers.
However, at this time Circular 1/94 did support maintaining existing sites and stated that appropriate
future site provision should be considered.
2.12
For site provision, previous Government guidance focused on increasing site provision for Gypsies and
Travellers and Travelling Showpeople and encouraged Local Authorities to have a more inclusive approach
to Gypsies and Travellers and Travelling Showpeople within their Housing Needs Assessment. The Housing
Act 2004 Section 225 requires Local Authorities to identify the need for Gypsy and Traveller sites, alongside
the need for other types of housing, when conducting Housing Needs Surveys. Therefore, all Local
Authorities were required to undertake accommodation assessments for Gypsies and Travellers and
Travelling Showpeople either as a separate study such as this one, or as part of their main Housing Needs
Assessment.
2.13
Local Authorities were encouraged rather than compelled to provide new Gypsy and Traveller sites by
central Government. Circular 1/06 ‘Planning for Gypsy and Traveller Caravan Sites’, released by the CLG in
January 2006, replaced Circular 1/94 and suggested that the provision of authorised sites should be
encouraged so that the number of unauthorised sites would be reduced.
2.14
The Government announced that Planning for Gypsy and Traveller Caravan Sites (Circular 01/06) was to be
repealed, along with the Regional Spatial Strategies, which were used to allocate pitch provision to local
authorities. CLG published ‘Planning Policy for Traveller Sites’ in March 2012, which superseded these
documents and set out the Government’s new policy for traveller sites. It should be read in conjunction
with the National Planning Policy Framework (2012) and the National Planning Practice Guidance (2012).
2.15
A letter from the Parliamentary Under Secretary of State for the Department for Communities and Local
Government in March 2014 sought to clarify the Government’s position on household formation rates and
stated that current planning guidance will soon be updated3 and stated:
‘Following the recent consolidation of planning guidance we will be seeking to consult on updating and
streamlining the remaining elements of traveller planning practice guidance and also on strengthening
traveller planning policy. We will ensure that any new guidance supports councils to accurately assess
their needs and would remove ambiguous references to the 3% growth rate figure, which, I stress, is only
illustrative. This would, once published, have the effect of cancelling the last Administration’s guidance.’
‘I can confirm that the annual growth rate figure of 3% does not represent national planning policy. The
previous Administration's guidance for local authorities on carrying out Gypsy and Traveller
Accommodation Assessments under the Housing Act 2004 is unhelpful in that it uses an illustrative
example of calculating future accommodation need based on the 3% growth rate figure. The guidance
notes that the appropriate rate for individual assessments will depend on the details identified in the
local authority's own assessment of need. As such the Government is not endorsing or supporting the 3%
growth rate figure, though in some cases we are aware that inspectors have, in considering the level of
3
CLG consulted on new guidance in autumn 2014 but this did not include any reference to household formation rates.
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unmet local need when demonstrating specific traveller appeals, used the 3% growth rate figure in the
absence of a local authority's own up-to-date assessment of need.’
2.16
CLG launched a consultation on proposed changes to government policy on planning and Travellers in
September 2014. This consultation addressed a number of issues including ensuring that the planning
system applies fairly and equally to both the settled and traveller communities; further strengthening
protection of sensitive areas and Green Belt; and addressing the negative impact of unauthorised
occupation. It also included, in Annex A, proposals for revised guidance for completing GTAA studies which
are in line with the approach used to complete this study. The consultation ended in November 2014 and
Local Authorities will need to be aware of the implications should subsequent changes to national policy
and guidance be made.
Planning Policy for Traveller Sites (PPTS)
2.17
Planning Policy for Traveller Sites, which came into force in March 2012, sets out the direction of
Government policy. Planning Policy for Traveller Sites is closely linked to the National Planning Policy
Framework4. Among other objectives, the aims of the policy in respect of Traveller sites are (PPTS, Pages 12):
4
»
Local planning authorities should make their own assessment of need for the purposes of
planning.
»
To ensure that local planning authorities, working collaboratively, develop fair and
effective strategies to meet need through the identification of land for sites.
»
To encourage local planning authorities to plan for sites over a reasonable timescale.
»
That plan-making and decision-taking should protect Green Belt from inappropriate
development.
»
To promote more private Traveller site provision while recognising that there will always
be those Travellers who cannot provide their own sites.
»
That plan-making and decision-taking should aim to reduce the number of unauthorised
developments and encampments and make enforcement more effective.
»
For local planning authorities to ensure that their Local Plan includes fair, realistic and
inclusive policies.
»
To increase the number of Traveller sites in appropriate locations with planning
permission, to address under provision and maintain an appropriate level of supply.
»
To reduce tensions between settled and Traveller communities in plan-making and
planning decisions.
»
To enable provision of suitable accommodation from which Travellers can access
education, health, welfare and employment infrastructure.
»
For local planning authorities to have due regard to the protection of local amenity and
local environment.
http://planningguidance.planningportal.gov.uk/
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2.18
2.20
March 2015
In practice, the document states that (PPTS, Page 3):
»
2.19
Local planning authorities should set pitch targets for Gypsies and Travellers and plot
targets for Travelling Showpeople, which address the likely permanent and transit site
accommodation needs of Travellers in their area, working collaboratively with
neighbouring local planning authorities.
PPTS goes on to state (Page 3) that in producing their Local Plan local planning authorities should:
»
Identify and annually update a supply of specific deliverable sites sufficient to provide five
years’ worth of sites against their locally set targets.
»
Identify a supply of specific, developable sites or broad locations for growth, for years 6-10
and, where possible, for years 11-15.
»
Consider production of joint development plans that set targets on a cross-authority basis,
to provide more flexibility in identifying sites, particularly if a local planning authority has
special or strict planning constraints across its area (local planning authorities have a duty
to cooperate on strategic planning issues that cross administrative boundaries).
»
Relate the number of pitches or plots to the circumstances of the specific size and location
of the site and the surrounding population’s size and density.
»
Protect local amenity and environment.
Local Authorities now have a duty to ensure a 5 year land supply to meet the identified needs for Traveller
sites. However, PPTS also notes on Pages 3-4 that:
»
Where there is no identified need, criteria-based policies should be included to provide a
basis for decisions in case applications nevertheless come forward. Criteria-based policies
should be fair and should facilitate the traditional and nomadic life of Travellers, while
respecting the interests of the settled community.
Tackling Inequalities for Gypsy and Traveller Communities
2.21
In April 2012 the Government issued a further document relating to Gypsies and Travellers titled ‘Progress
report by the ministerial working group on tackling inequalities experienced by Gypsies and Travellers’ (CLG
April 2012).
2.22
The aforementioned report contains 28 commitments to help improve the circumstances and outcomes for
Gypsies and Travellers across a range of areas including:
»
Identifying ways of raising educational aspirations and attainment of Gypsy, Roma and
Traveller children.
»
Identifying ways to improve health outcomes for Gypsies and Travellers within the
proposed new structures of the NHS.
»
Encouraging appropriate site provision; building on £60 million Traveller Pitch Funding and
New Homes Bonus incentives.
»
Tackling hate crime against Gypsies and Travellers and improving their interaction with
the criminal justice system.
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»
Improving knowledge of how Gypsies and Travellers engage with services that provide a
gateway to work opportunities, and working with the financial services industry to
improve access to financial products and services.
»
Sharing good practice in engagement between Gypsies and Travellers and public service
providers.
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3. Methodology
3.1
As part of a collaborative commission between Wokingham, Reading, Bracknell, West Berkshire and
Windsor & Maidenhead local authorities, a Joint Methodology on Modelling Current & Future
Accommodation Needs was developed to provide a common approach for the five involved Berkshire
authorities to utilise for the basis of their individual Gypsy and Traveller Accommodation Assessments. This
is included in Appendix A to this report and a summary can be found below.
3.2
This methodology builds on work that ORS have developed over the past 10 years when completing GTAAs
for local authorities across England and Wales. This has been updated in light of Planning Policy for
Traveller Sites, as well as recent clarification set out by the Minister for Communities and Local
Government in March 2014, with particular reference to new household formation rates (see paragraph
2.15). This methodology has been adaptive to recent changes in Planning Policy as well as the outcomes of
Local Plan Examinations and Planning Appeals that ORS have been involved in.
3.3
The GTAA follows the guidance at the time of undertaking the study.
Glossary of Terms
3.4
A Glossary of Terms can be found in Appendix B.
Stage 1: Desk-Based Research
3.5
The first stage of the project sought to understand the background to the Gypsy, Traveller and Travelling
Showpeople population in the Wokingham Borough and surrounding areas. This comprised the collation of
a range of important secondary data from the following available sources:
»
Census data.
»
Details of all authorised public and private sites and yards.
»
Site management records.
»
Waiting lists.
»
Caravan Counts.
»
Records of any unauthorised sites and encampments.
»
Relevant information from planning, housing, education, community safety,
environmental health and health services.
»
Information on planning applications and appeals – including those that have recently
been refused and those awaiting determination.
»
Information on any other current enforcement actions.
»
Existing GTAAs and other relevant local studies.
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»
3.6
March 2015
Existing policy, guidance and best practice.
This data has been used to inform the stakeholder interviews and fieldwork and has also been analysed in
conjunction with the outcomes of the other elements of the study to allow the completion of a thorough
review of the needs of Travelling Communities in Wokingham Borough.
Stage 2: Stakeholder Engagement
3.7
This study included extensive local stakeholder engagement. This involved a Focus Group with Council
officers from Planning, Housing, Land Use and Transport, Enforcement, Environmental Health and Traveller
Education. A Focus Group was also held with a selection of local Councillors.
3.8
Telephone interviews were conducted with a representative from the Local Health Board, a representative
from the Gypsy and Traveller community, and a representative from the Showmen’s Guild. In addition a
link to a short online survey was sent to each of the 17 Parish/Town Councils in Wokingham Borough.
3.9
The focus groups and stakeholder interviews covered the following key topics:
»
What dealings or relationships people have with Gypsies and Travellers
»
Experiences of any particular issues in relation to Gypsies and Travellers
»
Awareness of any Gypsy and Traveller sites either with or without planning permission
and whether this varies over the course of a year
»
Any trends people may be experiencing with regard to Gypsies and Travellers (e.g.
increase in privately owned sites or temporary sites)
»
What attracts Gypsies and Travellers to an area
»
Identification of any seasonal fluctuations that may occur
»
Awareness of any occurrences of temporary stopping by travellers
»
Identifying the relationship between the settled and travelling communities
»
Awareness of any travellers currently residing in bricks and mortar accommodation
»
Awareness of any cross boundary issues
»
Any other comments on the Gypsy and Traveller community in the study area
Stage 3: Working Collaboratively with Neighbouring Planning Authorities
3.10
Interviews were also conducted with officers from neighbouring authorities and any other authorities
where we identified a direct link with the needs of the study area – for example wider travelling routes etc.
These interviews ensure that the GTAA addresses wider issues that may impact on the outcomes of the
study. These stakeholders were identified as part of the desk-based review and in conjunction with officers
from the Council. Interviews were conducted with officers from the following neighbouring authorities and
covered the same broad issues as the local stakeholder interviews:
»
Basingstoke and Deane
»
Hart
»
Bracknell Forest
»
Reading
15
»
Rushmoor
»
Windsor and Maidenhead
»
South Oxfordshire
»
Wycombe
»
West Berkshire
March 2015
Stage 4: Survey of Travelling Communities
3.11
The outcomes of the desk-based research and stakeholder interviews allowed for the identification of all
authorised and unauthorised sites and encampments in Wokingham Borough. This work identified 2 public
sites, 18 private sites with permanent planning permission, 3 private sites with temporary planning
permission and 5 unauthorised sites – 3 of which are tolerated. One Travelling Showpeople’s yard was
identified although this only has planning permission for the storage of equipment. The location of these
sites is shown on the map below, and full details of the sites can be found in Appendix C.
3.12
Interviewers sought to undertake a full demographic study of all pitches as a sample based approach very
often leads to an under-estimate of current and future needs. All pitches (including those on current
unauthorised sites that were present at the time of the study) were visited by experienced researchers who
firstly determined whether the occupiers were Gypsies or Travellers and then conducted interviews with
residents on as many pitches as possible to determine their current demographic characteristics, whether
they have any current or likely future accommodation needs and how these may be addressed, and
whether there are any concealed households or doubling-up. The interview was based around an approach
that was agreed with the Council. A copy of the Site Visit Record Form can be found in Appendix D. This
approach also allowed the interviewers to identify information about the sites and pitches that could help
support any future work on possible site expansion by undertaking an overall assessment of each
pitch/site.
3.13
Where it was not possible to undertake an interview, researchers captured as much information as possible
about the site from site management or from residents on adjacent sites or pitches.
3.14
The first round of site fieldwork was undertaken during March 2014, with follow-up visits made during May
and June 2014. Researchers were able to conduct interviews, or obtain information, for households on the
majority of the sites that were identified. Whilst the dates of a number of site visits may have fallen during
the months when some households travel we found little evidence of this during the fieldwork. A number
of follow-up visits were also made to some of the sites to clarify the circumstances following the granting of
planning permission either by the Council or through the appeal process.
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Map 1
Wokingham Borough GTAA Indicative Location of Sites (July 2014)
Occupation by Non-Gypsies, Travellers and Travelling Showpeople
3.15
Where caravans were found not to be occupied by Gypsies and Travellers or Travelling Showpeople this
was also noted in the site/yard record form. The way that these pitches or plots are dealt with as part of
17
March 2015
the calculation of supply and need be determined in discussion with the Council as careful consideration
will need to be given to the planning permission for the site and associated conditions.
Refusal to be Interviewed
3.16
During the course of a GTAA Study there can be instances where interviewers are refused access to a site or
yard. In these circumstances paragraph 6 (a) of the PPTS will be considered which states that local planning
authorities should pay particular attention to early and effective engagement with traveller
communities…including discussing travellers accommodation needs with travellers themselves. Where
access is denied fieldwork staff will seek to determine the demographic characteristics and needs of the
residents as far as possible, and also whether residents on the site are able to meet their own needs. This
information will be included in the calculation of current and future need, and the total number of pitches
will be included in the base for new household formation. Where it is not possible to obtain any
information on residents, and the site is occupied, the total number of permitted pitches will be included in
the base for new household formation. Where residents are not willing to provide any information and
state that they are able to meet their own current and future needs consideration will be given as to
whether to exclude the site from the overall calculation of need.
Stage 5: Bricks and Mortar Households
3.17
In order to ensure that the views of Gypsies and Travellers living in bricks and mortar accommodation who
may wish to move on to a site are included in the study it was felt that the most practical approach was to
work with the Council and utilise all available methods to identify as many households in bricks and mortar
who may want to take part in an interview to determine their future accommodation needs, including a
wish to move to a permanent pitch in the study area.
3.18
Contacts in bricks and mortar were sought through a wide range of sources including speaking with people
living on existing sites to identify any friends or family living in bricks and mortar who may wish to move to
a site, intelligence from the Council and other local stakeholders. These included the Council’s Advisory
Service for Traveller Education and the Council’s Senior Community Development Officer.
3.19
Adverts were also placed on the Friends, Families and Travellers Community Website and in the World’s
Fair publication.5
3.20
Through this approach a range of methods were used to publicise that a local study was being undertaken
in order to give all households living in bricks and mortar who may wish to move on to a site the
opportunity to make their views known.
3.21
As a rule it is not appropriate to extrapolate the findings from fieldwork with Gypsies and Travellers living in
bricks and mortar households up to the estimated Gypsy and Traveller bricks and mortar population as a
whole as the needs of all households are different. This study works on the reasonable assumption that
those wishing to move will make their views known based on the wide range of publicity that was put in
place.
5
Copies of these adverts can be found in Appendix E of this report
18
March 2015
Stage 6: Current and Future Pitch/Plot Requirements
3.22
The methodology to calculate future pitch and plot requirements has been developed over the past 10
years and has drawn on lessons from both traditional housing needs assessments and also from Gypsy,
Traveller and Travelling Showpeople Accommodation Assessments conducted across the country. This
methodology has been tested on numerous occasions at local plan examinations and planning appeals and
it felt to be a robust approach to estimate current and future needs.
3.23
To identify need Planning Policy for Traveller Sites requires an assessment for current and future pitch
requirements, but does not provide a methodology for this. However, as with any housing assessment, the
underlying calculation can be broken down into a relatively small number of factors. In this case, the key
issue for residential pitches is to compare the supply of pitches available for occupation with the current
and future needs of the population. The key factors in each of these elements are set out below and will be
set out in more detail in the relevant chapter of this report:
Supply of Pitches
»
Current vacant pitches.
»
Pitches currently with planning consent due to be developed within the study period.
»
Pitches vacated by people moving to housing.
»
Pitches vacated by people moving from the study area.
Current Need
3.24
Total current need, which is not necessarily the need for additional pitches because they may be able to be
addressed by space available in the study area, is made up of the following aspects (see list below). It is
important to address issues of double counting by ensuring for example that a concealed household that is
also on the waiting list for a public site is not included twice in the estimate of need:
»
Households on unauthorised sites or yards (i.e. unauthorised pitches or plots on
Traveller’s own land) without planning permission that are not tolerated;
»
Households on unauthorised encampments (i.e. unauthorised pitches or plots on land not
owned by Travellers) without planning permission that are not tolerated;
»
Concealed households.
»
Households in bricks and mortar wishing to move to sites.
»
Households on waiting lists for public sites.
Future Need
3.25
Total future need is the sum of the following three components:
»
Households living on sites with temporary planning permissions.
»
New household formation.
»
In-migration.
19
March 2015
3.26
Nationally, a household formation and growth rate of 3.00% net per annum has been commonly assumed
and widely used in local Gypsy and Traveller assessments, even though there is no statistical evidence of
households growing so quickly. The result has been to inflate both national and local requirements for
additional pitches unrealistically. In this context, ORS has prepared a Technical Note on household
formation and growth rates. The full paper included in the appendices to the Methodology which can be
found in Appendix A.
3.27
The (compound) net household formation rate that will be used for this study will be based on evidence
from the site surveys. The base for this calculation will include all current authorised households, all
households identified as current need, including concealed households, movement from bricks and mortar
and those on waiting lists not currently living on a pitch or plot, as well as households living on tolerated
unauthorised pitches or plots who are not included as current need. Consideration will also be given to
pitches not currently occupied by Gypsies and Travellers.
3.28
GTAAs should allow for likely in-migration (households requiring accommodation who move into the study
area from outside) and out-migration (households moving away from the study area). Site surveys typically
identify only small numbers of in-migrant and out-migrant households and the data is not normally robust
enough to extrapolate long-term trends. At the national level, there is zero net migration of Gypsies and
Travellers across the UK, but assessments should take into account local migration effects on the basis of
the best evidence available.
3.29
Evidence drawn from stakeholder and site/yard interviews will be carefully considered alongside other
relevant local circumstances. Unless such evidence indicates otherwise, net migration to the sum of zero
will be used for the study
3.30
All of these components of supply and need are presented in clear tables which identify the overall net
requirements for current and future accommodation for both Gypsies and Travellers and Travelling
Showpeople where needs are identified. The residential and transit pitch requirements for Gypsies and
Travellers are identified separately from those for Travelling Showpeople and for each group the
requirements are identified for the 5 year periods 2014-2019, 2019-2024 and 2024 to 2029.
Stage 7: Conclusions
3.31
This stage of the study will draw together the evidence from Stages 1 to 6 to provide an overall summary of
the requirements for Gypsies, Travellers and Travelling Showpeople in Wokingham Borough.
20
March 2015
4. Gypsy, Traveller and Travelling
Showpeople Sites and Population
Sites in Wokingham Borough
4.1
The main consideration of this study is the provision of pitches and sites for Gypsies and Travellers and
Travelling Showpeople in Wokingham Borough. Definitions of accommodation provision for Gypsies,
Travellers and Travelling Showpeople can be found in the Glossary of Terms in Appendix B. The main focus
of the study is upon how many extra pitches for Gypsies and Travellers and plots for Travelling Showpeople
are required in Wokingham Borough.
