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Opinion Research Services | The Strand Swansea SA1 1AF | 01792 535300 | www.ors.org.uk | [email protected] LUTON BOROUGH COUNCIL GYPSY, TRAVELLER AND TRAVELLING SHOWPEOPLE ACCOMMODATION ASSESSMENT December 2013
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Opinion Research Services | The Strand • Swansea • SA1 1AF | 01792 535300 | www.ors.org.uk | [email protected]

LUTON BOROUGH COUNCIL

GYPSY, TRAVELLER AND TRAVELLING

SHOWPEOPLE ACCOMMODATION

ASSESSMENT

December 2013

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Opinion Research Services The Strand, Swansea SA1 1AF

Nigel Moore and Matt Bradley

enquiries: 01792 535300 · [email protected] · www.ors.org.uk

© Copyright December 2013

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Contents 1. Introduction ................................................................................................................................... 5

The Survey ..................................................................................................................................................... 5

Definitions ..................................................................................................................................................... 5

Legislation and Guidance for Gypsies and Travellers .................................................................................... 6

Planning Policy for Traveller Sites ................................................................................................................. 7

Tackling Inequalities for Gypsy and Traveller Communities ......................................................................... 8

Funding for New Sites .................................................................................................................................... 9

Research Methodology.................................................................................................................................. 9

2. Gypsy and Traveller Sites and Population ...................................................................................... 11

Background .................................................................................................................................................. 11

Sites in Luton ............................................................................................................................................... 12

Caravan Count ............................................................................................................................................. 12

3. Site Visits ...................................................................................................................................... 14

Introduction ................................................................................................................................................. 14

St. Thomas’s Road Gypsy and Traveller Site ................................................................................................ 14

Stopsley Travelling Showpeople Site ........................................................................................................... 15

4. Stakeholder Consultation .............................................................................................................. 16

Introduction ................................................................................................................................................. 16

Main Policy Tools ......................................................................................................................................... 16

Existing Accommodation ............................................................................................................................. 16

Unauthorised encampments ....................................................................................................................... 17

Bricks and Mortar ........................................................................................................................................ 18

Travelling Showpeople ................................................................................................................................ 18

Community, Health and Education Issues ................................................................................................... 18

Cross Boundary Issues ................................................................................................................................. 19

Consultation Activities ................................................................................................................................. 19

Future Site Provision: Residential and Transit ............................................................................................. 19

Neighbouring Authorities ............................................................................................................................ 20

5. Future Site Provision ..................................................................................................................... 22

Pitch Provision ............................................................................................................................................. 22

Supply of pitches ..................................................................................................................................... 22

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Current Need ........................................................................................................................................... 22

Future Need ............................................................................................................................................. 22

Current Gypsy and Traveller Site Provision ................................................................................................. 23

Additional Site Provision: Current Need ...................................................................................................... 23

Current Unauthorised Developments ......................................................................................................... 23

Concealed Households ................................................................................................................................ 23

Bricks and Mortar ........................................................................................................................................ 23

Temporary Planning Permissions ................................................................................................................ 25

In-migration from Other Areas .................................................................................................................... 26

Overall Needs for Luton ............................................................................................................................... 26

Requirements by Time Period ..................................................................................................................... 28

Transit Sites/Emergency Stopping Places .................................................................................................... 28

Travelling Showpeople ................................................................................................................................ 29

6. Conclusions .................................................................................................................................. 30

Introduction ................................................................................................................................................. 30

Gypsy and Traveller Future Residential Pitch Provision .............................................................................. 30

Travelling Showpeople Future Plot Provision.............................................................................................. 30

Policy Recommendations ............................................................................................................................ 30

Site Criteria .................................................................................................................................................. 32

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1. Introduction The Survey

1.01 Opinion Research Services (ORS) were commissioned by Luton Council to undertake a Gypsy and Traveller

and Travelling Showpeople Accommodation Assessment.

1.02 The study seeks to provide an evidence base to enable the authority 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 main objective of this

study is to provide the Council with robust, defensible and up-to-date evidence about the accommodation

needs of Gypsies and Travellers and Travelling Showpeople in Luton in the 15 year period until 2028.

1.03 We would note at the outset that the study covers the needs of Gypsies, Irish Travellers, New Travellers

and Travelling Showpeople, but for ease of reference we have referred to the study as a Gypsy and

Traveller and Travelling Showpeople Accommodation Assessment.

