Local Authority Gypsy/Traveller Sites in England
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Local Authority Gypsy/Traveller Sites in England July 2003 Pat Niner Centre for Urban and Regional Studies, University of Birmingham Office of the Deputy Prime Minister: London Following the reorganisation of the government in May 2002, the responsibilities of the former Department for Transport, Local Government and the Regions (DTLR) in this area were transferred to the Office of the Deputy Prime Minister. Office of the Deputy Prime Minister Eland House Bressenden Place London SW1E 5DU Telephone 020 7944 4400 Web site www.odpm.gov.uk # Queen’s Printer and Controller of Her Majesty’s Stationery Office, 2003 Copyright in the typographical arrangement rests with the Crown. This publication, excluding logos, may be reproduced free of charge in any format or medium for research, private study or for internal circulation within an organisation. This is subject to it being reproduced accurately and not used in a misleading context. The material must be acknowledged as Crown copyright and the title of the publication specified. For any other use of this material, please write to HMSO Licensing, St Clements House, 2-16 Colegate, Norwich NR3 1BQ Fax: 01603 723000 or e-mail: [email protected]. This is a value added publication which falls outside the scope of the HMSO Class Licence. Further copies of this publication are available from: Office of the Deputy Prime Minister Publications PO Box 236 Wetherby LS23 7NB Tel: 0870 1226 236 Fax: 0870 1226 237 Textphone: 0870 1207 405 Email: [email protected] or online via the Office of the Deputy Prime Minister’s web site. ISBN 1 85112 650 3 Printed in Great Britain on material containing 75% post-consumer waste and 25% pre-consumer waste. July 2003 Product Code 03HD01518 CONTENTS Acknowledgements 9 Verbatim Quotations 10 Glossary 11 Executive Summary 13 1. BACKGROUND 15 The Research 15 Gypsies and Other Travellers 20 The Policy Context 32 Summary 40 2. LOCAL AUTHORITIES AND GYPSY/TRAVELLER ACCOMMODATION ISSUES 43 Overall Gypsy/Traveller Accommodation Policies 43 Corporate Organisation 45 Land Use Planning 48 Private Site Provision 51 Social Housing 54 Managing Unauthorised Camping 59 Equal Opportunities and Human Rights 61 Summary 64 3. LOCAL AUTHORITY GYPSY/TRAVELLER SITES 66 The Sites Network 66 A Description of Gypsy/Traveller Sites 74 Condition of Gypsy/Traveller Sites 82 Other Perceptions of Site Quality 84 Summary 91 4. ORGANISING FOR SITE MANAGEMENT 94 Managing In-House and Contracting Out 94 Organisational Arrangements for Site Management 98 Site Management Staffing Issues 99 Summary 106 5. SITE MANAGEMENT 108 Site Occupancy 108 Aspects of Site Management Policies and Procedures 117 Summary 147 6. SITE FINANCES 150 Licence Fees 150 Other Charges 151 Housing Benefit and Local Reference Rents 152 Site Income and Expenditure 153 Gypsy/Traveller Views of ‘Rent’ and Other Charges 155 Summary 157 7. GYPSY/TRAVELLER ACCOMMODATION NEEDS AND ASPIRATIONS 158 The Range of Accommodation Options and their Roles 158 Accommodation for Nomadism 175 Measuring Requirements for Sites 185 An Estimate of Need for Site Provision 189 Some Lessons for Site Design 192 Summary 201 8. OVERCOMING OBSTACLES TO SITE PROVISION 205 Obstacles to Site Provision 205 Some Suggestions for Overcoming Obstacles 207 Ensuring Sustainability of Provision 209 Summary 212 9. CONCLUSIONS AND RECOMMENDATIONS 213 A National Approach to Gypsy/Traveller Accommodation Issues 213 Action on the Existing Site Network 215 New Site Provision 217 Action to Overcome Barriers to Site Provision 222 Lessons for Site Management 223 Further Guidance and Support 228 Summary 229 APPENDIX 1: RESEARCH WITH GYPSIES AND OTHER TRAVELLERS 231 APPENDIX 2: PHYSICAL SURVEY INSPECTION SCHEDULE 234 REFERENCES 248 TABLES Table 1.1: Accommodation Occupied by Gypsy/Travellers Interviewed in the Case Studies 18 Table 1.2: Regional Distribution of Gypsy Caravans January 2002 26 Table 1.3: Growth in Numbers of Gypsy Caravans on Authorised Sites in England: 1980-82, 1990-92 and 2000-02 32 Table 2.1: Changes in Numbers of Private Sites since 1994 and Expectations of Change over the Next Five Years 52 Table 2.2: Positive and Negative Features of Private Sites 53 Table 2.3: Site Quality Assessments for Commercial Private Sites 54 Table 2.4: Ranking of Problems Commonly Experienced by Gypsy/Travellers in Social Rented Housing 57 Table 3.1: Distribution of Sites and Pitches by Size of Site January 2002 68 Table 3.2: Distribution of Sites and Pitches by Date of Site Opening 69 Table 3.3: Distribution of Sites and Pitches by Region 71 Table 3.4: Effect of Changes to Pitch Numbers since 1994 72 Table 3.5: Problems in the Local Area: Comparison of Gypsy Sites and the English Housing Stock 75 Table 3.6: Thirty Year Maintenance/Improvement Expenditure Needs by Region 83 Table 3.7: Maintenance/Improvement Expenditure Needs by Region and Time Period 84 Table 3.8: Site Quality Assessments by Local Authority Personnel 85 Table 3.9: Perceived Reasons for Poor Site Condition or Maintenance 86 Table 4.1: Extent of Manager Responsibility for Different Aspects of Site Management: Management Contracted Out 95 Table 4.2: Which Tasks are Part of the Job of the ‘Site Manager’? 