Sites and Yards in Wokingham Borough
4.2
In Wokingham Borough there are 2 public residential sites, 18 private residential sites with permanent
planning permission, and 3 private residential sites with temporary planning permission. There is currently
no public transit provision6. A total of 5 unauthorised sites were identified during the study period, 3 of
which are classified by the Council as tolerated. These provide a total of 131 residential pitches in
Wokingham Borough as of July 2014. One Travelling Showpeople yard was identified but, as detailed in
paragraph 7.48, it does not have any residential planning consent. Full details of the location and status of
these sites can be found in Appendix C.
Table 2
Sites in Wokingham Borough
Category
Private with permanent planning permission
Private sites with temporary planning permission
Public Sites (Council or Registered Providers)
Unauthorised Sites (3 sites with 7 pitches tolerated)
TOTAL (Excluding Travelling Showpeople yard)
Sites
Pitches
18
3
2
5
28
77
7
35
12
131
Travelling Community Characteristics
4.3
The fieldwork element of the study sought to identify the gender, age and ethnicity of members of the
Travelling Community living in Wokingham Borough.
6
A resolution to grant planning permission for 3 private transit pitches at Highfield Park was approved shortly after
the end of the study period
21
March 2015
4.4
The chart below at figure 1 shows the breakdown of ethnicity of households and age of household
members and show higher numbers of English Gypsy and Traveller households than Irish and Romany
Gypsy and Traveller households living in Wokingham Borough. This is based on information gathered during
the site interviews which are covered in Chapter 5.
4.5
Households surveyed showed a mixed range of ages across their members, though (as with other studies
carried out by elsewhere in England and Wales) a higher proportion of the population were younger and
female. However, we would note that it is typical for Gypsy and Traveller studies to record relatively fewer
males aged 18-60 years, many of whom travel on a more regular basis. There were also instances where it
was apparent to interviewers that there were men present on sites but that they did not want to be
recorded as being resident. As such the share of adults in the population in Wokingham Borough is almost
certainly higher than shown by the household survey. This will be taken into consideration when
determining the rate for new household formation.
Figure 1
Ethnicity of Gypsy and Traveller Households in Wokingham Borough from site visits
Figure 2
Age and Gender of Gypsies and Travellers in Wokingham Borough - Site Visits and 2011 Census for Wokingham Borough
Caravan Count
4.6
Another source of information available on the Gypsy and Traveller population derives from the bi-annual
Traveller Caravan Count which is conducted by each Local Authority in England on a specific date in January
22
March 2015
and July of each year, and reported to CLG. This is a statistical count of the number of caravans on both
authorised and unauthorised sites across England. With effect from July 2013, CLG has renamed the ‘Gypsy
and Traveller Caravan Count’ as the ‘Traveller Caravan Count.’ This includes caravans lived in by both ethnic
Gypsies and Travellers and non-Gypsies and Travellers.
4.7
As this count is of caravans and not households, it makes it more difficult to interpret for a study such as
this because it does not count pitches or resident households. The count is merely a ‘snapshot in time’
conducted by the Local Authority on a specific day, and therefore any unauthorised sites or encampments
which occur on other dates will not be recorded. Likewise any caravans that are away from authorised sites
on the day of the count will not be included. As such it is not considered appropriate to use the outcomes
from the Traveller Caravan Count in the calculation of current and future need as the information collected
during the site visits is seen as more robust and fit-for-purpose.
23
March 2015
5. Stakeholder Engagement
Introduction
5.1
To be consistent with the guidance set out in Planning Policy for Traveller Sites and the methodology used
in other GTAA studies conducted by ORS, a programme of stakeholder engagement was undertaken. This
both provided background information about the Gypsy, Traveller and Travelling Showperson population in
Wokingham Borough and also included engagement with neighbouring local authorities.
5.2
The majority of Local Authorities that ORS have worked with in recent years have opted for the following
approach:
»
Semi-structured telephone interviews with stakeholders, and
»
A Parish/Town Council online or postal survey.
5.3
In addition to this, Wokingham Borough Council was keen to hold separate Focus Groups with Council
Officers and Elected Members. It was felt that this approach would allow for further information
sharing/discussion on important key issues.
5.4
The council also notified the Gypsy Council that a GTAA was being undertaken and invited them to take
part and make a contribution to the study. Similar to the experience of other Local Authorities the Gypsy
Council did not respond to the aforementioned invitation.
Focus Groups
5.5
The council arranged two focus group meetings, facilitated by ORS which were held in May 2014. The
officer group was attended by 8 officers from Environmental Health, Land Use and Transport, Enforcement,
Housing, Development and Traveller Education. The Members group was attended by 3 Members and an
additional interview was conducted over the telephone.
Telephone Interviews
5.6
In addition to the Focus Groups telephone interviews were completed with wider stakeholders. Each
stakeholder received an email outlining the study aims, objectives and timetable, which was followed-up
with a telephone call to arrange a suitable time to undertake the interview. A total of 13 telephone
interviews were completed with the following stakeholders:
»
Seven Council Officers representing neighbouring local authorities
»
A Community Development Worker
»
A representative of the NHS
»
A site owner
»
A representative of the Showman’s Guild
24
»
March 2015
An Elected Member.
Discussion Agenda
5.7
The main purpose of the Stakeholder Interviews was to gather additional information to support the
evidence base to complete the assessment of need for Gypsies and Travellers. Additional information was
gathered during the course of the interviews. The discussion agenda for the focus groups and interviews is
set out in paragraph 3.9.
Reporting Engagement with Stakeholders
5.8
The key findings in this section represent a balanced summary of the views expressed by the wide range of
stakeholders that took part in the engagement programme that are of direct relevance to this GTAA study
and the assessment of accommodation need for Gypsies Travellers and Travelling Showpeople.
Key Findings - Accommodation
Public Sites
5.9
There are two public sites in the area at Twyford Orchards and Carters Hill.
5.10
Officers referred positively to the extension to the Twyford Orchards site which will increase the site from
16 to 20 pitches. The site will be remodelled and significant improvements will be made including
replacement of lighting and connections to the internet.
5.11
The Housing Allocations Team manages the waiting lists for the two public sites. The number of households
on the waiting lists are said to be small but officers noted that because the turnover is low people’s
expectations of moving onto a site are also low. Officers felt that it could be worthwhile to advertise the
waiting list but expressed concern surrounding the management of expectations.
5.12
Officers also revealed that all those on the waiting list have expressed a preference for the Twyford
Orchards site – not for Carters Hill. Officers suggested that the lack of interest in the Carters Hill site could
be caused by the actual geographical location of the site. It was felt there was little the Council could do to
make the site location more attractive to future potential tenants and officers explained that despite being
in a ‘beautiful’ location it is isolated and not on a bus route which has led to a dependency on school
transport and car ownership.
Private Sites
5.13
Officers noted recent improvements to the quality of the sites in the area and attributed this to the
Council’s employment of an Environmental Health Officer specifically to deal with site licencing, together
with the liaison work that has been done with the Travelling Community. Overall, the quality of the smaller,
owner occupied sites is better in comparison to the larger privately rented sites which are where most
issues have arisen. Officers feared that some tenants are unaware of their rights to access good quality
housing, and work to provide advice to the community is being carried out by the Environmental Health
Officer.
5.14
Officers who visit the sites on a regular basis and Elected Members referred to four key issues on some of
the larger private sites:
25
»
Overcrowding
»
Breaching planning conditions
»
Breaches of health and safety and sewerage/drainage issues
»
Occupation by non–Gypsy and Travellers
March 2015
5.15
Officers and Elected Members were aware that there are a number non–Gypsies and Travellers who
through a variety of circumstances were living on the sites, particularly as the sites can offer a cheaper form
of accommodation. The majority of Officers and Elected Members felt the Council needed to continue to
work closely with site owners over this issue. Elected Members stressed the point that it creates extra and
artificial demand for Gypsy and Traveller sites.
5.16
It was acknowledged that Officers are working hard with landowners in the area to tackle the four key
issues that are being experienced on some of the private sites, for example by granting permission for more
pitches in return for an agreement to resolve enforcement issues.
Engaging with Bricks and Mortar Households
5.17
The issue of contacting Gypsy and Travellers living in bricks and mortar was given much attention during
the Focus Groups and Officers in particular were keen to explore various ways of communicating with the
community to ensure that their accommodation needs are also included within this study.
5.18
A number of ways of communicating with this community were agreed at the Focus Group and through the
telephone interviews:
Education
»
One Officer explained that around half of Traveller children in schools live in bricks and
mortar accommodation.
»
An Officer contacted families by phone and explained the purpose of the study. If they
wanted to take part, ORS sent them a letter (which included the recognisable Traveller
Education logo on the letter) inviting them to take part in a telephone interview.
»
Of the 13 people who were sent a letter, 4 took part in the study.
Housing
»
The Housing Contact Centre contacted families by phone and explained the purpose of
the study. If the family wanted to take part ORS sent them a letter and conducted a
telephone interview.
Community Development
»
A Community Development Officer was aware of a number of families and offered to
speak to them for the purposes of the study.
»
ORS developed a script and paper survey for use by the Officer.
»
One survey was returned using this method.
26
March 2015
Registered Providers
5.19
»
Wokingham Borough Council work with three preferred Registered Providers: Catalyst;
Housing Solutions Group; and Sovereign Housing Association Limited.
»
An Officer contacted each of the providers and asked them if they are aware of any Gypsy
and Travellers in their accommodation.
»
The latter two responded and confirmed that they do collect ethnicity data which includes
the category ‘Gypsy and Traveller’, but did not have anyone who have identified as being
from this community.
Elected Members were also aware of housed Travellers within their Wards and discussed how many have
come to seek help from them about the following issues:
»
Education – many continue to drop out at secondary school age.
»
Falling behind with rent payments – which stems from literacy issues and understanding
housing benefit and also fear of seeking help from the Local Authority. It was felt that this
would get worse with the introduction of the Universal Credit.
»
Neighbour disputes – although it was felt that some of this was perceived rather than
based on actual problems.
Accommodation for Travelling Showpeople
5.20
There is only one Yard in Wokingham Borough. The Yard has planning permission for use for storage and
not for residential purposes.
5.21
ORS spoke with a representative of the Showman’s Guild who was of the view that the size of Travelling
Showpeople’s community is increasing while the sites are not getting larger; therefore, there are issues
with overcrowding across the Berkshire area and the UK. The representative felt that Councils should
provide more assistance to Showpeople to source appropriate, available and affordable pieces of land.
Transit Provision and the Management of Unauthorised Encampments
5.22
Currently in Wokingham Borough there is no public transit provision available to Travellers who move
through the area and wish to stay for a short while. There are said to be a small number of incursions per
year and these do not occur for long. At the time of the study an application was being considered for 3
transit pitches on a private site.
5.23
One Officer was aware that the Royal Berkshire Hospital in Reading is a popular choice for Gypsies and
Travellers across much of the south of England for maternity purposes and pointed out that, when
someone is due to give birth, the extended family will often accompany them. Consequently this will mean
that large groups will travel to the area yet there is no transit provision across the whole of Berkshire.
5.24
Elected Members were of the opinion that the area is also a popular destination for Travellers attending
Royal Ascot and for family events such as funerals and weddings.
27
March 2015
5.25
In terms of collating data on unauthorised encampments and understanding the needs of Travellers in
transit, Wokingham Borough Council currently collects data on numbers of people, vans and vehicles,
household make-up and any needs.
5.26
Elected Members were of the view that unauthorised encampments and the disruption caused has
decreased in recent years – and the approach taken by the Council and the police should continue.
Future Site Provision
5.27
Although most agreed that it was necessary to provide public pitches, Officers supported the fact that
many private developers also provide Gypsy and Traveller accommodation in Wokingham Borough and also
in surrounding local authorities.
Cross Boundary Working and the Duty to Cooperate
5.28
Officers and Elected Members stressed the importance of working together and sharing information and
reflected positively on the GTAA studies, noting that Planning Policy Officers across the Berkshire
authorities meet quarterly to discuss Gypsy and Traveller issues.
5.29
Elected Members also felt that arranging a forum for planning portfolio holders across the Berkshire
authorities could be beneficial.
5.30
It was also felt that within Berkshire demand and supply - varies across the area.
Parish Council Responses
5.31
Responses were received from a total of six Parish Councils in Wokingham Borough.
5.32
Three of those who responded have had no or little experience of Gypsies and Travellers within their local
area. Those who have had experience reported a range of issues including:
»
Limited numbers of short term encampments
»
The need to employ an external security company to prevent encampments
»
Occupation of pitches by non-Gypsies and Travellers
»
The length of time it is taking the Council to move on unauthorised caravans
»
That Gypsies and Travellers come to Wokingham Borough because it is on a travelling
route, or to attend specific events
»
That overall the relationship is good between the settled community and those living on
permitted sites, but not good with those moving on to unauthorised encampments.
Neighbouring Local Authorities – Key Findings
5.33
In order to explore cross boundary issues ORS spoke to representatives of the following Local Authorities in
order to get an understanding of issues relating to the Travelling community in their areas that could
impact upon the outcomes of the GTAA for Wokingham Borough:
»
Basingstoke and Deane Borough
Council
28
»
Bracknell Forest
»
Hart District Council
»
Reading Borough Council
»
»
Royal Borough of Windsor and
Maidenhead
South Oxfordshire District
Council
»
West Berkshire Council
»
5.34
March 2015
Rushmoor Borough Council
Officers from the neighbouring authorities were asked to provide some contextual information in relation
to the accommodation situation for Gypsy and Travellers and Travelling Showpeople in their area. The key
findings from the interviews can be found in Appendix G and conclusions and areas for consideration by
the Council are presented below:
Conclusions and Areas of Consideration
5.35
Officers supported the expansion of Twyford Orchards public site and felt this characterised the positive
way Wokingham Borough has attempted to meet the accommodation needs of Gypsies and Travellers.
5.36
Stakeholders raised a number of areas of consideration:
»
Advertise the waiting list
»
Continue to work with the Gypsy and Traveller communities
»
Improve communication about Gypsy and Traveller issues – more information on the
Council website
»
Provide education and awareness training to Elected Members including Member to
Member briefings
»
Continue to work with the community to aid educational attainment
»
Discuss the possibility of joint transit provision with neighbouring areas
»
Continue to work with neighbouring local authorities and explore the possibility of
working with wider neighbours.
5.37
Based upon discussions with representatives from neighbouring local authorities the Traveller population
appears to be fairly static and there is little evidence of movement across local authority boundaries. The
majority of the neighbouring local authorities have completed a GTAA and were working towards meeting
the identified pitch and plot requirements.
5.38
It is difficult to determine the need for transit provision given there is a lack of awareness about wider
travelling patterns. Most individual authorities are currently dealing with transit issues in isolation to their
neighbours. It would be helpful to Wokingham Borough and neighbouring local authorities to share
information on unauthorised encampments, develop a common protocol and methodology on collecting
data on unauthorised encampments, track families’ travelling patterns across borders, develop and
maintain a central database, and also record the extent to which unauthorised encampments require
transit or permanent accommodation.
29
March 2015
6. Survey of Travelling Communities
Interviews with Gypsies and Travellers and Travelling Showpeople
6.1
One of the major components of this study was a detailed survey of the Gypsy and Traveller and Travelling
Showpeople population in Wokingham Borough. This aimed to identify current households with housing
needs and to assess likely future household formation from within existing households, to help judge the
need for any future site provision. As noted in the introduction, “Gypsy and Traveller” refers to:
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 or circus people travelling together as such (Planning Policy for Traveller
Sites, CLG, March 2012).
6.2
The desk-based research and stakeholder interviews sought to identify all authorised and unauthorised
sites and encampments in the study area of Wokingham Borough. This identified 2 public sites; 18 private
sites with permanent planning permission; 3 private sites with temporary planning permission; and 5
unauthorised sites – 3 of which are tolerated. One Travelling Showpeople Yard was identified but this does
not have a residential planning consent. Figure 10 below identifies the sites that were visited during the
course of the fieldwork. In addition six interviews were completed with members of the Gypsy and
Traveller community who are currently living in bricks and mortar accommodation and details of these can
be found in Section 7 of this report; an interview was conducted with a representative from the Showman’s
Guild and details can be found in Chapters 5 and 7; and an interview was conducted with a representative
acting on behalf of some Travelling Showpeople families in the Berkshire area and details can be found in
Chapter 7.
Table 3
Sites Visited in Wokingham Borough
Public Sites
Carters Hill, Hurst
Twyford Orchards, Ruscombe
Private Sites
23a Nine Mile Ride, Finchampstead
88a Reading Road, Finchampstead
Belvedere Park, Barkham
Highfield Park, Arborfield
Hogwood Meadows, Finchampstead
Honeysuckle Lodge, Finchampstead
Lower Sandhurst Road, Finchampstead
30
March 2015
Meadowside Plot 1, Finchampstead
Meadowside Plot 2, Finchampstead
Nevi-Stanya, Swallowfield
New Acres (including Kingsbridge and New Acres Extension), Wokingham Without
Plot 1 Littlemore, Finchampstead
Plot 2 Littlemore, Finchampstead
Summerleigh, Finchampstead
The Oaks, Ruscombe
The Promise, Finchampstead
Twin Oaks, Finchampstead
Walkers Yard, Arborfield
Temporary Sites
Nelsons Lane, Hurst
The Paddocks, Shinfield
Wind in the Willows, Hurst
Unauthorised Sites – Tolerated
Pine Lodge, Finchampstead
Wally’s Mobile Home Park, Charvil
Woodside, Mole Road, Winnersh
Unauthorised Sites – Not Tolerated
Land at Fairlands, Farley Hill
Pine Copse, Finchampstead
6.3
Interviewers sought to undertake a full demographic study of all pitches and a summary of the findings
from each site can be found in the table overleaf.
Summary of Site Demographics
6.4
Figure 11 also provides a summary of the resident demographics for sites in Wokingham Borough that were
identified during the fieldwork. For those sites where it was possible to record demographics of residents
there were a total of 120 adults and 58 children and teenagers (aged 0-17). This equates to 67% adults and
33% children and teenagers. These figures are not directly comparable with the chart in Figure 4 as it was
not possible to record precise ages for all site residents.
6.5
Where caravans were found not to be occupied by Gypsies and Travellers or Travelling Showpeople this
was also noted in the site record form. A total of 12 pitches were identified as not being occupied by
Gypsies and Travellers. Of these 9 were at Highfield Park and 3 were at New Acres. These households have
been excluded from the base figure for the calculation of new household formation for the purpose of this
study.
31
Table 4
Site Characteristics and Demographics in Wokingham Borough (from site interviews)
Site
Total
Pitches
Interviews
Completed
Adults
15
11
17
23
0
20
8
16
6
5
Total Public Sites
Private Sites with Permanent Permission
35
19
33
29
5
1
0
-
-
-
88a Reading Road, Finchamstead
2
0
-
-
-
8
1
14
6
0
12
2
4
0
0
2
1
2
3
0
2
0
-
-
-
1
0
-
-
-
2
1
2
2
0
2
1
2
0
0
3
0
-
-
-
21
10
23
11
2
1
1
2
1
0
1
1
3
1
0
1
0
-
-
-
The Oaks, Waltham Road, Ruscombe
3
1
7
2
0
The Promise, Nine Mile Ride,
Finchampstead
2
0
-
-
-
1
2
4
2
0
12
0
-
-
-
Total Private Sites
Private Sites with Temporary Permission
77
21
63
28
2
Nelson's Lane, Hurst
2
0
-
-
-
4
0
-
-
-
1
0
-
-
-
Total Temporary Sites
Tolerated Sites
7
0
-
-
-
1
1
1
0
0
3
3
7
0
0
3
3
7
0
0
7
7
15
0
0
4
3
9
1
0
1
0
-
-
-
5
131
3
50
9
120
1
58
0
7
Public Sites
Carters Hill
Twyford Orchards
Meadowside Plot 1, Park Lane,
Finchampstead
Meadowside Plot 2, Park Lane,
Finchampstead
New Acres (including Kingsbridge and
Extension), Wokingham Without
Plot 1 Littlemore, Park Lane,
Finchampstead
Plot 2 Littlemore, Park Lane,
Finchampstead
Wally's Mobile Home Park, Charvil
Total Tolerated Sites
Unauthorised Developments
Pine Copse, Nine Mile Lane,
Finchampstead
Total Unauthorised Sites
TOTAL
Children & Concealed
Notes
Teenagers Households
32
3 vacant pitches
Only 16 pitches complete at time of
fieldwork
Site unoccupied at time of
fieldwork
fieldwork
Access to the site was restricted
and demographic information was
provided by the owner
9 pitches occupied by non-Gypsies
and Travellers
Site interviews completed
successfully
Households reluctant to be
interviewed
fieldwork
successfully
successfully
No contact possible with residents
despite repeated visits
3 pitches occupied by non-Gypsies
and Travellers
successfully
successfully
Households reluctant to provide
demographic information
successfully
No interview possible - resident in
hospital
successfully
No Gypsies or Travellers on site at
time of fieldwork
fieldwork
Households reluctant to provide
demographic information
Unable to access the site to
interview residents
successfully
successfully
successfully
successfully
Unable to access the site to
interview residents
March 2015
March 2015
Travelling Showpeople
Hinton Road
6.6
Interviewers visited the yard at Hinton Road in May 2014 and found no evidence of occupation. The yard
was being used for storage purposes as permitted by planning consent.
33
March 2015
7. Current and Future Pitch Provision
Pitch Provision
7.1
This section focuses on the extra pitch provision which is required by Wokingham Borough Council to 2029.
This includes both current unmet needs and needs which are likely to arise in the future. This time period
allows for robust forecasts of the requirements for future provision, based upon the evidence contained
within this study and also secondary data sources.
7.2
This section concentrates not only upon the total extra provision which is required in the area for Gypsies,
Travellers and Travelling Showpeople, but also whether there is a need for any transit sites and/or
emergency stopping place provision.
7.3
The key factors in determining current and future accommodation need are set out in the sections below.
Separate assessments have been completed for Gypsies and Travellers and for Travelling Showpeople.
Supply of Pitches
»
Current vacant pitches or plots.
»
Any pitches or plots currently with planning consent programmed to be developed within
the study period.
»
Pitches or plots vacated by households moving to bricks and mortar.
»
Pitches or plots vacated by people moving from the study area.
Current Need
7.4
7.5
Total current need, which is not necessarily the need for additional pitches because it may be able to be
addressed by space available in the study area, is made up of the following:
»
Households on unauthorised sites for which planning permission is not expected.
»
Households on unauthorised encampments that are not tolerated for planning purposes.
»
»
»
Households on waiting lists for public sites.
It is important to address issues of double counting. For example potential in-migrants may already be
included on a waiting list, or households on a waiting list may already be living as a concealed household on
a permitted site or on an unauthorised encampment in the area.
34
March 2015
Future Need
7.6
Total future need is the sum of the following three components. Again it is important to address issues of
double counting as, for example, potential in-migrants may already be on a waiting list:
»
»
New household formation.
»
In-migration.
Supply of Pitches
7.7
Planning records indicate that there are 35 authorised public pitches; 77 permanent private pitches; and 7
pitches with temporary planning permission in Wokingham Borough. In addition there are 12 pitches on
unauthorised sites, 7 of which are tolerated.
Table 5
Sites and Pitches in Wokingham Borough
Category
Private with permanent planning permission
Private sites with temporary planning permission
Public Sites (Council or Registered Providers)
Unauthorised Sites (3 of which with 7 pitches tolerated)
TOTAL (Excluding Travelling Showpeople yard)
7.8
7.9
Sites
Pitches
18
3
2
5
28
77
7
35
12
131
The next stage of the process is to assess how much space is, or will become, available on existing sites. The
main ways of finding this are through:
»
Current empty pitches.
»
New sites or site extensions which have already been granted permission, or are likely to
gain planning permission in the foreseeable future, or sites which are likely to come back
into use following refurbishment.
»
Pitches vacated by people moving to housing.
»
Pitches vacated by people moving from the study area.
At the time of the study there were a total of 3 vacant pitches on the Carters Hill public site in Wokingham
Borough. In addition there were 4 pitches under construction at the Twyford Orchards public site and 12
vacant pitches at Walkers Yard (a private site7). These will provide a potential supply of 19 pitches during
the first 5 years of the study (2014-2019).
7
As set out in the Nelsons Lane Appeal Decision Notice (APP/X0360/A/13/2190825) at paragraph 38 the Inspector
states that Walkers Yard would provide 12 rented pitches that would be suitable and available
35
7.10
March 2015
There were also a further 5 vacant pitches on 3 small private family sites8 which have planning permission
but at the time of the study had not been fully implemented. The Council has taken a cautious approach
regarding the inclusion of vacant pitches on small sites for which planning consent is granted on the basis
that these provide accommodation specifically for the applicant. Consequently for the purposes of this
study, it is not considered in this instance that these 5 vacant pitches are available for immediate general
occupation. Should additional information or evidence be provided through discussions with the land
owners that these vacant pitches could be made available for general occupation, they could then form a
component of supply.
Table 6
Supply of Vacant Pitches in Wokingham Borough
Site
Pitches
Carters Hill – Vacancies
Twyford Orchards – Planning Permission not fully implemented
Walkers Yard – Planning Permission not fully implemented
TOTAL
7.11
3
4
12
19
There were no households identified on the public sites who said that they want to move to bricks and
mortar accommodation and limited evidence of pitches likely to be vacated by people moving from the
study area.
Additional Pitch Provision: Current Need
7.12
The next stage of the process is to assess how many households are currently seeking pitches in the area.
Groups of people who are likely to be seeking pitches will include those:
»
Households on unauthorised sites or yards (i.e. unauthorised pitches or plots on
Traveller’s own land) without planning permission that are not tolerated;
»
»
»
»
Gypsy and Traveller households on waiting lists for public sites.
Current Unauthorised Developments and Encampments
7.13
The study has identified 12 pitches on unauthorised developments in Wokingham Borough. Of these 7 are
classified by the Council as tolerated (from a planning perspective) so do not therefore make up a
component of current need. As such there are a total of 5 pitches on unauthorised developments that do
make up a component of current need. These are at Pine Copse (1) and Fairlands (4). No unauthorised
encampments were identified that expressed a wish for a permanent pitch in Wokingham Borough.
8
88a Reading Road (2 permanent pitches), Lower Sandhurst Road (1 permanent pitch) and Nelson’s Lane (2
temporary pitches)
36
March 2015
Table 7
Pitches on Unauthorised Developments in Wokingham Borough
Site
Pitches
9
Fairlands
Pine Copse
TOTAL
7.14
4
1
5
Many Gypsy and Traveller Accommodation Assessments count all caravans on unauthorised sites as
requiring a pitch in the area when in practice many are simply visiting or passing through, and some may be
on sites that are tolerated for planning purposes. In order to remedy this the approach taken in this study
is to treat need as either only those households on unauthorised sites already in the planning system (i.e.
sites/pitches for which a planning application has been made), those otherwise known to the Local
Authority as being resident in the area, or those identified through the household survey as requiring
pitches.
Concealed Households
7.15
The household survey and desk-based research also sought to identify concealed or doubled-up households
on authorised sites that require a pitch immediately. A concealed household is either one who is living
within another household and would wish to form their own separate family unit, but is unable to do so
because of a lack of space on public or private sites, or an older individual living within an existing family
unit in need of a new household due to overcrowding. Site interviews and analysis of the waiting lists for
public sites identified a total of 7 concealed or doubled-up households in Wokingham Borough. These
were at the Twyford Orchards public site and at New Acres.
Table 8
Concealed Households in Wokingham Borough
Site
Pitches
New Acres
Twyford Orchards
TOTAL
2
5
7
Bricks and Mortar
7.16
Identifying households in bricks and mortar has been frequently highlighted as an issue with Gypsy and
Traveller Accommodation Assessments. The 2011 UK Census of Population identified a total of 93 Gypsy
and Traveller households in Wokingham Borough10. A proportion of this total are also likely to be living on
sites in Wokingham Borough.
7.17
As noted earlier, the study went to significant lengths to identify Gypsies and Travellers living in bricks and
mortar and sought to obtain information from stakeholders, Council officers and on-site interviewees to
identify Gypsy and Traveller households to interview. This process resulted in a total of 14 potential
contacts to interview. Attempts were made to try and contact each of the contacts and a total of 6
9
Fairlands was unauthorised at the time of the study but has since been granted temporary planning permission at
appeal
10
This includes Gypsies and Travellers living on sites and in bricks and mortar
37
March 2015
interviews were conducted by staff at ORS with Gypsies and Travellers living in bricks and mortar in
Wokingham Borough. These included the 4 contacts provided by Education and 1 from Community
Development that are set out in Chapter 5, together with the owner of a private site who lives in a
bungalow adjacent to the site who was spoken with during the site fieldwork.
7.18
All of the 6 families that Interviewers spoke to identified problems that they were experiencing in their
current accommodation, and 5 of them expressed a desire to move back to a site. None of the families
were on the waiting list for one of the public sites in the area. In these circumstances it is not as simple as
identifying each of these households as being in immediate need for a pitch; likewise these needs cannot
be ignored completely. The outcomes from the interviews indicate that 3 of these families are living in
either privately owned or council accommodation and it is recommended that the Council should
encourage these households to register their interest for a pitch on a public site by applying to the waiting
lists. The other 2 families have more immediate needs11 and as such a need for 2 additional pitches is
recommended in the first 5 years of the plan period (2014-19) to meet these more immediate needs.
Table 9
Net Movement from Bricks and Mortar in Wokingham Borough
Need
Pitches
Net movement from bricks and mortar
TOTAL
7.19
2
2
It should be noted that in a number of recent GTAA studies that ORS have undertaken, representatives
from the Travelling Community have reported high numbers of known households in bricks and mortar and
they have encouraged them to come forward to take part in the studies. The actual number who eventually
took part in the studies ranged from zero to six households per area, and a very small proportion of these
wished to move back to sites. Therefore, while there is anecdotal evidence of many Gypsies and Travellers
in housing, most appear to be content to remain there and when provided with the opportunity by national
representatives to register an interest in returning to sites, few choose to do so. However the rate for new
household formation (see Paragraph 7.39) allows for sufficient flexibility to provide for any households
living in bricks and mortar that may not have been picked up in the study.
Waiting Lists
7.20
Wokingham Council currently own and manage 2 permanent public sites (see Table 4). Information
obtained from the Council in September 2014 indicated that there were 12 active applicants for pitches on
these sites.
7.21
Analysis of the waiting list indicates that 5 active applicants are those already ‘doubled-up’ on the Twyford
Orchards site and these have already been included as components of need as concealed households. Of
the remaining 7 applicants 2 are currently living on a site in South Wales and will not be included as
immediate need as they already have suitable accommodation outside of Wokingham Borough. Of the
remaining 4 are living in bricks and mortar accommodation in Wokingham Borough and 1 has no fixed
abode but is currently resident in Wokingham Borough. Given that no immediate need has been identified
11
One of these households is over-crowded and the other lives in a caravan on a driveway with no running water or
toilet.
38
March 2015
for the 4 households currently living in bricks and mortar; information from the Council’s Housing Need
Officer confirmed that no contact had been possible with the household with no fixed abode to identify any
immediate housing need, and that there is a current supply of pitches in Wokingham Borough should this
household wish to be considered for a pitch; it is recommended that no additional pitches, other than
those already identified as concealed households, are included for the purpose of this study. It should be
noted that these are not the same households identified in Paragraph 7.18 as they all indicated that they
were not on the waiting list for a pitch.
Table 10
Need from Household on the waiting list in Wokingham Borough
Need
Pitches
Waiting List
TOTAL
0
0
Additional Pitch Provision: Future Need
7.22
The next stage of the process is to assess how many households are likely to be seeking pitches in the area
in the future. There are three key components of future need. Total future need is the sum of the following:
»
»
New household formation expected during the study period.
»
Migration to sites from outside the study area.
Temporary Planning Permissions
7.23
There are currently 7 pitches on 3 sites in Wokingham Borough (see Table 11) that have temporary
planning permission. This will be counted as additional need when calculating future pitch requirements as
it has been assumed that these households will seek to remain in Wokingham Borough when their
temporary permissions expire.
Table 11
Pitches on sites with temporary planning permission in Wokingham Borough
Site
Pitches
Wind in the Willows
The Paddocks
Nelson's Lane
TOTAL
1
4
2
7
Movement to and from sites and yards
7.24
Assessments should also allow for likely in-migration (households requiring accommodation who move into
the study area from outside) and out-migration (households moving away from the study area). Site
surveys typically identify only small numbers of in-migrant and out-migrant households and the data is not
normally robust enough to extrapolate long-term trends. At the national level, there is zero net migration
39
March 2015
of Gypsies and Travellers across the UK, but assessments should take into account local migration effects
on the basis of the best evidence available.
7.25
Evidence drawn from stakeholder and site/yard interviews has been carefully considered alongside other
will be used for the study – which means that net pitch requirement are driven by locally identifiable need
rather than speculative modelling assumptions. But where there are known likely
in-migrant households they will be included in the needs figures – while stressing the potential for doublecounting across more than one local authority area. Likewise, where there is likely to be movement away
the study area, the net effects will be taken into consideration when calculating current and future needs.
7.26
There are three main sources of in-migration that could account for additional needs in the study area. The
first is out-migration from London. However, In ORS’s current or recent assessments in London (including
Bexley, Camden; Hackney, Haringey, Lambeth, Lewisham and for the London Legacy Development
Corporation) in the majority of cases show additional need – and work is being progressed to meet these
needs.
7.27
The second potential source of in-migration is from local authorities with significant areas of Green Belt. A
Ministerial Statement in July 2013 reaffirmed that:
‘The Secretary of State wishes to make clear that, in considering planning applications, although
each case will depend on its facts, he considers that the single issue of unmet demand, whether for
traveller sites or for conventional housing, is unlikely to outweigh harm to the Green Belt and other
harm to constitute the ‘very special circumstances’ justifying inappropriate development in the
Green Belt.’
7.28
This position was reaffirmed in the CLG consultation on the revised policy for Gypsies and Travellers
(September 2014), which suggests placing further restrictions on the development of Traveller sites in the
Green Belt:
‘Subject to the best interests of the child, unmet need and personal circumstances are unlikely to
outweigh harm to the Green Belt and any other harm so as to establish very special circumstances.’
7.29
However, this does not remove the requirement for local authorities with Green Belt to assess their needs
and provide pitches/plots where this is possible. Where this is not possible Paragraphs 178 and 179 of the
NPPF set out that ‘Joint working should enable local planning authorities to work together to meet
development requirements which cannot wholly be met within their own areas’. It is not the place of the
Gypsy and Traveller Accommodation Assessment to assume one authority will meet the needs of another;
and authorities unable to meet their own needs should work with neighbours to do so. This process is well
established in general housing provision. Areas of Outstanding Natural Beauty (AONBs) may also need to
address similar issues in the same way, given local authorities’ duty to conserve and enhance these areas.
7.30
The final main source of in-migration to the study area is from the closure of unauthorised sites and
encampments. There are several well documented cases of large-scale movements of Gypsies and
Travellers following enforcement action against unauthorised sites – for example, from Dale Farm in Essex.
40
March 2015
7.31
If in-migration to a study area is a source of demand for pitches, out-migration is a source of supply. The
potential for the supply of some pitches arising from out-migration includes households moving to other
areas from private sites with general planning consent for Gypsy or Traveller occupation and selling the
sites to other Gypsy and Travellers or for housing development; and households moving away from private
sites with personal planning consents, so that the sites revert to their previous status.
7.32
In ORS assessments, the likely net effects of inward and outward movements to and from sites and yards
are considered in the light of local circumstances in each local authority area and on the basis of evidence
collected during the stakeholder interviews and fieldwork.
7.33
Evidence collected during the stakeholder interviews and fieldwork to identify movement of households in
or out of Wokingham Borough identified a planning application that was submitted to the Council to
expand a large existing pitch at Highfield Park to add 7 additional private pitches and 3 private transit
pitches for family members that are currently travelling. Site visits conducted as part of the current and
previous GTAA studies have identified no more than a total of 4 additional households living on the pitch at
any one time. As such it is recommended that a total of 4 households be included as in-migration.
7.34
Given that no further evidence on the movement of households into or out of Wokingham Borough was
found during the stakeholder interviews or fieldwork, and that there are vacant pitches on public sites, low
numbers on waiting lists for public sites from outside of the area, and low levels of unauthorised
developments and encampments, it is considered that there is no further in-migration to Wokingham
Borough that should be addressed in this study. Beyond this, rather than assess in-migrant households
seeking to develop new sites in the area, it is recommended that each case is assessed as a desire to live in
the area and that site criteria rules are followed for each new site. It is therefore important for the Council
to continue to follow its existing criteria-based planning policies for any new potential sites which do arise.
Table 12
In-Migration to Wokingham Borough
Site
Pitches
Highfield Park
TOTAL
4
4
Population and Household Growth
7.35
Nationally, a household formation and growth rate of 3.00% net per annum has been commonly assumed
and widely used in local Gypsy and Traveller assessments, even though there is no statistical evidence of
formation and growth rates. The main conclusions are set out here and the full paper is included in the
appendices to the Methodology that can be found in Appendix A.
7.36
Those seeking to provide evidence of high annual net household growth rates for Gypsies and Travellers
have sometimes sought to rely on increases in the number of caravans, as reflected in caravan counts.
However, caravan count data are unreliable and erratic – so the only proper way to project future
population and household growth is through demographic analysis.
41
March 2015
7.37
In fact, the growth in the national Gypsy and Traveller population may be as low as 1.25% per annum –
much less than the 3.00% per annum often assumed, but still four times greater than in the settled
community. Even using extreme and unrealistic assumptions, it is hard to find evidence that net Gypsy and
Traveller population and household growth rates are above 2.00% per annum nationally. The often
assumed 3.00% per annum net household growth rate is unrealistic and would require clear statistical
evidence before being used for planning purposes. In practice, the best available evidence supports a
national net household growth rate of 1.50% per annum for Gypsies and Travellers. However, some local
authorities might allow for a household growth rate of up to 2.50% per annum, to provide a ‘safety margin’
and depending on the relative youthfulness of their area populations. In areas where on-site surveys
indicate that there are fewer children in the Gypsy and Traveller population, the lower estimate of 1.50%
per annum should be used. These conclusions are compatible with the latest planning guidance.
7.38
ORS assessments take full account of the net local household growth rate per annum for each local
authority, calculated on the basis of evidence from the site surveys, and the ‘baseline’ will include all
current authorised households, all households identified as in current need (including concealed
households, movement from bricks and mortar and those on waiting lists not currently living on a pitch or
plot), as well as households living on tolerated unauthorised pitches or plots who are not included as
current need. The assessments of future need will also take account of modelling projections based on
birth and death rates, and in-/out-migration. The (compound) net household formation rate that will be
used for this study will be based on evidence from the site surveys. The base for this calculation will include
all current authorised households, all households identified as current need, including concealed
plot, as well as households living on tolerated unauthorised pitches or plots who are not included as
current need. Consideration will also be given to pitches not currently occupied by Gypsies and Travellers.
7.39
The Technical Note on household formation supports a national net growth rate for the Gypsy and Traveller
population of 1.50% using a population base from the 2011 Census where approximately 36% of the Gypsy
and Traveller population were aged under 18. The household survey for Gypsies and Travellers in
Wokingham Borough indicates that approximately 33% of the on-site population are children and
teenagers aged under 18. While potentially a lower formation rate could have been used, ORS consider
that it is appropriate to allow for future projected household growth for the Gypsy and Traveller population
in Wokingham Borough to occur at an annual net growth rate of 2.00%. This is a generous rate, but will
provide enough new pitches to accommodate all newly-forming households and also households in bricks
and mortar who may not have been identified in the fieldwork (see Paragraph 7.17 and 7.18) and
stakeholder engagement, to have their future needs met.