101 Table 5.1: Work Permitted and Occurring on Sites 120 Table 5.2: Factors Taken into Account when Allocating Pitches 126 Table 5.3: Proportion of Licensees Receiving Housing Benefit and in Arrears 129 Table 5.4: Extent of Visits to Sites by Service Providers 134 Table 5.5: Assessment of Sites on Management Factors 142 Table 6.1: Weekly Licence Fees on Residential Sites 151 Table 7.1: An Estimate of Need for Residential Site Pitches: 2002-2007 189 Table 7.2: An Estimate of Need for Transit/Mobility Pitches: 2002-2007 190 Table 7.3: Need for Further Provision of Accommodation for Gypsy/Travellers 191 BOXES Box 2.1: Gypsy/Traveller Accommodation Policies 43 Box 2.2: Corporate Organisation for Gypsy/Traveller Accommodation Matters 46 Box 2.3: Examples of Corporate Organisation for Gypsy/Traveller Accommodation Matters 47 Box 2.4: Gypsy/Travellers and Social Housing 55 Box 2.5: Human Rights and Equal Opportunities 64 Box 3.1: Firm Plans Affecting Number of Sites/Pitches 74 Box 3.2: Residential Sites and Infrastructure 78 Box 3.3: Provision of Communal Facilities on Residential Sites 79 Box 3.4: Facilities Provided in Amenity Units on Residential Sites 81 Box 4.1: Site Management Arrangements 95 Box 4.2: Contracting Arrangements for Site Management in Two Case Study County Councils 97 Box 4.3: Section/Department with Overall Responsibility for Gypsy/Traveller Site Management 99 Box 4.4: ‘Site Managers’ 101 Box 4.5: Examples of Organisation for Site Management Site 103 Box 5.1: Number and Age of Site Residents 112 Box 5.2: Licence Conditions 119 Box 5.3: Pitch Allocation Matters 125 Box 5.4: Responsive Repairs 128 Box 5.5: Licence Fee Collection and Arrears Recovery 130 Box 5.6: Housing Benefit Concerns in One Case Study Area 131 Box 5.7: Resident Consultation 132 Box 5.8: Perceived Site Management Problems 137 Box 6.1: Setting the Local Reference Rent for a Gypsy/Traveller Site 152 Box 7.1: Case-Histories of Three Housed Travellers 162 Box 7.2: Case-History of a Family on an Owner-Occupied Site 169 Box 9.1: Proposals for Activity Standards for Services to Travellers from Scottish Homes 227 ACKNOWLEDGEMENTS A large number of people contributed to this research, and I must thank them all. • Officers in the Office of the Deputy Prime Minister, especially Keith Kirby, Julie Lawrence and Tina Galton, were always extremely supportive. • Colleagues at the Centre for Urban and Regional Studies, Maggan Dahlstrom and Bruce Walker, carried out a number of the case studies, and Peter Lee provided the GIS map. • Alan Hedges carried out the interviews with Gypsies and other Travellers and provided valuable analysis of this material. • Martin Gladwin and his colleagues from FPDSavills undertook and analysed the physical survey of Gypsy/Traveller sites. • Representatives of various bodies concerned with Gypsy/Traveller matters agreed to be interviewed and provided much relevant material. • Local authority officers patiently responded to the questionnaires, and together with elected members and others participated in the case studies. • Last, but by no means least, Gypsies and other Travellers agreed to take part in group discussions and provided valuable information and opinions. My thanks to everyone who participated – and my apologies if I have not drawn all the right conclusions from the wealth of material provided. VERBATIM QUOTATIONS Verbatim quotations from interviews with Gypsies and other Travellers appear at various points throughout this report. They are identified by a particular form of presentation: Verbatim quotations from interviews with Gypsies and other Travellers I: ‘‘Question or comment by the interviewer.’’ F: ‘‘Comment by female participant; given an arbitrary number within a particular interview session’’ M: ‘‘Comment by male participant as above’’ (type of respondent/type of site) The respondent types identified are: Gypsy: English, Welsh or Scottish Gypsy Irish: Irish Traveller New: New (Age) Traveller The types of sites identified are: LA Local authority residential Gypsy/Traveller site Private Commercial residential Gypsy/Traveller site owned and managed by a non-local authority body Transit Transit site (local authority) Owner occ Site owned by the Gypsy/Traveller family living on it Housed In permanent housing Camped On roadside or other unauthorised encampment GLOSSARY The following abbreviations, words and phrases are used in this report and may need some explanation. Amenity block: Building housing one or more amenity units or sheds on a Gypsy/Traveller site. Amenity unit: On most residential Gypsy/Traveller sites basic plumbing amenities (bath/ shower, WC and sink) are provided at the rate of one per pitch in small permanent buildings.