7.40
Based on a new household formation rate of 2.00% we estimate that a total of 46 additional pitches will be
required during the study period as a result of new household formation, assuming that each forming
household will requires a pitch of its own. This has used a base figure of 132 pitches. This is set out in Table
21 below and is made up of all current pitches on public and private sites with permanent or temporary
planning permission; all pitches on unauthorised sites; concealed households; net movement from bricks
and mortar; in-migration; and excluding 12 pitches not currently occupied by Gypsies and Travellers12.
12
9 at Highfield Park and 3 at New Acres
42
March 2015
Table 13
Base Figure for New Household Formation
Category
Pitches
Public sites (Council or Registered Providers) (Appendix C)
Private with permanent planning permission (Appendix C)
Private sites with temporary planning permission (Appendix C)
Unauthorised developments (including 7 pitches that are
tolerated) (Appendix C)
Concealed households (Table 8)
Net movement from bricks and mortar (Table 9)
In-migration (Table 12)
Pitches occupied by non-Gypsies & Travellers (paragraph 6.5)
TOTAL
35
77
7
12
7
2
4
-12
132
Table 14
New Household Formation in Wokingham Borough
Category
Pitches
Base for new household formation
Net compound formation @2.00% per annum over 15 years
TOTAL PITCH REQUIREMENT
7.41
132
46
46
Note that the base population for the calculation of new household formation excludes 12 pitches with
planning conditions for Gypsy and Traveller occupation that were found to be occupied by non-Travellers.
43
March 2015
Overall Needs for Wokingham Borough
7.42
The estimated gross extra provision that is required now and for the plan period to 2029 will be 71
additional pitches to address the needs of all identifiable Gypsy and Traveller households. This includes the
existing households on unauthorised sites, sites with temporary planning permission, concealed
households, movement from bricks and mortar, net migration and growth in household numbers due to
new household formation. The supply of 19 pitches that has been identified reduces this to a net need for
52 additional pitches. Note that the new household formation excludes pitches that were not occupied by
Gypsies and Travellers.
Table 15
Extra Pitches which are required in Wokingham Borough from 2014-2029
Source of Requirement/Supply
Supply of Pitches
Additional supply from vacant public and private pitches
Additional supply from pitches on new sites
Pitches vacated by households moving to bricks and
mortar
Pitches vacated by households moving away from the
study area
Total Supply
Current Need
Pitches on unauthorised developments
Households on unauthorised encampments
Concealed households/Doubling-up/Over-crowding
Movement from bricks and mortar
Households on waiting lists for public sites
Total Current Need
Future Needs
Households on sites with temporary planning
permission
In-migration
New household formation (2.00%)
Total Future Needs
Total Excluding Non-Traveller Pitches
Figure
Current and
Future Need
Supply
Net Pitch
Requirement
Figure 13
-
-
19
0
-
-
-
0
-
-
-
0
-
19
Figure 14
Figure 15
Figure 16
Figure 17
5
0
7
2
0
14
-
-
Figure 18
7
-
-
Figure 19
Figure 21
4
46
57
71
19
52
Split to 2029 in 5 year Time Periods
7.43
In terms of providing results by 5 year time periods, the study has assumed that the needs arising from all
temporary planning permissions, unauthorised pitches, concealed households, net movement from bricks
and mortar and net migration – less the identified supply of 19 pitches – are met in the first 5 years. The
figure for 2014-19 is set out in Figure 24 below.
44
March 2015
Table 16
Breakdown of need for 2014-2019 (excluding household formation)
Category
Pitches
Pitches on unauthorised developments
Concealed households
Net movement from bricks and mortar
Pitches on sites with temporary planning permission
In migration
Supply of vacant pitches
7.44
5
7
2
7
4
-19
6
In addition the total new household formation of 46 is apportioned over the 5 year time periods based on a
net compound growth rate of 2.00%. This is shown in the table below.
Table 17
Breakdown of new household formation @2.00% Net Compound Growth
Time period
Pitches
2014-19 (0-5 years)
2019-24 (6-10 years)
2024-29 (11-15 years)
7.45
15
15
16
46
These figures are combined to give the total requirement by 5 year time periods. This is shown in the table
below.
Table 18
Additional net pitch provision in Wokingham Borough in 5 Year Periods (Financial Year 01/04-31/03)
Wokingham
Borough
2014-2019
2019-2024
2024-2029
Total
21 (15+6)
15
16
52
45
March 2015
Needs for Plots for Travelling Showpeople
7.46
Planning records indicate that there is just 1 Travelling Showpeople yard in Wokingham Borough at Hinton
Road and that it does not have any planning consent for residential occupation. Interviewers visited the
yard in May 2014 and found no evidence of occupation and observed that the yard was being used for
storage purposes as permitted by the planning consent.
7.47
An interview that was conducted with a representative from the Berkshire Showman’s Guild did not
identify any specific issues relating to the needs of Travelling Showpeople in Wokingham Borough, although
it did highlight issues of over-crowding on yards elsewhere in Berkshire. In addition a Travelling
Showperson who responded to the advert in Worlds Fair who is currently based at an over-crowded yard in
West London did not express a preference for a yard in Wokingham Borough but did express a preference
for a yard in the nearby Maidenhead/Reading/Windsor areas.
7.48
An interview was also conducted with a representative who reported to act on behalf of 4 Travelling
Showpeople families in the Berkshire area. The representative indicated that he had been trying to source
land in Wokingham Borough and the wider Berkshire area for the last few years.
7.49
Wokingham Borough, from the contact with the representative it is advisable that Wokingham Borough
Council continue to keep open contact with Travelling Showpeople in order explore further whether there
is any future additional plot requirements specifically in the Wokingham Borough.
Transit/Emergency Stopping Site Provision
7.50
A public transit site provides a place for households in transit to an area to live for a limited period of time
(usually between 4 and 12 weeks). It can also be used as an opportunity for enforcement action against
inappropriate unauthorised encampments using powers in the Criminal Justice and Public Order Act 1994
(Section 62a). Further details about transit provision can be found in Appendix F.
7.51
At the time of the study there was currently no transit provision in Wokingham. However subsequently a
resolution to grant planning permission was made for 3 private transit pitches at Highfield Park. The Council
should note that the Police cannot use their powers under the Criminal Justice and Public Order Act to
move Travellers from unauthorised encampments to private transit pitches.
7.52
Evidence from the CLG Caravan Count indicates that number of caravans on land not owned by Gypsies and
Travellers has been consistently very low in Wokingham Borough, with none recorded during the last 3
counts. It should also be noted that transit sites are not always the most effective way to meet Travellers’
needs and other mechanisms such as flexibility in residential sites to accommodate visiting families are
often considered more appropriate and easier to manage.
7.53
Whilst the stakeholder interviews did not identify any specific need for transit provision in Wokingham
Borough, they did identify that if required it should be provided on a cross-border basis.
7.54
Therefore given the very limited levels of unauthorised encampments on land not owned by Gypsies and
Travellers in Wokingham Borough over recent years that have been identified through the Caravan Count
and Stakeholder interviews, combined with the fact that there are more effective mechanisms to
46
March 2015
accommodate visiting families, it is recommended that there is not a need for the Council to deliver any
new transit provision at this time, but that the situation be closely monitored with neighbouring local
authorities during the plan period, with a view to delivering future provision on a cross-border basis.
47
March 2015
8. Conclusions
Introduction
8.1
This chapter brings together the evidence presented earlier in the report. It focuses upon the key issues of
current and future site provision for Gypsies and Travellers and Travelling Showpeople, as well as
considering transit provision.
Gypsy and Traveller Future Pitch Provision
8.2
Based upon the evidence presented in this study the additional pitch provision required for Gypsies and
Travellers to 2029 in Wokingham Borough is for 52 net additional pitches. These figures should be seen as
the projected amount of provision which is necessary to meet the statutory obligations towards identifiable
needs of the population arising in Wokingham Borough.
8.3
In terms of providing results by 5 year time periods, the study has assumed that the needs arising from all
unauthorised pitches, concealed households, net movement from bricks and mortar, net migration and
those with temporary planning permissions – less the identified supply of 19 pitches - are met in the first 5
years. In addition the total new household formation of 46 is apportioned over the 5 year time periods
based on a net compound growth rate of 2.00%.
Table 19
Extra net pitch provision in Wokingham Borough in 5 Year Periods (Financial Year 01/04-31/03)
Wokingham
Borough
2014-2019
2019-2024
2024-2029
Total
21
15
16
52
Travelling Showpeople
8.4
Wokingham Borough, from the contact with the Travelling Showpeople representative it is advisable that
Wokingham Borough Council continue to keep open contact with Travelling Showpeople in order explore
further whether there is any future additional plot requirements specifically in the Wokingham Borough.
Transit Sites
8.5
Given the very limited levels of unauthorised encampments on land not owned by Gypsies and Travellers in
Wokingham Borough over recent years that have been identified through the Caravan Count and
Stakeholder interviews, combined with the fact that there are more effective mechanisms to accommodate
visiting families, it is recommended that there is not a need for the Council to deliver any new transit
provision at this time, but that the situation be closely monitored with neighbouring local authorities during
the plan period, with a view to delivering future provision on a cross-border basis.
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March 2015
Stakeholder Engagement
8.6
As a result of the outcomes of the interviews with stakeholders ORS would recommend that the Council
explore a range of opportunities in relation to Gypsies, Travellers and Travelling Showpeople.
8.7
Officers supported the expansion of Twyford Orchards public site and felt this characterised the positive
way Wokingham Borough has attempted to meet the accommodation needs of Gypsies and Travellers.
8.8
Stakeholders raised a number of areas of consideration:
»
Advertise the waiting list
»
Continue to work with the Gypsy and Traveller communities
»
Improve communication about Gypsy and Traveller issues – more information on the
Council website
»
Provide education and awareness training to Elected Members including Member to
Member briefings
»
Continue to work with the community to aid educational attainment
»
Discuss the possibility of joint transit provision with neighbouring areas
»
Continue to work with neighbouring local authorities and explore the possibility of
working with wider neighbours
8.9
Based upon discussions with representatives from neighbouring local authorities the Traveller population
appears to be fairly static and there is little evidence of movement across local authority boundaries. The
majority of the neighbouring local authorities have completed a GTAA and were working towards meeting
the identified pitch and plot requirements.
8.10
It is difficult to determine the need for transit provision given there is a lack of awareness about wider
travelling patterns. Most individual authorities are currently dealing with transit issues in isolation to their
neighbours. It would be helpful to Wokingham Borough and neighbouring local authorities to share
information on unauthorised encampments, develop a common protocol and methodology on collecting
data on unauthorised encampments, track families’ travelling patterns across borders, develop and
maintain a central database, and also record the extent to which unauthorised encampments require
transit or permanent accommodation.
49
Appendix A: Joint Methodology
50
March 2015
Gypsy and Traveller Accommodation Assessments: Methodology for Modelling Needs
March 2015
Methodology
Gypsy and Traveller
Accommodation Assessments
Modelling Current and Future Needs
31st March 2015
Spin-out company of Swansea University
1
March 2015
The Strand
Swansea
SA1 1AF
01792 535300
www.ors.org.uk
Contact:
Steve Jarman
01792 535331
steve.jarman@ors.org.uk
As with all our studies, this research is subject to Opinion Research Services’ Standard Terms and
Conditions of Contract.
Any press release or publication of this research requires the advance approval of ORS. Such
approval will only be refused on the grounds of inaccuracy or misrepresentation.
2
March 2015
Contents
1.
Introduction .............................................................................................................................. 5
2.
Context...................................................................................................................................... 6
Definitions ............................................................................................................................................ 6
Legislation and Guidance for Gypsies and Travellers ........................................................................... 6
Planning Policy for Traveller Sites (PPTS) ............................................................................................. 8
Tackling Inequalities for Gypsy and Traveller Communities .............................................................. 10
3.
Methodological Overview Background .....................................................................................11
Desk-Based Research.......................................................................................................................... 11
Consultation with Stakeholders and Travelling Communities ........................................................... 12
Stakeholder Interviews ....................................................................................................................... 12
Work Collaboratively with Neighbouring Planning Authorities ......................................................... 13
Survey of Travelling Communities ...................................................................................................... 13
Occupation by Non-Gypsies, Travellers and Travelling Showpeople ................................................. 14
Refusal to be Interviewed................................................................................................................... 14
Pre-Notification .................................................................................................................................. 15
Bricks and Mortar Households ........................................................................................................... 15
Timing of the Fieldwork ...................................................................................................................... 15
4.
Analysis of Current and Future Accommodation Needs ..............................................................16
Pitch Provision .................................................................................................................................... 16
Supply of pitches or plots ................................................................................................................... 16
Currently vacant pitches or plots ....................................................................................................... 16
Any pitches or plots currently programmed to be developed within the study period .................... 17
Pitches or plots vacated by households moving to bricks and mortar .............................................. 17
Pitches or plots vacated by households moving out of the study area ............................................. 17
Current Need ...................................................................................................................................... 17
Households on unauthorised sites without planning permission ...................................................... 17
Households on unauthorised encampments ..................................................................................... 18
Concealed households/Doubling-up/Over-crowding......................................................................... 18
Households in bricks and mortar wishing to move to sites or yards ................................................. 18
3
March 2015
Households on waiting lists for public sites ....................................................................................... 18
Future Need ........................................................................................................................................ 19
Households living on sites or yards with temporary planning permissions ....................................... 19
New household formation expected during the study period ........................................................... 19
Movement to and from sites and yards ............................................................................................. 20
Final Outcomes ................................................................................................................................... 22
Provision for Gypsies and Travellers................................................................................................... 22
Provision for Travelling Showpeople .................................................................................................. 23
Transit Provision ................................................................................................................................. 23
Appendix A: Glossary of Terms .........................................................................................................25
Appendix B: Letter from Planning Minister .......................................................................................27
Appendix C: Site/Yard Record Form ..................................................................................................30
Appendix D: Bricks & Mortar Adverts ...............................................................................................32
Friends, Families of Travellers – May 2014 ........................................................................................ 32
World’s Fair – May 2014..................................................................................................................... 33
Appendix E: Technical Paper on Household Formation ......................................................................34
4
March 2015
1. Introduction
1.1
This Methodology prepared by Opinion Research Services (ORS) seeks to offer a rigorous and
comprehensive approach to the delivery of Gypsy and Traveller Accommodation Assessment (GTAA)
studies for local planning authorities in Berkshire. This approach has been developed and successfully used
by ORS to deliver GTAA studies for over 120 local authorities across England and Wales since the Planning
Policy for Traveller Sites guidance was published in 2012. A Glossary of terms used can be found in
Appendix A.
1.2
The Methodology sets out how the Berkshire Authorities will seek to explore a wide range of issues with
members of the Travelling Community, including Gypsies and Travellers and Travelling Showpeople, and
other key local stakeholders in a quantitative and qualitative research manner. This will include a deskbased review of secondary data relating to local travelling communities, as well as existing policy, guidance
and best practice; a review of existing GTAA’s and other studies where appropriate; interviews with Gypsies
and Travellers and Travelling Showpeople living in local authorised and unauthorised sites and
encampments, and where possible in housed accommodation in each local authority area; interviews with
key stakeholders including Council officers and representatives from the Travelling Community, including
the Showmen’s Guild and the Gypsy Council; interviews with officers from neighbouring local authorities to
assist in satisfying the Duty to Cooperate; detailed analysis to model the current and future demographics
and accommodation needs of the Travelling Community; and final reporting of findings and
recommendations.
1.3
The Methodology will deliver a robust GTAA study for each local authority in Berkshire that will meet the
requirements and take account of relevant legislation and guidance, including:
1.4
»
The Housing Act, 2004
»
The National Planning Policy Framework (NPPF), 2012
»
Planning Policy for Travellers Sites (PPTS), 2012
»
The Royal Town Planning Institutes (RTPI) Good Practice Note 4 – Planning for Gypsies and
Travellers, 2007
»
The requirements of Human Rights, Race Relation, Disability Discrimination, Data
Protection and Freedom of Information legislation
The outcomes for each local authority in Berkshire will be a study that will provide a robust and defensible
evidence base that will enable the authorities to comply with their requirements towards Gypsies and
Travellers and Travelling Showpeople under the Housing Act 2004, the National Planning Policy Framework
2012 and Planning Policy for Traveller Sites 2012. The outcomes will provide each local authority with upto-date evidence about the accommodation needs of Gypsies and Travellers and Travelling Showpeople in
their area in five year bands for their individual development planning periods. It will also identify whether
or not any of the local authorities need to plan for the provision of transit sites or emergency stopping
places.
5
March 2015
2. Context
Definitions
2.1
For the purposes of the planning system, the current definition 1 for Gypsies and Travellers means:
»
2.2
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 or circus people travelling together as such.
(Planning Policy for Traveller Sites, CLG, March 2012)
Within the main definition of Gypsies and Travellers, there are a number of main cultural groups which are
identified including:
»
Romany Gypsies;
»
Irish Travellers; and
»
New (Age) Travellers.
2.3
Romany Gypsies and Irish Travellers are recognised in law as distinct ethnic groups and are legally
protected from discrimination under the Equalities Act 2010.
2.4
Alongside Gypsies and Travellers, a further group to be considered are Travelling Showpeople. They are
defined as:
»
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 family’s or dependants’ more localized 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. (Planning Policy for Traveller Sites, CLG, March
2012)
Legislation and Guidance for Gypsies and Travellers
2.5
Decision-making for policy concerning Gypsies & Travellers and Travelling Showpeople sits within a complex
legislative and national policy framework and the undertaking of a GTAA must be viewed in the context of
this legislation and guidance. For example, the following pieces of legislation and guidance are relevant
when constructing policies relating to Gypsies and Travellers and Travelling Showpeople:
»
1
Planning Policy for Traveller Sites, 2012;
Changes to this definition are the subject of the consultation by CLG that ended in November 2014
6
March 2015
»
National Planning Policy Framework, 2012;
»
National Planning Practice Guidance, 2012;
»
Gypsy and Traveller Accommodation Needs Assessments Guidance, 2007;
»
Environmental Protection Act 1990 (for statutory nuisance provisions);
»
The Human Rights Act 1998 (when making decisions and welfare assessments);
»
The Town and Country Planning Act, 1990 (as subsequently amended);
»
Homelessness Legislation and Allocation Policies;
»
Criminal Justice and Public Order Act, 1994 (Section 62a);
»
Anti-Social Behaviour Act, 2003 (both as victims and perpetrators of anti-social
behaviour);
»
Planning and Compulsory Purchase Act, 2004;
»
Housing Act, 2004, which requires local housing authorities to assess the accommodation
needs of Gypsies & Travellers and Showpeople as part of their housing needs
assessments; and
»
Housing Act, 1996 (in respect of homelessness).
2.6
The Criminal Justice and Public Order Act 1994 is particularly important with regard to the issue of planning
for Gypsy and Traveller site provision. This repealed the duty of local authorities to provide appropriate
accommodation for Gypsies and Travellers. However, Circular 1/94 did support maintaining existing sites
and stated that appropriate future site provision should be considered.
2.7
For site provision, the previous government guidance focused on increasing site provision for Gypsies and
Travellers and Travelling Showpeople and encouraging local authorities to have a more inclusive approach
to Gypsies and Travellers and Travelling Showpeople within their Housing Needs Assessment. The Housing
Act 2004 required local authorities to identify the need for Gypsy and Traveller sites, alongside the need for
other types of housing, when conducting Housing Needs Surveys. Therefore, all local authorities were
required to undertake accommodation assessments for Gypsies and Travellers and Travelling Showpeople
either as a separate study such as this one, or as part of their main Housing Needs Assessment.
2.8
Local authorities were encouraged rather than compelled to provide new Gypsy and Traveller sites by
central government. Circular 1/06 ‘Planning for Gypsy and Traveller Caravan Sites’, released by the CLG in
January 2006, replaced Circular 1/94 and suggested that the provision of authorised sites should be
encouraged so that the number of unauthorised sites would be reduced.
2.9
The Government announced that Planning for Gypsy and Traveller Caravan Sites (Circular 01/06) was to be
repealed, along with the Regional Spatial Strategies, which were used to allocate pitch provision to local
authorities. CLG published ‘Planning Policy for Traveller Sites’ in March 2012, which superseded these
documents and set out the Government’s new policy for traveller sites. It should be read in conjunction
with the National Planning Policy Framework.
7
2.10
2.11
March 2015
A letter from the Parliamentary Under Secretary of State for the Department for Communities and Local
Government in March 2014 (see Appendix B) sought to clarify the Government’s position on household
formation rates and suggested that current planning guidance would soon be updated:
»
‘Following the recent consolidation of planning guidance we will be seeking to consult on
updating and streamlining the remaining elements of traveller planning practice guidance
and also on strengthening traveller planning policy. We will ensure that any new guidance
supports councils to accurately assess their needs and would remove ambiguous
references to the 3% growth rate figure, which, I stress, is only illustrative. This would,
once published, have the effect of cancelling the last Administration’s guidance.’
»
‘I can confirm that the annual growth rate figure of 3% does not represent national
planning policy. The previous Administration's guidance for local authorities on carrying
out Gypsy and Traveller Accommodation Assessments under the Housing Act 2004 is
unhelpful in that it uses an illustrative example of calculating future accommodation need
based on the 3% growth rate figure. The guidance notes that the appropriate rate for
individual assessments will depend on the details identified in the local authority's own
assessment of need. As such the Government is not endorsing or supporting the 3%
growth rate figure, though in some cases we are aware that inspectors have, in
considering the level of unmet local need when determining specific traveller appeals,
used the 3% growth rate figure in the absence of a local authority's own up-to-date
assessment of need.’
CLG launched a consultation on proposed changes to government policy on Planning and Travellers in
September 2014. This consultation addressed a number of issues including ensuring that the planning
system applies fairly and equally to both the settled and traveller communities; further strengthening
protection of sensitive areas and Green Belt; and addressing the negative impact of unauthorised
occupation. It also included, in Annex A, proposals for revised guidance for completing GTAA studies which
are in line with the approach set out in this Methodology. The consultation ended in November 2014 and
Local Authorities will need to be aware of the implications should subsequent changes to national policy
and guidance be made.
Planning Policy for Traveller Sites (PPTS)
2.12
Planning Policy for Traveller Sites, which came into force in March 2012, sets out the direction of
Government policy. Planning Policy for Traveller Sites is closely linked to the National Planning Policy
Framework 2. Among other objectives, the aims of the policy in respect of Traveller sites are (Planning Policy
for Traveller Sites, Paragraph 4):
2
»
Local planning authorities should make their own assessment of need for the purposes of
planning.
»
To ensure that local planning authorities, working collaboratively, develop fair and
effective strategies to meet need through the identification of land for sites.
http://planningguidance.planningportal.gov.uk/
8
2.13
»
To encourage local planning authorities to plan for sites over a reasonable timescale.
»
That plan-making and decision-taking should protect Green Belt from inappropriate
development.
»
To promote more private Traveller site provision while recognising that there will always
be those Travellers who cannot provide their own sites.
»
That plan-making and decision-taking should aim to reduce the number of unauthorised
developments and encampments and make enforcement more effective.
»
For local planning authorities to ensure that their Local Plan includes fair, realistic and
inclusive policies.
»
To increase the number of Traveller sites in appropriate locations with planning
permission, to address under provision and maintain an appropriate level of supply.
»
To reduce tensions between settled and Traveller communities in plan-making and
planning decisions.
»
To enable provision of suitable accommodation from which Travellers can access
education, health, welfare and employment infrastructure.
»
For local planning authorities to have due regard to the protection of local amenity and
local environment.
In practice, the document states that (Planning Policy for Traveller Sites, Paragraph 8):
»
2.14
2.15
March 2015
Local planning authorities should set pitch targets for Gypsies and Travellers and plot
targets for Travelling Showpeople, which address the likely permanent and transit site
accommodation needs of Travellers in their area, working collaboratively with
neighbouring local planning authorities.
In producing their Local Plan local planning authorities should (Planning Policy for Traveller Sites, para. 9):
»
Identify and annually update a supply of specific deliverable sites sufficient to provide five
years’ worth of sites against their locally set targets.
»
Identify a supply of specific, developable sites or broad locations for growth, for years 6-10
and, where possible, for years 11-15.
»
Consider production of joint development plans that set targets on a cross-authority basis,
to provide more flexibility in identifying sites, particularly if a local planning authority has
special or strict planning constraints across its area (local planning authorities have a duty
to cooperate on strategic planning issues that cross administrative boundaries).
»
Relate the number of pitches or plots to the circumstances of the specific size and location
of the site and the surrounding population’s size and density.
»
Protect local amenity and environment.
Local Authorities now have a duty to ensure a 5 year land supply to meet the identified needs for Traveller
sites. However, ‘Planning Policy for Traveller Sites’ also notes in Paragraph 10 that:
9
»
March 2015
Where there is no identified need, criteria-based policies should be included to provide a
basis for decisions in case applications nevertheless come forward. Criteria-based policies
should be fair and should facilitate the traditional and nomadic life of Travellers, while
respecting the interests of the settled community.
Tackling Inequalities for Gypsy and Traveller Communities
2.16
In April 2012 the Government issued a further document relating to Gypsies and Travellers in the form of
‘Progress report by the ministerial working group on tackling inequalities experienced by Gypsies and
Travellers (CLG April 2012)’. The report contains 28 commitments to help improve the circumstances and
outcomes for Gypsies and Travellers across a range of areas including:
»
Identifying ways of raising educational aspirations and attainment of Gypsy, Roma and
Traveller children;
»
Identifying ways to improve health outcomes for Gypsies and Travellers within the
proposed new structures of the NHS;
»
Encouraging appropriate site provision; building on £60m Traveller Pitch Funding and New
Homes Bonus incentives;
»
Tackling hate crime against Gypsies and Travellers and improving their interaction with
the criminal justice system;
»
Improving knowledge of how Gypsies and Travellers engage with services that provide a
gateway to work opportunities and working with the financial services industry to improve
access to financial products and services;
»
Sharing good practice in engagement between Gypsies and Travellers and public service
providers.
10
March 2015
3. Methodological Overview
Background
3.1
This section sets out the methodological approach that will be used to complete the GTAA studies for the
Berkshire Authorities. This is based on the methodology developed by ORS over the past 10 years through
the completion of GTAA studies for over 100 local authorities in England and Wales, and provides the
required outputs from a Gypsy, Traveller (and Travelling Showpeople) Accommodation Assessment. The
methodology has been updated in light of Planning Policy for Traveller Sites, as well as recent clarification
set out by the Planning Minister in March 2014. The methodology has also taken on board the outcomes of
Local Plan Examinations and Planning Appeals.
Desk-Based Research
3.2
3.3
When undertaking a GTAA Study a range of important secondary data from available sources will be
collated and considered. This will include the following:
»
Census data.
»
Details of all authorised public and private sites and yards.
»
Site management records.
»
Waiting lists.
»
Caravan counts.
»
Records of any unauthorised sites and encampments.
»
Relevant information from planning, housing, education, community safety and health
services.
»
Information from planning applications and appeals – including those that have been
refused and are awaiting determination.
»
Information on any other current enforcement actions.
»
Existing GTAA’s and other relevant local studies.
»
Existing policy, guidance and best practice.
This data will be analysed in conjunction with the outcomes of the other elements of the consultation with
Gypsies and Travellers and Travelling Showpeople and other stakeholders to allow for the completion of a
thorough review of the needs of Travelling Communities in each local authority area.
11
March 2015
Consultation with Stakeholders and Travelling Communities
3.4
Planning Policy for Traveller Sites states that in assembling the evidence base necessary to support their
planning approach, local planning authorities should:
»
‘Pay particular attention to early and effective community engagement with both settled
and traveller communities (including discussing travellers’ accommodation needs with
travellers themselves, their representative bodies and local support groups)
»
Co-operate with travellers, their representative bodies and local support groups, other
local authorities and relevant interest groups to prepare and maintain an up-to-date
understanding of the likely permanent and transit accommodation needs of their areas
over the lifespan of their development plan working collaboratively with neighbouring
local planning authorities.’
Stakeholder Interviews
3.5
Stakeholder consultation will be undertaken by telephone using a structured interview ‘Topic Guide’ that
will be agreed by each local authority, and where local circumstances allow will be complimented by local
focus groups. There can be benefits from using focus groups to complement the telephone interviews as it
allows for a more in-depth discussion about local issues in a group environment and allows for the
clarification of key issues at an early stage in the assessment process. Where focus groups are feasible a
minimum of 2 will be completed in each local authority area. The first with a wide range of local
stakeholders including Council officers from housing, planning, education, environment, community safety
and community development; Gypsy and Traveller Support/Liaison Services; and local authority site
management- and the second with Councillors that could include local Council Members, Cabinet Members
and representatives from Overview and Scrutiny Panels and Regulatory Committees. Representatives from
Ward and District Committees could also be considered to attend this focus group if such arrangements are
in place.
3.6
Telephone interviews will be undertaken by trained interviewers and will include the same range of
stakeholders who may be involved in the focus groups including officers from housing, planning, education,
environment, community safety and community development; Gypsy and Traveller Support/Liaison
Services; local authority site management; as well as a selection of local Councillors.
3.7
In addition a questionnaire, that will be agreed by each local authority, will be sent to any Parish and Town
Councils operating in the given study area. Where there are no Parish or Town Councils other local
representative groups such as Town Forums, Civic Societies and Neighbourhood Planning Groups will be
approached. Telephone interviews will also be conducted with representative groups of the Gypsy and
Traveller community, including the Showmen’s Guild, as part of the stakeholder consultation process.
Where possible efforts will also be made to speak with Planning Agents that operate in each local authority.
3.8
The stakeholder interviews and focus groups will normally cover the following key topics:
»
What dealings or relationships people have with Gypsies and Travellers and Travelling
Showpeople.
»
Experiences of any particular issues in relation to Gypsies and Travellers and Travelling
Showpeople.
12
3.9
March 2015
»
Awareness of any Gypsy and Traveller sites and Travelling Showpeople Yards either with
or without planning permission and whether this varies over the course of a year.
»
Any trends people may be experiencing with regard to Gypsies and Travellers and
Travelling Showpeople (e.g. increase in privately owned sites or temporary sites).
»
What attracts Gypsies & Travellers and Travelling Showpeople to an area.
»
Identification of any seasonal fluctuations that may occur.
»
Awareness of any occurrences of temporary stopping by Gypsies and Travellers and
Travelling Showpeople.
»
Identifying the relationship between the settled and travelling communities including any
positive or negative local circumstances.
»
Awareness of any Gypsies and Travellers and Travelling Showpeople currently residing in
bricks and mortar accommodation.
»
Awareness of any cross boundary issues, including travelling routes.
»
Any other comments.
A standard letter will also be sent by each local authority to the Gypsy Council to request any views that
they may have on the proposed study. The reason for requesting each local authority to contact the Gypsy
Council is that experience from other GTAA studies is that this is more likely to elicit a response from the
Gypsy Council.
Work Collaboratively with Neighbouring Planning Authorities
3.10
Interviews will also be conducted with all neighbouring authorities and any other authorities where a direct
link with the needs of the study area is identified – for example transit sites, wider travelling routes etc.
These interviews will ensure that wider issues that may impact on this project will be fully understood.
These stakeholders will be identified as part of the desk-based review and in conjunction with officers from
the Council. Information will also be requested from neighbouring authorities on the status of their own
GTAA studies and details of estimated current and future need and how these needs are being addressed.
Survey of Travelling Communities
3.11
The desk-based research and stakeholder interviews will seek to identify all authorised and unauthorised
sites and encampments in the study area. This will include permanent and temporary Gypsy and Traveller
sites owned or managed by the Council or other Registered Providers, private sites and pitches with
permanent and temporary planning permission, Travelling Showpeople yards and unauthorised sites and
encampments.
3.12
A full demographic study of all pitches and plots will be undertaken as part of the approach to undertaking
the GTAA as a sample based approach very often leads to an under-estimate of current and future needs
which can be the subject of challenge at subsequent appeals and examinations.
13
March 2015
3.13
All pitches (including those on current unauthorised sites, yards and encampments that are present at the
time of the study) will be visited by experienced researchers. Once it has been determined that a pitch/plot
is occupied by a Gypsy and Traveller or Travelling Showperson (using an agreed ‘screening process 3’) the
researchers will conduct interviews with residents on as many pitches and plots as possible to determine
their current demographic characteristics (including ethnicity, gender, age, household size), whether they
have any current or likely future accommodation needs and how these may be addressed (including any
specific geographic requirements), and whether there are any concealed households or ‘doubling-up’ on
pitches or plots.
3.14
This approach also allows the researchers to identify information about the sites and yards that could help
support any future work on possible site expansion by undertaking a physical assessment of each pitch, and
an overall assessment of each site. A copy of the standard Site/Yard Record Form that is used to record
information about each visit can be found in Appendix C.
3.15
Where no households are present researchers will seek to visit sites/yards a minimum of three times at
different times of the day and days of the week. Where it is not possible to undertake an interview the
researchers will endeavour to capture as much information as possible about each pitch/plot from sources
including neighbouring residents and site management. This will record the number of caravans,
demographic characteristics of the residents, evidence of children, any concealed households and a
physical assessment of the pitch. Where possible an annotated plan of the pitch/plot will also be recorded.
3.16
Where caravans are not occupied by Gypsies and Travellers or Travelling Showpeople this will also be noted
in the site/yard record form. The way that these pitches or plots are dealt with as part of the calculation of
supply and need will be determined in discussion with the relevant Council as careful consideration will
need to be given to the planning permission for the site and associated conditions.
Refusal to be Interviewed
3.17
During the course of a GTAA Study there can be instances where interviewers are refused access to a site or
yard. In these circumstances paragraph 6 (a) of PPTS will be considered which states that local planning
authorities should pay particular attention to early and effective engagement with traveller
communities…including discussing travellers accommodation needs with travellers themselves. Where
access is denied fieldwork staff will seek to determine the demographic characteristics and needs of the
residents as far as possible, and also whether residents on the site are able to meet their own needs. This
information will be included in the calculation of current and future need, and the total number of pitches
will be included in the base for new household formation. Where it is not possible to obtain any
information on residents, and the site is occupied, the total number of permitted pitches will be included in
the base for new household formation. Where residents are not willing to provide any information and
state that they are able to meet their own current and future needs consideration will be given as to
whether to exclude the site from the overall calculation of need.
3
Researchers will ask households what their ethnic status is to determine whether they are Gypsies or Travellers
14
March 2015
Pre-Notification
3.18
It is important to take a full and robust approach to GTAA fieldwork. Whilst pre-notification is not
necessarily advocated for all studies the most appropriate approach to any pre-notification issues will be
discussed with each local authority. This will determine whether pre-notification is appropriate on all, some
or none of the sites or yards in their respective area. Types of pre-notification may involve speaking with
any site managers, Gypsy and Traveller Liaison Officers and community elders, sending out letters or
visiting sites/yards, putting up posters and notices in the local press in order to make people aware of the
purpose of the study. The approach taken and levels of pre-notification publicity will be set out in each
individual local authority report.
Bricks and Mortar Households
3.19
Many Planning Inspectors and appellants question the accuracy of GTAA assessments in relation to those
Gypsies and Travellers living in bricks and mortar accommodation who may wish to move on to a site. As
such all available methods will be used to identify as many households in bricks and mortar who may want
to take part in an interview to determine their future accommodation needs, including a wish to move to a
permanent pitch or plot.
3.20
Contacts will be identified through a wide range of sources including waiting lists for existing sites (the vast
majority of Travelling Showpeople yards are in private ownership and do not have waiting lists), speaking
with people living on existing sites or yards to identify any friends or family living in bricks and mortar who
may wish to move to a site or yard, intelligence from site management, intelligence from the Council and
other local stakeholders including Councillors and Parish Councils, information from Planning Agents and
through placing adverts on social networks and social networking sites such as Friends and Families of
Travellers on Facebook and in printed media such as World’s Fair and Travellers Times. Examples of these
adverts can be found in Appendix D. Face-to-face or telephone interviews will be undertaken with any
contacts that are identified. Through this approach every effort will be made to publicise that a local study
is being undertaken in order to give all households living in bricks and mortar who may wish to move on to
a site the opportunity to make their views known to us.
3.21
As a rule it is not recommended to extrapolate the findings from fieldwork with bricks and mortar
households up to the estimated bricks and mortar population as a whole as this often leads to a significant
over-estimate of the number of households in bricks and mortar wishing to move to a site or a yard. As
such an assumption will be made that all those wishing to move will make their views known based on the
wide range of publicity that will put in place and engagement with the Travelling Community.
Timing of the Fieldwork
3.22
The transient nature of many travelling communities and subsequent seasonal variations in site and yard
occupancy is of particular importance when seeking to engage with the Travelling Community. It is
therefore important that the majority of fieldwork is undertaken during the non-travelling season where
possible, and also to avoid days of known local or national events. However evidence from previous studies
across the country does indicate that a large number of Gypsies and Travellers do remain on sites
throughout the year and it is usually possible to identify the demographic characteristics of those who are
not on site/yard at the time of the fieldwork through neighbouring residents and site management.
15
March 2015
4. Analysis of Current and Future
Accommodation Needs
Pitch Provision
4.1
To identify current and future need, the March 2012 ‘Planning Policy for Traveller Sites’, requires an
assessment for current and future pitch or plot requirements, but does not provide a suggested
methodology for undertaking this calculation. However, as with any housing assessment, the underlying
calculation can be broken down into a relatively small number of factors. In this case, the key issue for
residential pitches is to compare the supply of pitches or plots available for occupation with the current and
future needs of the Traveller population. It is also important to agree on a baseline date that the
assessment is based on. The key factors in each of these elements are set out below:
Supply of pitches or plots
4.2
Pitches or plots which are available for future use can come from a variety of sources. These include:
»
Currently vacant pitches or plots.
»
Any pitches or plots currently with planning consent programmed to be developed within
the study period.
»
Pitches or plots vacated by households moving to bricks and mortar.
»
Pitches or plots vacated by households moving away from the study area.
Currently vacant pitches or plots
4.3
At any one time it is likely that some pitches or plots will be vacant in any area, but this is often due to
travelling or natural turnover as one household moves off a site or yard and another moves move on. For
currently vacant pitches or plots it is important only to count pitches or plots on public or commercially run
private sites or yards which have clear vacancies on them.
4.4
However where the vacant pitches or plots are on private sites or yards a decision will need to be made as
to whether they can be considered as available supply as there may be circumstances where they are not
available. Planning Policy for Traveller Sites is clear on how to consider new supply as being deliverable and
available. Footnotes 7 and 8 on Page 3 state that:
»
7
To be considered deliverable, sites should be available now, offer a suitable location for
development now, and be achievable with a realistic prospect that development will be
delivered on the site within five years and in particular that development of the site is
viable. Sites with planning permission should be considered deliverable until permission
expires, unless there is clear evidence that schemes will not be implemented within five
16
March 2015
years, for example they will not be viable, there is no longer a demand for the type of
units or sites have long term phasing plans.
»
8
To be considered developable, sites should be in a suitable location for traveller site
development and there should be a reasonable prospect that the site is available and
could be viably developed at the point envisaged.
Any pitches or plots currently programmed to be developed within the study period
4.5
This element is drawn from planning records to show sites or yards with planning permission which the
Council reliably understand are going to be developed during the study period. This could also include land
allocations in Local Development Plans. This judgement on whether to include such sites as available supply
will be made following discussions with planning officers in each local authority.
Pitches or plots vacated by households moving to bricks and mortar
4.6
This element is drawn from the site or yard surveys with each household seeking to move to bricks and
mortar counted on a one for one basis with no extrapolation or assumptions about future moves. This is
included in the final calculations under net movement to/from bricks and mortar.
Pitches or plots vacated by households moving out of the study area
4.7
This element will also be identified from the site or yard surveys and will be combined with those moving to
the area to provide an overall figure for net migration.
Current Need
4.8
There are five components of current need. Total current need, which is not necessarily the need for
additional pitches or plots because they may be able to be addressed by space available in the local
authority, is made up of:
»
Households on unauthorised sites or yards (i.e. unauthorised pitches or plots on Traveller’s
own land) without planning permission that are not tolerated;
»
»
Concealed households/Doubling-up/Over-crowding;
»
Households in bricks and mortar wishing to move to sites or yards; and
»
Households on waiting lists for public sites (which could also be households on
unauthorised sites/encampments, concealed households, those in bricks and mortar and
potential in-migrants so it is important that these are not double counted).
Households on unauthorised sites without planning permission
4.9
In addition to information gathered from planning records, a survey will be carried out with residents on
unauthorised developments to determine the number of households and to distinguish between those who
want permanent accommodation in the area and those who require more temporary or transit provision.
17
March 2015
Long-term tolerated sites where enforcement action is not expedient and a certificate of lawful use would
be granted if sought will not be counted as part of this component of need.
4.10
Where it is possible during the fieldwork period a survey will be carried out with households living on
unauthorised encampments to determine the number of households and to distinguish between those who
want permanent accommodation in the area and those who require more temporary or transit provision.
How this element is dealt with in the calculation of current need may differ between local authorities based
on local policies regarding unauthorised encampments.
4.11
There is no clear definition of a concealed household in either National Planning Practice Guidance or
Planning Policy for Traveller Sites.
4.12
The 2011 Census uses 2 definitions which constitute concealed households. Firstly concealed families,
where a couple or lone parent with children are living within a primary family, and secondly adult children
living at home.
4.13
Where a concealed household under either of these definitions wishes to form their own separate family
unit, but are unable to do so because for example of a lack of space on public or private sites or yards, they
become a component of need. Information on concealed households is obtained from the site or yard
survey and from analysis of waiting lists where they are present.
4.14
In addition the site interviews and desk-research will attempt to identify any instances of over-crowding or
doubling-up where the number of caravans on a pitch or plot exceed the number permitted through
planning conditions.
4.15
Care needs to be taken to avoid double-counting, which may be brought about with the same households
being identified on more than one waiting list.
Households in bricks and mortar wishing to move to sites or yards
4.16
Households in bricks and mortar seeking to move to sites or yards are counted on a one for one basis from
within the site or yard survey with no extrapolation or assumptions about future moves. The difficulties
surrounding contacting this group are well recognised as they tend to not self-identify and housing
associations are not routinely collecting data that would help identify them. This Methodology sets out in
Paragraph 3.19-3.21 the approach for making contact with bricks and mortar households.
4.17
The exact treatment of the waiting list will vary from local authority to local authority depending upon how
well they are maintained and who is responsible for maintaining them. Any households on unauthorised
sites or in bricks and mortar who have been counted elsewhere in the calculation are discounted from this
component of need. If the waiting list is up-to-date all households will normally be included, but crosschecks will be undertaken to ensure that there is no double counting with the other components of need,
and to confirm that everyone on the list is still actively looking to be housed on a site. In addition where it is
18
March 2015
possible neighbouring authorities will also be contacted to identify whether individuals are on multiple
waiting lists, and if necessary attempts will be made to speak with households to identify what their
preferences would be.
Future Need
4.18
The next stage of the process is to assess how many households are likely to be seeking pitches or plots in
the area in the future. This would normally be for a period of 15 years, broken down by 5 year bands.
However the overall time period will be determined with each individual local authority. There are three
key components of future need. Total future need is the sum of the following:
»
Households living on sites or yards with temporary planning permissions;
»
New household formation expected during the study period; and
»
Migration to sites from outside the study area.
Households living on sites or yards with temporary planning permissions
4.19
Temporary planning permissions are counted on a one for one basis from planning records unless there is
evidence that the households do not intend to seek to reapply for a new permission.
Household formation and growth rates
4.20
Nationally, a household formation and growth rate of 3% net per annum has been commonly assumed and
widely used in local Gypsy and Traveller assessments, even though there is no statistical evidence of
formation and growth rates. The main conclusions are set out here and the full paper is in Appendix E.
4.21
population and household growth is through demographic analysis.
4.22
In fact, the growth in the national Gypsy and Traveller population may be as low as 1.25% per annum –
much less than the 3% per annum often assumed, but still four times greater than in the settled
community. Even using extreme and unrealistic assumptions, it is hard to find evidence that net Gypsy and
Traveller population and household growth rates are above 2% per annum nationally.
4.23
The often assumed 3% per annum net household growth rate is unrealistic and would require clear
statistical evidence before being used for planning purposes. In practice, the best available evidence
supports a national net household growth rate of 1.5% per annum for Gypsies and Travellers.
19
March 2015
4.25
However, some local authorities might allow for a household growth rate of up to 2.5% per annum, to
provide a ‘safety margin’ and depending on the relative youthfulness of their area populations. In areas
where on-site surveys indicate that there are fewer children in the Gypsy and Traveller population, the
lower estimate of 1.5% per annum should be used. These conclusions are compatible with the latest
planning guidance.
4.26
ORS assessments will take full account of the net local household growth rate per annum for each local
authority, calculated on the basis of evidence from the site surveys, and the ‘baseline’ will include all
current authorised households, all households identified as in current need (including concealed
plot), as well as households living on tolerated unauthorised pitches or plots who are not included as
current need. The assessments of future need will also take account of modelling projections based on
birth and death rates, and in-/out-migration.
4.27
Discussions with local authorities should consider any pitches not occupied by Gypsies and Travellers and
whether these should be included or excluded from the calculations. Overall, the household growth rate
used for the assessment of future needs will be informed by local evidence and included in the reports for
each local authority.
Movement to and from sites and yards
4.28
Assessments should also allow for likely in-migration (households requiring accommodation who move into
the study area from outside) and out-migration (households moving away from the study area). Site
surveys typically identify only small numbers of in- and out-migrant households and the data is not
normally robust enough to extrapolate long-term trends. At the national level, there is nil net migration of
Gypsies and Travellers across the UK, but assessments should take into account local migration effects on
the basis of the best evidence available.
4.29
Evidence drawn from stakeholder and site/yard interviews should be carefully considered alongside other
will be used for the Berkshire GTAA studies – which means that net pitch requirement are driven by locally
identifiable need rather than speculative modelling assumptions. But where there are known likely
in-migrant households they will be included in the needs figures – while stressing the potential for doublecounting across more than one local authority area. Likewise, where there is likely to be movement away
from the study area, the net effects will be taken into consideration when calculating current and future
needs.
4.30
There are three main sources of in-migration that could account for additional needs in the study area. The
first is out-migration from London. However, the majority of ORS’s current or recent assessments in London
(including Bexley, Camden; Hackney, Haringey, Lambeth, Lewisham and the London Legacy Development
Corporation) identify additional need – and work is being progressed by the Boroughs to meet these needs.
20
4.31
March 2015
The second potential source of in-migration is from local authorities with significant areas of Green Belt. A
Ministerial Statement in July 2013 reaffirmed that:
‘The Secretary of State wishes to make clear that, in considering planning applications, although
each case will depend on its facts, he considers that the single issue of unmet demand, whether for
traveller sites or for conventional housing, is unlikely to outweigh harm to the Green Belt and other
harm to constitute the ‘very special circumstances’ justifying inappropriate development in the
Green Belt.’
4.32
This position was reaffirmed in the CLG consultation on revised policy and guidance for Gypsies and
Travellers (September 2014) which suggested placing further restrictions on the development of Traveller
sites in the Green Belt:
‘Subject to the best interests of the child, unmet need and personal circumstances are unlikely to
outweigh harm to the Green Belt and any other harm so as to establish very special circumstances.’
4.33
However, this does not remove the requirement for local authorities with Green Belt to assess their needs
and provide pitches/plots where this is possible. Where this is not possible Paragraphs 178 and 179 of the
NPPF set out that ‘Joint working should enable local planning authorities to work together to meet
development requirements which cannot wholly be met within their own areas’. It is not the place of the
Gypsy and Traveller Accommodation Assessment to assume one authority will meet the needs of another;
and authorities unable to meet their own needs should work with neighbours to do so. This process is well
established in general housing provision. Areas of Outstanding Natural Beauty (AONBs) may also need to
address similar issues in the same way, given local authorities’ duty to conserve and enhance these areas.
4.34
The final main source of in-migration to the study area is from the closure of unauthorised sites and
encampments. There are several well documented cases of large-scale movements of Gypsies and
Travellers following enforcement action against unauthorised sites – for example, from Dale Farm in Essex.
4.35
If in-migration to a study area is a source of demand for pitches, out-migration is a source of supply. The
potential for the supply of some pitches arising from out-migration includes households moving to other
areas from private sites with general planning consent for Gypsy or Traveller occupation and selling the
sites to other Gypsy and Travellers or for housing development; and households moving away from private
sites with personal planning consents, so that the sites revert to their previous status.
4.36
In ORS assessments, the likely net effects of inward and outward movements to and from sites and yards
are considered in the light of local circumstances in each local authority area and on the basis of evidence
collected during the stakeholder interviews and fieldwork.
21
March 2015
Final Outcomes
4.37
All of the components of supply and need will be presented in easy to understand tables which will identify
the overall net requirement for current and future accommodation. Separate tables will be prepared for
the current and future needs of Gypsies and Travellers and Travelling Showpeople. The need for transit
provision will also be addressed. The total need will be broken down into 5 year bands and will include all
current need and temporary planning permissions, together with new household formation based on the
demographics identified during the site visits and any identified net migration.
Provision for Gypsies and Travellers
Current and
Future Need
Future Supply of Pitches
Additional supply from vacant public and private pitches
Additional supply from pitches on new sites
Pitches vacated by households moving to bricks and mortar
Pitches vacated by households moving away from the study area
Total Supply
Current Need
Households on unauthorised developments
Total Current Need
Future Need
Households on sites with temporary planning permission
In-migration
New household formation
(Base number of households XXX and formation rate X.XX%)
Total Future Needs
Total = (Current and Future Need – Total Supply)
22
Supply
Net Pitch
Requirement
March 2015
Provision for Travelling Showpeople
Current and
Future Need
Supply
Net Plot
Requirement
Future Supply of Plots
Additional supply from vacant public and private plots
Additional supply from plots on new yards
Plots vacated by households moving to bricks and mortar
Plots vacated by households moving away from the study area
Total Supply
Current Need
Households on unauthorised developments
Households on waiting lists for public yards
Total Current Need
Future Need
Households on yards with temporary planning permission
In-migration
New household formation
(Base number of households XXX and formation rate X.XX%)
Total Future Needs
Total = (Current and Future Need – Total Supply)
Transit Provision
4.38
4.39
GTAA studies often require the identification of demand for any transit sites or stopping places. While the
majority of Gypsies and Travellers have permanent bases either on Gypsy and Traveller sites or in bricks
and mortar and no longer travel, other members of the community either travel permanently or for part of
the year. Due to the mobile nature of the population a range of sites can be developed to accommodate
Gypsies and Travellers as they move through different areas.
»
Transit sites - full facilities where Gypsies and Travellers might live temporarily (for up to
three months) – for example, to work locally, for holidays or to visit family and friends.
»
Stopping places - more limited facilities.
»
Temporary sites and stopping places - only temporary facilities to cater for an event.
Transit sites serve a specific function of meeting the needs of Gypsy and Traveller households who are
visiting an area or who are passing through on the way to somewhere else. A transit site typically has a
restriction on the length of stay of usually around 13 weeks and has a range of facilities such as water
supply, electricity and amenity blocks.
23
March 2015
4.40
An alternative to or in addition to a transit site is an emergency stopping place. This type of site also has
restrictions on the length of time for which someone can stay on it, but has much more limited facilities
with typically only a source of water and chemical toilets provided.
4.41
Temporary stopping places can be made available at times of increased demand due to fairs or cultural
celebrations that are attended by Gypsies and Travellers. A charge may be levied as determined by the local
authority although they only need to provide basic facilities including: a cold water supply; portaloos;
sewerage disposal point and refuse disposal facilities.
4.42
The Criminal Justice and Public Order Act 1994 (Sections 61, 62, 77 and 78) is particularly important with
regard to the issue of Gypsy and Traveller transit site provision. Section 62A of the Act allows the police to
direct trespassers to remove themselves and their vehicles and property from any land where a suitable
transit pitch on a relevant caravan site is available within the same local authority area (or within the
county in two-tier local authority areas).
4.43
It is necessary to investigate the role of transit sites when undertaking a GTAA study. This will seek to
include analysis of records of unauthorised sites and encampments; the use of and capacity of existing
transit provision where it is present; and where they are possible interviews with Gypsies and Travellers on
these sites to identify whether their needs are for transit accommodation or the desire to settle down more
permanently in any given locality. The outcomes of the interviews with Council Officers, Officers from
neighbouring local authorities and other stakeholders will also be taken into consideration.
24
March 2015
Appendix A: Glossary of Terms
Amenity block/shed
Bricks and mortar
Caravan
Chalet
Concealed household
Doubling-Up
Emergency Stopping Place
Green Belt
Household formation
In-migration
Local Plans
Out-migration
Personal planning permission
Pitch/plot
A building where basic plumbing amenities
(bath/shower, WC, sink) are provided.
Mainstream housing.
Mobile living vehicle used by Gypsies and Travellers.
Also referred to as trailers.
A single storey residential unit which can be
dismantled. Sometimes referred to as mobile
homes.
Households, living within other households, who
are unable to set up separate family units.
Where there are more than the permitted number
of caravans on a pitch or plot.
A temporary site with limited facilities to be
occupied by Gypsies and Travellers while they
travel.
A land use designation used to check the
unrestricted sprawl of large built-up areas; prevent
neighbouring towns from merging into one another;
assist in safeguarding the countryside from
encroachment; preserve the setting and special
character of historic towns; and assist in urban
regeneration, by encouraging the recycling of
derelict and other urban land.
The process where individuals form separate
households. This is normally through adult children
setting up their own household.
Movement into or come to live in a region or
community
Local Authority spatial planning documents that can
include specific policies and/or site allocations for
Gypsies, Travellers and Travelling Showpeople.
Movement from one region or community in order
to settle in another.
A private site where the planning permission
specifies who can occupy the site and doesn’t allow
transfer of ownership.
Area of land on a site/development generally home
to one household. Can be varying sizes and have
varying caravan numbers. Pitches refer to Gypsy
and Traveller sites and Plots to Travelling
Showpeople yards.
25
Private site
Site
Social/Public/Council Site
Temporary planning permission
Tolerated site/yard
Transit provision
Unauthorised Development
Unauthorised Encampment
Waiting list
Yard
March 2015
An authorised site owned privately. Can be owneroccupied, rented or a mixture of owner-occupied
and rented pitches.
An area of land on which Gypsies, Travellers and
Travelling Showpeople are accommodated in
caravans/chalets/vehicles. Can contain one or
multiple pitches/plots.
An authorised site owned by either the local
authority or a Registered Housing Provider.
A private site with planning permission for a fixed
period of time.
Long-term tolerated sites or yards where
enforcement action is not expedient and a
certificate of lawful use would be granted if sought.
Site intended for short stays and containing a range
of facilities. There is normally a limit on the length
of time residents can stay.
Caravans on land owned by Gypsies and Travellers
and without planning permission.
Caravans on land not owned by Gypsies and
Travellers and without planning permission.
Record held by the local authority or site managers
of applications to live on a site.
A name often used by Travelling Showpeople to
refer to a site.
26
Appendix B: Letter from Planning
Minister
27
March 2015
~~~
Department for
Communities and
Local Government
Andrew Selous MP
House of Commons
London
SW1A OAA
Brandon Lewis MP
Parliamentary Under Secretary of State
Department for Communities and Local
Government
Eland House
Bressenden Place
London SW1E 50U
Tel: 0303444 3430
Fax: 0303 444 3986
E-Mail: brandon.lewis@communities.gsi.gov.uk
www.gov.uk/dclg
2 !I MAR 2014
I would like to thank you for raising the debate on traveller planning policy held on 4
February, in which you highlighted concerns about the use of the 3% annual growth rate for
the traveller population in assessing future site needs.
I can confirm that the annual growth rate figure of 3% does not represent national planning
policy.
Through powers in the Localism Act we revoked the last Administration's regional strategies,
which imposed top-down traveller pitch targets on local councils, and through our planning
policy for traveller sites returned to councils the freedom and responsibility to plan to meet
their traveller community's site needs.
In much the same way as we expect councils to plan to meet the housing needs of their
settled community, our policy sets out that local authorities should undertake and update their
own assessment of future traveller site need, based on robust evidence.
The previous Administration's guidance for local authorities on carrylnq out Gypsy and
Traveller Accommodation Assessments under the Housing Act 2004 is unhelpful in that it
uses an illustrative example of calculating future accommodation need based on the 3%
gmwth rate figure. The guidance notes that the appropriate rate for individual assessments
will depend on the details identified in the local authority's own assessment of need. As such
the Government is not endorsing or swpporting the 3% growth rate figure, though in some
cases we are aware that inspectors have, in considering the level of unmet local need when
deterrnlrunq specific traveller appeals, used the 3% growth rate igure in the absence of a
local authority's own up-to-date assessment of need.
I consider the current guidance is in need of up-dating Following the recent consolidation of
planning glllidance (as announced in Nick Boles' recent written statement), we will be seeking
to consult on updating and streamlining the remaining elements of traveller planning practice
guialance and also on strengthening traveller planning policy, as outlined in my written
statement of 17 January. We will ensure that any new guidance supports councils to
accurately assess their needs and would remove ambiguous references to the 3% growth
rate figllJlre,Which, I stress, is only illustrative. This would, once published, have the effect of
cancelling the last Adminlstratlon's guidance.
I will ask my 0 ficials to raise this matter with the Planning Inspectorate to re-confirm that
planning policy requires local authorities to robustly assess their own needs. I hope this
clarifies the Government's posftion on this issue and addresses the concerns you raise. I am
placing this letter in the Library of the House, given the important policy points you raise and
sending a copy to those MP's present at the debate on 4 February.
BRANDON LEWIS MP
March 2015
Appendix C: Site/Yard Record Form
Gypsy & Traveller Accommodation Assessment – Site/Pitch, Yard/Plot Record
Site/Yard Survey Information
Name of Local Authority
Date of Site/Yard Visit
Time of Site/Yard Visit
Name of Interviewer(s)
Name/Address of Site/Yard
Type of Site/Yard
Plot/Pitch Number (if applicable)
Planning Status
Council / Social / Private / Unauthorised
Full Permission / Temporary Permission / Unauthorised
Number of Caravans
Number of other Buildings
(include details)
Family Demographics
Caravan 1
Name of Family
If family not present note who provided the information
Romany Gypsy / Irish Traveller / Scots Gypsy or Traveller
/ Show Person / New Traveller / English Traveller /
Welsh Gypsy / Non Traveller (specify) / Other (specify)
Ethnicity of Family
Person 1
Sex
Age
Person 2
Sex
Age
Concealed Households?
Person 3
Sex
Age
Person 4
Sex
Age
Person 5
Sex
Yes / No
Details:
Any future needs?
30
Age
Person 6
Sex
Age
Person 7
Sex
Age
Person 8
Sex
Age
Do any families want to move to
bricks and mortar?
Details and what waiting list(s) they are on
Contacts for Bricks & Mortar
Interviews
Details of any friends or family living in bricks and
mortar who want to move to a site:
Any other information
Site/Pitch Plan
Sketch of Site/Pitch
31
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Appendix D: Bricks & Mortar Adverts
Friends, Families of Travellers – May 2014
32
World’s Fair – May 2014
33
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Appendix E: Technical Paper on
Household Formation
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Opinion Research
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Gypsy and Traveller Methodology: Household Formation and Growth Rates
March 2015
Technical Note
Gypsy and Traveller Household
Formation and Growth Rates
March 31st 2015
Spin-out company of Swansea University
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As with all our studies, this research is subject to Opinion Research Services’ Standard
Terms and Conditions of Contract.
Any press release or publication of this research requires the advance approval of ORS.
Such approval will only be refused on the grounds of inaccuracy or misrepresentation.
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Contents
Household Growth Rates........................................................................................................................ 4
Abstract and conclusions ............................................................................................................................... 4
Introduction ................................................................................................................................................... 4
Compound growth......................................................................................................................................... 6
Caravan counts .............................................................................................................................................. 7
Modelling population growth........................................................................................................................ 8
Household growth ....................................................................................................................................... 12
Household dissolution rates ........................................................................................................................ 14
Summary conclusions .................................................................................................................................. 14
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Household Growth Rates
Abstract and conclusions
1.
National and local household formation and growth rates are important components of Gypsy and Traveller
accommodation assessments, but little detailed work has been done to assess their likely scale.
Nonetheless, nationally, a net growth rate of 3% per annum has been commonly assumed and widely used
in local assessments – even though there is actually no statistical evidence of households growing so
quickly. The result has been to inflate both national and local requirements for additional pitches
unrealistically.
2.
population and household growth is through demographic analysis (which, of course, is used to assess
housing needs in the settled community).
3.
The growth in the Gypsy and Traveller population may be as low as 1.25% per annum – a rate which is
much less than the 3% per annum often assumed, but still at least four times greater than in the general
population. Even using extreme and unrealistic assumptions, it is hard to find evidence that net Gypsy and
Traveller population and household growth rates are above 2% per annum nationally.
4.
The often assumed 3% per annum net household growth rate is unrealistic and would require clear
statistical evidence before being used for planning purposes. In practice, the best available evidence
supports a national net household growth rate of 1.5% per annum for Gypsies and Travellers.
5.
Some local authorities might perhaps allow for a household growth rate of up to 2.5% per annum, to
provide a ‘margin’ if their populations are relatively youthful; but in areas where on-site surveys indicate
that there are fewer children in the Gypsy and Traveller communities, the lower estimate of 1.5% per
annum should be used for planning purposes.
Introduction
6.
The rate of household growth is a key element in all housing assessments, including Gypsy and Traveller
accommodation assessments. Compared with the general population, the relative youthfulness of many
Gypsy and Traveller populations means that their birth rates are likely to generate higher-than-average
population growth, and proportionately higher gross household formation rates. However, while their
gross rate of household growth might be high, Gypsy and Traveller communities’ future accommodation
needs are, in practice, affected by any reduction in the number of households due to dissolution and/or by
movements in/out of the area and/or by transfers into other forms of housing. Therefore, the net rate of
household growth is the gross rate of formation minus any reductions in households due to such factors. Of
course, it is the net rate that is important in determining future accommodation needs for Gypsies and
Travellers.
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7.
In this context, it is a matter of concern that many Gypsy and Traveller accommodation needs assessments
have not distinguished gross and net growth rates nor provided evidence for their assumed rates of
household increase. These deficiencies are particularly important because when assumed growth rates are
unrealistically high, and then compounded over a number of planning years, they can yield exaggerated
projections of accommodation needs and misdirect public policy. Nonetheless, assessments and guidance
documents have assumed ‘standard’ net growth rates of about 3% without sufficiently recognising either
the range of factors impacting on the gross household growth rates or the implications of unrealistic
assumptions when projected forward on a compound basis year by year.
8.
For example, in a study for the Office of the Deputy Prime Minister (‘Local Authority Gypsy and Traveller
Sites in England’, 2003), Pat Niner concluded that net growth rates as high as 2%-3% per annum should be
assumed. Similarly, the Regional Spatial Strategies (RSS) (which continued to be quoted after their abolition
was announced in 2010) used net growth rates of 3% per annum without providing any evidence to justify
the figure (For example, ‘Accommodation for Gypsies and Travellers and Travelling Showpeople in the East
of England: A Revision to the Regional Spatial Strategy for the East of England July 2009’).
9.
However, the guidance of the Department of Communities and Local Government (‘Gypsy and Traveller
Accommodation Needs Assessments: Guidance’, 2007) was much clearer in saying that:
The 3% family formation growth rate is used here as an example only. The appropriate rate
for individual assessments will depend on the details identified in the local survey,
information from agencies working directly with local Gypsy and Traveller communities, and
trends identified from figures previously given for the caravan count. [In footnote 6, page 25]
10.
The guidance emphasises that local information and trends should always be taken into account – because
the gross rate of household growth is moderated by reductions in households through dissolution and/or
by households moving into bricks and mortar housing or moving to other areas. In other words, even if 3%
is plausible as a gross growth rate, it is subject to moderation through such reductions in households
through dissolution or moves. It is the resulting net household growth rate that matters for planning
purposes in assessing future accommodation needs.
11.
The current guidance also recognises that assessments should use local evidence for net future household
growth rates. A letter from the Minister for Communities and Local Government (Brandon Lewis MP), to
Andrew Selous MP (placed in the House of Commons library on March 26th 2014) said:
I can confirm that the annual growth rate figure of 3% does not represent national planning
policy.
The previous Administration's guidance for local authorities on carrying out Gypsy and
Traveller Accommodation Assessments under the Housing Act 2004 is unhelpful in that it uses
an illustrative example of calculating future accommodation need based on the 3% growth
rate figure. The guidance notes that the appropriate rate for individual assessments will
depend on the details identified in the local authority's own assessment of need. As such the
Government is not endorsing or supporting the 3% growth rate figure,’
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Therefore, while there are many assessments where a national Gypsy and Traveller household growth rate
of 3% per annum has been assumed (on the basis of ‘standard’ precedent and/or guidance), there is little to
justify this position and it conflicts with current planning guidance. In this context, this document seeks to
integrate available evidence about net household growth rates in order to provide a more robust basis for
future assessments.
Compound growth
13.
The assumed rate of household growth is crucially important for Gypsy and Traveller studies because for
future planning purposes it is projected over time on a compound basis – so errors are progressively
enlarged. For example, if an assumed 3% net growth rate is compounded each year then the implication is
that the number of households will double in only 23.5 years; whereas if a net compound rate of 1.5% is
used then the doubling of household numbers would take 46.5 years. The table below shows the impact of
a range of compound growth rates.
Table 1
Compound Growth Rates and Time Taken for Number of Households to Double
14.
Household Growth Rate per Annum
Time Taken for Household to Double
3.00%
23.5 years
2.75%
25.5 years
2.50%
28 years
2.25%
31 years
2.00%
35 years
1.75%
40 years
1.50%
46.5 years
The above analysis is vivid enough, but another illustration of how different rates of household growth
impact on total numbers over time is shown in the table below – which uses a baseline of 100 households
while applying different compound growth rates over time. After 5 years, the difference between a 1.5%
growth rate and a 3% growth rate is only 8 households (116 minus 108); but with a 20-year projection the
difference is 46 households (181 minus 135).
Table 2
Growth in Households Over time from a Baseline of 100 Households
Household Growth Rate per Annum
5 years
10 years
15 years
20 years
50 years
100 years
3.00%
116
134
156
181
438
1,922
2.75%
115
131
150
172
388
1,507
2.50%
113
128
145
164
344
1,181
2.25%
112
125
140
156
304
925
2.00%
110
122
135
149
269
724
1.75%
109
119
130
141
238
567
1.50%
108
116
125
135
211
443
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March 2015
In summary, the assumed rate of household growth is crucially important because any exaggerations are
magnified when the rate is projected over time on a compound basis. As we have shown, when
compounded and projected over the years, a 3% annual rate of household growth implies much larger
future Gypsy and Traveller accommodation requirements than a 1.5% per annum rate.
Caravan counts
16.
Those seeking to demonstrate national Gypsy and Traveller household growth rates of 3% or more per
annum have, in some cases, relied on increases in the number of caravans (as reflected in caravan counts)
as their evidence. For example, some planning agents have suggested using 5-year trends in the national
caravan count as an indication of the general rate of Gypsy and Traveller household growth. For example,
the count from July 2008 to July 2013 shows a growth of 19% in the number of caravans on-site – which is
equivalent to an average annual compound growth rate of 3.5%. So, if plausible, this approach could justify
using a 3% or higher annual household growth rate in projections of future needs.
17.
However, caravan count data are unreliable and erratic. For example, the July 2013 caravan count was
distorted by the inclusion of 1,000 caravans (5% of the total in England) recorded at a Christian event near
Weston-Super-Mare in North Somerset. Not only was this only an estimated number, but there were no
checks carried out to establish how many caravans were occupied by Gypsies and Travellers. Therefore, the
resulting count overstates the Gypsy and Traveller population and also the rate of household growth.
18.
ORS has applied the caravan-counting methodology hypothetically to calculate the implied national
household growth rates for Gypsies and Travellers over the last 15 years, and the outcomes are shown in
the table below. The January 2013 count suggests an average annual growth rate of 1.6% over five years,
while the July 2013 count gives an average 5-year rate of 3.5%; likewise a study benchmarked at January
2004 would yield a growth rate of 1%, while one benchmarked at January 2008 would imply a 5% rate of
growth. Clearly any model as erratic as this is not appropriate for future planning.
Table 3
National CLG Caravan Count July 1998 to July 2014 with Growth Rates (Source: CLG)
Date
Number of
caravans
5 year growth in
caravans
Percentage
growth over 5
years
Annual
over last
5 years.
July 2014
20,035
2,598
14.90%
2.81%
Jan 2014
19,503
1,638
9.17%
1.77%
July 2013
20,911
3,339
19.00%
3.54%
Jan 2013
19,359
1,515
8.49%
1.64%
Jul 2012
19,261
2,112
12.32%
2.35%
Jan 2012
18,746
2,135
12.85%
2.45%
Jul 2011
18,571
2,258
13.84%
2.63%
Jan 2011
18,383
2,637
16.75%
3.15%
Jul 2010
18,134
2,271
14.32%
2.71%
Jan 2010
18,370
3,001
19.53%
3.63%
Jul 2009
17,437
2,318
15.33%
2.89%
Jan 2009
17,865
3,503
24.39%
4.46%
Jul 2008
17,572
2,872
19.54%
3.63%
Jan 2008
17,844
3,895
27.92%
5.05%
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Jul 2007
17,149
2,948
20.76%
3.84%
Jan 2007
16,611
2,893
21.09%
3.90%
Jul 2006
16,313
2,511
18.19%
3.40%
Jan 2006
15,746
2,352
17.56%
3.29%
Jul 2005
15,863
2,098
15.24%
2.88%
Jan 2005
15,369
1,970
14.70%
2.78%
Jul 2004
15,119
2,110
16.22%
3.05%
Jan 2004
14,362
817
6.03%
1.18%
Jul 2003
14,700
Jan 2003
13,949
Jul 2002
14,201
Jan 2002
13,718
Jul 2001
13,802
Jan 2001
13,394
Jul 2000
13,765
Jan 2000
13,399
Jan 1999
13,009
Jul 1998
13,545
19.
The annual rates of growth in the number of caravans varies from slightly over 1% to just over 5% per
annum, but there is no reason to assume that these widely varying rates correspond with similar rates of
increase in the household population. In fact, the highest rates of caravan growth occurred between 2006
and 2009, when the first wave of Gypsy and Traveller accommodation needs assessments were being
undertaken – so it seems plausible that the assessments prompted the inclusion of additional sites and
caravans (which may have been there, but not counted previously). It is also possible, of course, that the
growth of caravan numbers reflects the provision on some sites of rental accommodation for non-Gypsy
and Traveller migrant workers.
20.
In any case, there is no reason to believe that the varying rates of increase in the number of caravans are
matched by similar growth rates in the household population. The caravan count is not an appropriate
planning guide and the only proper way to project future population and household growth is through
demographic analysis – which should consider both population and household growth rates.
Modelling population growth
Introduction
21.
The basic equation for calculating the rate of Gypsy and Traveller population growth seems simple: start
with the base population and then calculate the average increase/decrease by allowing for births, deaths
and in-/out-migration. Nevertheless, deriving satisfactory estimates is difficult because the evidence is
often tenuous – so, in this context, ORS has modelled the growth of the national Gypsy and Traveller
population based on the most likely birth and death rates, and by using PopGroup (the leading software for
population and household forecasting). To do so, we have supplemented the available national statistical
sources with data derived locally (from our own surveys) and in some cases from international research.
None of the supplementary data are beyond question, and none will stand alone; but, when taken together
they have cumulative force. In any case the approach we adopt is more critically self-aware than simply
adopting ‘standard’ rates on the basis of precedent.
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Migration effects
22.
Population growth is affected by national net migration and local migration (as Gypsies and Travellers move
from one area to another). In terms of national migration, the population of Gypsies and Travellers is
relatively fixed, with little international migration. It is in principle possible for Irish Travellers (based in
Ireland) to move to the UK, but there is no evidence of this happening to a significant extent and the vast
majority of Irish Travellers were born in the UK or are long-term residents. In relation to local migration
effects, Gypsies and Travellers can and do move between local authorities – but in each case the inmigration to one area is matched by an out-migration from another area. Since it is difficult to estimate the
net effect of such movements over local plan periods, ORS normally assumes that there will be nil net
migration to/from an area. Nonetheless, where it is possible to estimate specific in-/out- migration effects,
we take account of them, while distinguishing between migration and household formation effects.
Population profile
23.
The main source for the rate of Gypsy and Traveller population growth is the UK 2011 Census. In some
cases the data can be supplemented by ORS’s own household survey data which is derived from more than
2,000 face-to-face interviews with Gypsies and Travellers since 2012. The ethnicity question in the 2011
census included for the first time ‘Gypsy and Irish Traveller’ as a specific category. While non-response bias
probably means that the size of the population was underestimated, the age profile the census provides is
not necessarily distorted and matches the profile derived from ORS’s extensive household surveys.
24.
The age profile is important, as the table below (derived from census data) shows. Even assuming zero
deaths in the population, achieving an annual population growth of 3% (that is, doubling in size every 23.5
years) would require half of the “year one” population to be aged under 23.5 years. When deaths are
accounted for (at a rate of 0.5% per annum), to achieve the same rate of growth, a population of Gypsies
and Travellers would need about half its members to be aged under 16 years. In fact, though, the 2011
census shows that the midway age point for the national Gypsy and Traveller population is 26 years – so
the population could not possibly double in 23.5 years.
Table 4
Age Profile for the Gypsy and Traveller Community in England (Source: UK Census of Population 2011)
Age Group
Number of People
Cumulative Percentage
Age 0 to 4
5,725
10.4
Age 5 to 7
3,219
16.3
Age 8 to 9
2,006
19.9
Age 10 to 14
5,431
29.8
Age 15
1,089
31.8
Age 16 to 17
2,145
35.7
Age 18 to 19
1,750
38.9
Age 20 to 24
4,464
47.1
Age 25 to 29
4,189
54.7
Age 30 to 34
3,833
61.7
Age 35 to 39
3,779
68.5
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Age 40 to 44
3,828
75.5
Age 45 to 49
3,547
82.0
Age 50 to 54
2,811
87.1
Age 55 to 59
2,074
90.9
Age 60 to 64
1,758
94.1
Age 65 to 69
1,215
96.3
Age 70 to 74
905
97.9
Age 75 to 79
594
99.0
Age 80 to 84
303
99.6
Age 85 and over
230
100.0
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Birth and fertility rates
25.
The table above provides a way of understanding the rate of population growth through births. The table
shows that surviving children aged 0-4 years comprise 10.4% of the Gypsy and Traveller population – which
means that, on average, 2.1% of the total population was born each year (over the last 5 years). The same
estimate is confirmed if we consider that those aged 0-14 comprise 29.8% of the Gypsy and Traveller
population – which also means that almost exactly 2% of the population was born each year. (Deaths
during infancy will have minimal impact within the early age groups, so the data provides the best basis for
estimating of the birth rate for the Gypsy and Traveller population.)
26.
The total fertility rate (TFR) for the whole UK population is just below 2 – which means that on average
each woman can be expected to have just less than two children who reach adulthood. Unfortunately, we
know of no reliable national data on the fertility rates of the UK Gypsy and Traveller community so the
modelling has to be inferential in using plausible (but never perfect) comparative data. One source is
Hungary, where considerable detailed analysis has shown that its Roma population has a TFR of about 3.
(For more information see: http://www.romaniworld.com/cessmod01.htm and
http://www.tarki.hu/adatbank-h/kutjel/pdf/a779.pdf).
27.
While it would be unsatisfactory to rely only on the Hungarian data (however well researched), it is
significant that ORS’s own survey data is consistent with a TFR of about 3. The ORS data shows that, on
average, Gypsy and Traveller women aged 32 years have 2.5 children (but, because the children of mothers
above this age point tend to leave home progressively, full TFRs were not completed). It is reasonable,
then, to assume an average of three children per woman during her lifetime. In any case, the TFR for
women aged 24 years is 1.5 children, which is significantly short of the number needed to double the
population in 23.5 years – and therefore certainly implies a net growth rate of less than 3% per annum.
Death rates
28.
Although the above data imply an annual growth rate through births of about 2%, the death rate has also
to be taken into account – which means that the net population growth cannot conceivably achieve 2% per
annum. In England and Wales there are nearly half-a-million deaths each year – about 0.85% of the total
population of 56.1 million in 2011. If this death rate is applied to the Gypsy and Traveller community then
the resulting projected growth rate is in the region of 1.15%-1.25% per annum.
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29.
However, the Gypsy and Traveller population is significantly younger than average and may be expected to
have a lower percentage death rate overall (even though a smaller than average proportion of the
population lives beyond 68 to 70 years). While there can be no certainty, an assumed death rate of around
0.5% to 0.6% per annum would imply a net population growth rate of around 1.5% per annum.
30.
Even though the population is younger and has a lower death rate than average, Gypsies and Travellers are
less likely than average to live beyond 68 to 70 years. Whereas the average life expectancy across the
whole population of the UK is currently just over 80 years, a Sheffield University study found that Gypsy
and Traveller life expectancy is about 10-12 years less than average (Parry et al (2004) ‘The Health Status of
Gypsies and Travellers: Report of Department of Health Inequalities in Health Research Initiative’,
University of Sheffield). Therefore, in our population growth modelling we have used a conservative
estimate of average life expectancy as 72 years – which is entirely consistent with the lower-than-average
number of Gypsies and Travellers aged over 70 years in the 2011 census (and also in ORS’s own survey
data). On the basis of the Sheffield study, we could have supposed a life expectancy of only 68, but we have
been cautious in our approach.
Modelling outputs
31.
If we assume a TFR of 3 and an average life expectancy of 72 years for Gypsies and Travellers, then the
modelling projects the population to increase by 66% over the next 40 years – implying a population
compound growth rate of 1.25% per annum (well below the 3% per annum often assumed). If we assume
that Gypsy and Traveller life expectancy increases to 77 years by 2050, then the projected population
growth rate rises to nearly 1.5% per annum. To generate an ‘upper range’ rate of population growth, we
have assumed a TFR of 4 and an average life expectancy rising to 77 over the next 40 years – which then
yields an ‘upper range’ growth rate of 1.9% per annum. We should note, though, that national TFR rates of
4 are currently found only in sub-Saharan Africa and Afghanistan, so it is an implausible assumption.
32.
There are indications that these modelling outputs are well founded. For example, in the ONS’s 2012-based
Sub-National Population Projections the projected population growth rate for England to 2037 is 0.6% per
annum, of which 60% is due to natural change and 40% due to migration. Therefore, the natural population
growth rate for England is almost exactly 0.35% per annum – meaning that our estimate of the Gypsy and
Traveller population growth rate is four times greater than that of the general population of England.
33.
The ORS Gypsy and Traveller findings are also supported by data for comparable populations around the
world. As noted, on the basis of sophisticated analysis, Hungary is planning for its Roma population to grow
at around 2.0% per annum, but the underlying demographic growth is typically closer to 1.5% per annum.
The World Bank estimates that the populations of Bolivia, Cambodia, Egypt, Malaysia, Pakistan, Paraguay,
Philippines and Venezuela (countries with high birth rates and improving life expectancy) all show
population growth rates of around 1.7% per annum. Therefore, in the context of national data, ORS’s
modelling and plausible international comparisons, it is implausible to assume a net 3% annual growth rate
for the Gypsy and Traveller population.
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Household growth
34.
In addition to population growth influencing the number of households, the size of households also affects
the number. Hence, population and household growth rates do not necessarily match directly, mainly due
to the current tendency for people to live in smaller (childless or single person) households (including, of
course, older people (following divorce or as surviving partners)). Based on such factors, the CLG 2012based projections convert current population data to a projected household growth rate of 0.85% per
annum (compared with a population growth rate of 0.6% per annum).
35.
Because the Gypsy and Traveller population is relatively young and has many single parent households, a
1.5% annual population growth could yield higher-than-average household growth rates, particularly if
average household sizes fall or if younger-than-average households form. However, while there is evidence
that Gypsy and Traveller households already form at an earlier age than in the general population, the
scope for a more rapid rate of growth, through even earlier household formation, is limited.
36.
Based on the 2011 census, the table below compares the age of household representatives in English
households with those in Gypsy and Traveller households – showing that the latter has many more
household representatives aged under-25 years. In the general English population 3.6% of household
representatives are aged 16-24, compared with 8.7% in the Gypsy and Traveller population. Because the
census includes both housed and on-site Gypsies and Travellers without differentiation, it is not possible to
know if there are different formation rates on sites and in housing. However, ORS’s survey data (for sites in
areas such as Central Bedfordshire, Cheshire, Essex, Gloucestershire and a number of authorities in
Hertfordshire) shows that about 10% of Gypsy and Traveller households have household representatives
aged under-25 years.
Table 5
Age of Head of Household (Source: UK Census of Population 2011)
All households in England
Age of household representative
Gypsy and Traveller
households in England
Number of
households
Percentage of
households
Number of
households
Percentage
of
households
790,974
3.6%
1,698
8.7%
Age 25 to 34
3,158,258
14.3%
4,232
21.7%
Age 35 to 49
6,563,651
29.7%
6,899
35.5%
Age 50 to 64
5,828,761
26.4%
4,310
22.2%
Age 65 to 74
2,764,474
12.5%
1,473
7.6%
Age 75 to 84
2,097,807
9.5%
682
3.5%
859,443
3.9%
164
0.8%
22,063,368
100%
19,458
100%
Age 24 and under
Age 85 and over
Total
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37.
March 2015
The following table shows that the proportion of single person Gypsy and Traveller households is not
dissimilar to the wider population of England; but there are more lone parents, fewer couples without
children, and fewer households with non-dependent children amongst Gypsies and Travellers. This data
suggest that Gypsy and Traveller households form at an earlier age than the general population.
Table 6
Household Type (Source: UK Census of Population 2011)
All households in England
Household Type
Gypsy and Traveller
households in England
Number of
households
Percentage of
households
Number of
households
Percentage
of
households
Single person
6,666,493
30.3%
5,741
29.5%
Couple with no children
5,681,847
25.7%
2345
12.1%
Couple with dependent children
4,266,670
19.3%
3683
18.9%
Couple with non-dependent children
1,342,841
6.1%
822
4.2%
Lone parent: Dependent children
1,573,255
7.1%
3,949
20.3%
766,569
3.5%
795
4.1%
Other households
1,765,693
8.0%
2,123
10.9%
Total
22,063,368
100%
19,458
100%
Lone parent: All children non-dependent
38.
ORS’s own site survey data is broadly compatible with the data above. We have found that: around 50% of
pitches have dependent children compared with 45% in the census; there is a high proportion of lone
parents; and about a fifth of Gypsy and Traveller households appear to be single person households. One
possible explanation for the census finding a higher proportion of single person households than the ORS
surveys is that many older households are living in bricks and mortar housing (perhaps for health-related
reasons).
39.
ORS’s on-site surveys have also found more female than male residents. It is possible that some single
person households were men linked to lone parent females and unwilling to take part in the surveys. It is
also well documented that adult Gypsy and Traveller males travel far more frequently than females for
work purposes. A further possible factor is that at any time about 10% of the male Gypsy and Traveller
population is in prison – an inference drawn from the fact that about 5% of the male prison population
identify themselves as Gypsies and Travellers (‘People in Prison: Gypsies, Romany and Travellers’, Her
Majesty’s Inspectorate of Prisons, February 2014) – which implies that around 4,000 Gypsies and Travellers
are in prison. Given that almost all of the 4,000 people are male and that there are around 200,000 Gypsies
and Travellers in total, this equates to about 4% of the total male population, but closer to 10% of the adult
male population.
40.
The key point, though, is that since 20% of Gypsy and Traveller households are lone parents, and up to 30%
are single persons, there is limited potential for further reductions in average household size to increase
current household formation rates significantly – and there is no reason to think that earlier household
13
Opinion Research
Services
March 2015
formations or increasing divorce rates will in the medium term affect household formation rates. While
there are differences with the general population, a 1.5% per annum Gypsy and Traveller population
growth rate is likely to lead to a household growth rate of 1.5% per annum – more than the 0.85% for the
English population as a whole, but much less than the often assumed 3% rate for Gypsies and Travellers.
Household dissolution rates
41.
Finally, consideration of household dissolution rates also suggests that the net household growth rate for
Gypsies and Travellers is very unlikely to reach 3% per annum (as often assumed). The table below, derived
from ORS’s mainstream strategic housing market assessments, shows that generally household dissolution
rates are between 1.0% and 1.7% per annum. London is different because people tend to move out upon
retirement, rather than remaining in London until death. To adopt a 1.0% dissolution rate as a standard
guide nationally would be too low, because it means that average households will live for 70 years after
formation. A 1.5% dissolution rate would be a more plausible as a national guide, implying that average
households live for 47 years after formation.
Table 7
Annual Dissolution Rates (Source: SHMAs undertaken by ORS)
Annual projected
household dissolution
Number of households
Percentage
Greater London
25,000
3,266,173
0.77%
Blaenau Gwent
468.2
30,416
1.54%
Bradford
3,355
199,296
1.68%
348
31,562
1.10%
Exeter, East Devon, Mid Devon, Teignbridge and Torbay
4,318
254,084
1.70%
Neath Port Talbot
1,352
57,609
2.34%
Norwich, South Norfolk and Broadland
1,626
166,464
0.98%
633
53,558
1.18%
1,420
137,929
1.03%
Area
Ceredigion
Suffolk Coastal
Monmouthshire Newport Torfaen
42.
The 1.5% dissolution rate is important because the death rate is a key factor in moderating the gross
household growth rate. Significantly, applying a 1.5% dissolution rate to a 3% gross household growth
formation rate yields a net rate of 1.5% per annum – which ORS considers is a realistic figure for the Gypsy
and Traveller population and which is in line with other demographic information. After all, based on the
dissolution rate, a net household formation rate of 3% per annum would require a 4.5% per annum gross
formation rate (which in turn would require extremely unrealistic assumptions about birth rates).
Summary conclusions
43.
Future Gypsy and Traveller accommodation needs have typically been over-estimated because population
and household growth rates have been projected on the basis of assumed 3% per annum net growth rates.
44.
Unreliable caravan counts have been used to support the supposed growth rate, but there is no reason to
suppose that the rate of increase in caravans corresponds to the annual growth of the Gypsy and Traveller
population or households.
14
Opinion Research
Services
March 2015
45.
The growth of the national Gypsy and Traveller population may be as low as 1.25% per annum – which is
still four times greater than in the settled community. Even using extreme and unrealistic assumptions, it is
hard to find evidence that the net national Gypsy and Traveller population and household growth is above
2% per annum nationally. The often assumed 3% net household growth rate per annum for Gypsies and
Travellers is unrealistic.
46.
The best available evidence suggests that the net annual Gypsy and Traveller household growth rate is 1.5%
per annum. The often assumed 3% per annum net rate is unrealistic. Some local authorities might allow for
a household growth rate of up to 2.5% per annum, to provide a ‘margin’ if their populations are relatively
youthful; but in areas where on-site surveys indicate that there are fewer children in the Gypsy and
Traveller population, the lower estimate of 1.5% per annum should be used.
15
March 2015
Appendix B: Glossary of Terms
Amenity block/shed
Bricks and mortar
Caravan
Chalet
Concealed household
Doubling-Up
Emergency Stopping Place
Green Belt
Household formation
In-migration
Local Plans
Out-migration
Personal planning permission
Pitch/plot
Private site
A building where basic plumbing amenities
(bath/shower, WC, sink) are provided.
Mainstream housing.
Mobile living vehicle used by Gypsies and Travellers.
Also referred to as trailers.
A single storey residential unit which can be
dismantled. Sometimes referred to as mobile
homes.
Households, living within other households, who
are unable to set up separate family units.
Where there are more than the permitted number
of caravans on a pitch or plot.
A temporary site with limited facilities to be
occupied by Gypsies and Travellers while they
travel.
A land use designation used to check the
unrestricted sprawl of large built-up areas; prevent
neighbouring towns from merging into one another;
assist in safeguarding the countryside from
encroachment; preserve the setting and special
character of historic towns; and assist in urban
regeneration, by encouraging the recycling of
derelict and other urban land.
The process where individuals form separate
households. This is normally through adult children
setting up their own household.
Movement into or come to live in a region or
community
Local Authority spatial planning documents that can
include specific policies and/or site allocations for
Gypsies, Travellers and Travelling Showpeople.
Movement from one region or community in order
to settle in another.
A private site where the planning permission
specifies who can occupy the site and doesn’t allow
transfer of ownership.
Area of land on a site/development generally home
to one household. Can be varying sizes and have
varying caravan numbers. Pitches refer to Gypsy
and Traveller sites and Plots to Travelling
Showpeople yards.
An authorised site owned privately. Can be owneroccupied, rented or a mixture of owner-occupied
and rented pitches.
100
Site
Social/Public/Council Site
Temporary planning permission
Tolerated site/yard
Transit provision
Unauthorised Development
Unauthorised Encampment
Waiting list
Yard
March 2015
An area of land on which Gypsies, Travellers and
Travelling Showpeople are accommodated in
caravans/chalets/vehicles. Can contain one or
multiple pitches/plots.
An authorised site owned by either the local
authority or a Registered Housing Provider.
A private site with planning permission for a fixed
period of time.
Long-term tolerated sites or yards where
enforcement action is not expedient and a
certificate of lawful use would be granted if sought.
Site intended for short stays and containing a range
of facilities. There is normally a limit on the length
of time residents can stay.
Caravans on land owned by Gypsies and Travellers
and without planning permission.
Caravans on land not owned by Gypsies and
Travellers and without planning permission.
Record held by the local authority or site managers
of applications to live on a site.
A name often used by Travelling Showpeople to
refer to a site.
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March 2015
Appendix C: Gypsy and Traveller Sites
in Wokingham Borough (July 2014)
Total
Permitted
Pitches
Total
Tolerated
Pitches
Total
Unauthorised
Pitches
Carters Hill, Hurst
Twyford Orchards, Ruscombe
15
20
-
-
TOTAL PLOTS ON LOCAL AUTHORITY SITES
35
-
-
8
12
2
2
1
1
1
2
2
-
-
21
-
-
3
1
3
2
2
1
1
12
-
-
77
-
-
2
4
1
-
-
7
-
-
-
1
3
3
-
-
7
-
Pine Copse, Nine Mile Lane, Finchampstead
-
-
4
1
TOTAL PLOTS ON UNAUTHORISED DEVELOPMENTS
-
-
5
119
7
5
Site
Public Sites
Private Sites with Permanent Permission
Plot 1 Littlemore, Park Lane, Finchampstead
Plot 2 Littlemore, Park Lane, Finchampstead
Meadowside Plot 1, Park Lane, Finchampstead
Meadowside Plot 2, Park Lane, Finchampstead
New Acres (including Kingsbridge and New Acres Extension),
Wokingham Without
The Oaks, Waltham Road, Ruscombe
The Promise, Nine Mile Ride, Finchampstead
88a Reading Road, Finchampstead
TOTAL PLOTS ON PRIVATE SITES WITH PERMANENT
PERMISSION
Private Sites with Temporary Permission
Nelson's Lane Hurst
TOTAL PLOTS ON PRIVATE SITES WITH TEMPORARY
PERMISSION
Tolerated Sites – Long-term without planning permission
Wally's Mobile Home Park, Charvil
TOTAL PLOTS ON LONG-TERM TOLERATED PRIVATE SITES
Unauthorised Developments
TOTAL PITCHES
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March 2015
Appendix D: Site Record Form
Gypsy & Traveller Accommodation Assessment – Site/Pitch Record
(Use an additional form if more than 4 caravans present on the pitch)
General Information
Name of Local Authority
Wokingham
Date of Site Visit
Time of Site Visit
Name of Interviewer(s)
Name/Address of Site/Yard
Type of Site
Plot/Pitch Number (if applicable)
Planning Status
Number of Caravans on Pitch
Number of other Buildings
(include details)
Family Demographics
Caravan 1
Name of Family
Council / Social / Private / Unauthorised
Full Permission / Temporary Permission / Unauthorised
If family not present note who provided the information
Romany Gypsy / Irish Traveller / Scots Gypsy or Traveller
/ Show Person / New Traveller / English Traveller /
Welsh Gypsy / Non Traveller (specify)
Ethnicity of Family
How long have they lived here?
Person 1 Person 2 Person 3
Person 4
Person 5
Person 6
Person 7
Person 8
Sex
Sex
Sex
Sex
Sex
Sex
Age
Sex
Age
Sex
Concealed Households?
Age
Age
Age
Age
Age
Yes / No
Detail (including assessment of over-crowding):
Any future needs?
Why do you like living here?
103
Age
Site/Pitch Plan
Sketch of Site/Pitch – any concerns?
104
March 2015
March 2015
Appendix E: Bricks & Mortar Adverts
Friends, Families of Travellers – May 2014
105
World’s Fair – May 2014
106
March 2015
March 2015
Appendix F: Transit Provision
Transit Provision
Transit sites serve a specific function of meeting the needs of Gypsy and Traveller households who are
visiting an area or who are passing through. A transit site typically has a restriction on the length of stay of
around 13 weeks and has a range of facilities such as water supply, electricity and amenity blocks.
An alternative to a transit site is an emergency stopping place. This type of site also has restrictions on the
length of time for which a Traveller can stay on it, but has much more limited facilities with typically only a
source of water and chemical toilets provided. Some authorities also operate an accepted encampment
policy where households are provided with access to lighting, drinking water, refuse collection and hiring of
portable toilets at a cost to the Travellers.
The Criminal Justice and Public Order Act 1994 is particularly important with regard to the issue of Gypsy
and Traveller transit site provision. Section 62A of the Act allows the Police to direct trespassers to remove
themselves, their vehicles and their property from any land where a suitable pitch on a relevant caravan
site is available within the same Local Authority area (or within the county in two-tier Local Authority
areas).
A suitable pitch on a relevant caravan site is one which is situated in the same Local Authority area as the
land on which the trespass has occurred, and which is managed by a Local Authority, a Registered Provider
or other person or body as specified by order by the Secretary of State. Case law has confirmed that a
suitable pitch must be somewhere where the household can occupy their caravan and bricks and mortar
housing is not a suitable alternative to a pitch.
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March 2015
Appendix G: Neighbouring Local
Authority Provision Summary
Basingstoke and Deane Borough Council
»
Has completed a GTAA which covers the period up until 2017 and included a need of
seven pitches; permission has been granted for two sites since the study was completed
and decisions were pending on another two (at the time of interview)
»
The Council has in place a criteria based policy to assess any new planning applications
and as sought to meet need through this approach
»
The Council will update this study so it will cover a ten year period.
Bracknell Forest
»
At the time of the GTAA, ORS were also working with Bracknell Forest on its GTAA.
»
Prior to this Bracknell Forest were working towards meeting the need identified in the
GTAA which was completed in 2006 and the partial review of the South East Plan. The
study concluded that the Authority required three additional pitches for Gypsy and
Travellers up to 2011. A separate Travelling Showpeople study was undertaken in 2007
and concluded a need for an additional four plots up to 2017. The partial review
concluded a need for 15 Gypsy and Traveller pitches and two Travelling Showpeople plots
up to 2016.
»
Since those studies were completed, the authority has granted permission for 14 Gypsy
and Traveller pitches, so are currently one short of the need identified in the partial
review. The authority has not felt it necessary to address the shortfall of Travelling
Showpeople plots because the community has expressed no interest for any.
»
The officer was aware that, similar to Wokingham, some occupants of pitches were not
members of the Gypsy and Traveller community.
Hart District Council
»
Has completed a GTAA which covers 2012 -2017. The Council will update this study to go
beyond that period. The 2012 GTAA found there was a need for approximately 20 pitches
but caveated its numbers explaining there could be an element of double counting as the
same families were possibly represented on more than one waiting list.
»
There are two public sites at Star Hill and Penny Hill which have been long established and
are managed by Hampshire County Council.
»
A number of planning permissions have been granted.
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March 2015
Reading Borough Council
»
Within the Borough there is one privately owned Travelling Showpeople site. The Officer
was not able to verify how many plots exist because the Council has been unable to get
onto the site.
»
Unauthorised sites occur occasionally and at the time of interview there was one in the
Borough.
»
There are various peaks of unauthorised encampments and there was said to have been
an increase this year (2014). The Officer confirmed that many do visit the area to attend
Reading Hospital to use maternity services; the unauthorised site was occupied by
Travellers who had originally come to give birth at the hospital.
»
In terms of priorities, the Officer confirmed that the Borough needs to undertake its
needs assessment and gather more intelligence locally about what people’s needs are and
set the Borough’s strategy within a plan in terms of potential sites.
Royal Borough of Windsor and Maidenhead (RBWM)
»
At the time of the GTAA, ORS were also working with RBWM Council on their GTAA to
determine the total number of pitches in the area.
»
There are a number of unauthorised and tolerated sites within the area. RBWM are
looking at solutions to deal with this issue and are awaiting the results of their GTAA.
»
There are said to be up to two short-term incursions per year which occur during July and
August. Officers explained that because there is no transit provision across the Berkshire
area, often Travellers will move back and forth between Local Authorities. Officers were
keen to manage incursions in a more joined-up way.
Rushmoor Borough Council
»
Rushmoor completed a GTAA in 2012 and the need was for one pitch between 2012-17.
This need derived from in-migration and the actual need in the area is minimal as there
are no Gypsy and Traveller sites within the area.
»
There are ten Travelling Showpeople plots spread over four yards and the GTAA found a
need of 2 additional plots in period 2012-17.
»
The Borough is currently identifying sites to meet the aforementioned needs and
engaging with the Showpeople community to fully understand their needs.
»
Unauthorised encampments occur occasionally (maximum of one per year) and are said
to be the same groups moving around the wider Hampshire area.
South Oxfordshire District Council
»
Within South Oxfordshire there are three public sites and one private site which is
unauthorised. There are three Travelling Showpeople yards.
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March 2015
»
The GTAA study was on-going at the time of interview and consultants looking for
appropriate sites to meet the need identified in the GTAA. In doing this one of the aims is
to extend sites so families can stay together.
»
The Gypsy and Traveller population in South Oxfordshire is said to be stable therefore the
majority of need derives from household formation.
»
In terms of unauthorised encampments these occur occasionally.
»
The authority has received a number of what was termed ‘loose enquires’ from planning
agents about any available sites in the area.
West Berkshire Council
»
At the time of the GTAA, ORS were also working with West Berkshire Council on its GTAA.
»
Within the area, there are 58 pitches in total which includes 18 pitches on a public site, 38
private pitches with permanent permission and 4 unauthorised developments. There is 1
Travelling Showpeople yard.
»
There are a small number of unauthorised encampments annually but they are not
considered to be a major problem by officers and members and the number of incursions
appears to have remained static (although officers agreed there had been a decrease over
recent years in West Berkshire).
»
Those interviewed were generally of the view that West Berkshire Council is meeting its
Duty to Co-operate and that other neighbouring councils are too.
110

Gypsy and Traveller Accommodation Assessment

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