Definitions 1.04 For the purposes of the planning system, 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 dependents’ 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).

1.05 Within the main definition of Gypsies and Travellers, there are a number of main cultural groups which

include:

» Romany Gypsies;

» Irish Travellers; and

» New Travellers.

1.06 Romany Gypsies and Irish Travellers are recognised in law as distinct ethnic groups and are legally

protected from discrimination under the Equalities Act 2010.

1.07 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

dependent’s more localized pattern of trading, educational or health needs or old age have ceased

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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 1.08 Decision-making for policy concerning Gypsies and 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

constructing policies relating to Gypsies and Travellers and Travelling Showpeople:

» Planning Policy for Traveller Sites 2012;

» National Planning Policy Framework 2012;

» Gypsy and Traveller Accommodation Needs Assessments Guidance October 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 (sections 61, 62);

» 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 and Travellers and Showpeople as part of their housing needs

assessments. This study complies with the this element of government guidance;

» Housing Act 1996 in respect of homelessness.

1.09 To focus on Gypsies and Travellers, the Criminal Justice and Public Order Act 1994 (Sections 77, 78) 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.

1.10 For site provision, the previous Labour 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.

1.11 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

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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.

1.12 The Coalition Government announced that the previous government’s thinking contained in ‘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. The CLG published ‘Planning

Policy for Traveller Sites’ in March 2012 which set out the Government’s planning policy for traveller sites.

It should be read in conjunction with the National Planning Policy Framework.

Planning Policy for Traveller Sites 1.13 The document ‘Planning Policy for Traveller Sites’ sets out the direction of government policy. Among

other objectives the new policies’ aims in respect of Traveller sites are (Planning Policy for Traveller Sites,

pages 1-2):

» that 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.

1.14 In practice, the document states that:

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. (Planning Policy for Traveller Sites, CLG, March 2012, page 3)

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1.15 Local planning authorities should, in producing their Local Plan:

» Identify, and update annually, 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 to

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 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.

1.16 A key element to the new policies is a continuation of previous government policies. 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 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.

1.17 Therefore, criteria based planning policies sit at the heart of the new guidance, irrespective of whether

need is identified or not.

Tackling Inequalities for Gypsy and Traveller Communities 1.18 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).

1.19 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;

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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.

Funding for New Sites

1.20 The Coalition Government policies also involve financial incentives for new affordable pitch provision in the

form of the New Homes Bonus. For all new annual supply of Gypsy and Traveller and Travelling

Showpeople pitches/plots on local authority or Registered Social Landlord owned and managed sites, local

councils receive a New Homes Bonus equivalent to council tax (based on the national average for a Band A

property), plus an additional £350 per annum for six years. This equates to around £8,000 pounds per pitch.

1.21 Direct grant funding is also available for Gypsy and Traveller sites. The Homes and Communities Agency

(HCA) took over delivery of the Gypsy and Traveller Sites Grant programme from CLG in April 2009. Since

then they have invested £16.3m in 26 schemes across the country to provide 88 new or additional pitches

and 179 improved pitches. The HCA welcomes bids from local authorities, housing associations and

traveller community groups working with Registered Providers.

1.22 The HCA has now confirmed allocations for all of its £60m of future funding which will support 96 projects

around the country for the provision of new Gypsy and Traveller sites and new pitches on existing sites, as

well as the improvement of existing pitches.

1.23 While all HCA funds for Gypsy and Traveller pitches have now been allocated, further funding may become

available as a result of slippage over the course of the programme. Providers are advised to continue to

work closely with HCA area teams to develop their proposals should any funding become available.

Research Methodology 1.24 This section sets out the methodology we have followed to deliver the outputs for this study. Over the past

10 years ORS have developed a methodology which provides the required outputs from a Gypsy and

Traveller and Travelling Showpeople Accommodation Assessment and this has been updated in light of

Planning Policy for Traveller Sites.

1.25 The stages below provide a summary of the process undertaken by ORS, with more information on each

stage provided in the appropriate section of the report.

Stage 1: Background

1.26 At the outset of the project we sought to understand the background to the Gypsy and Traveller and

Travelling Showpeople population in Luton. The study sought to identify the location of all known sites in

the study area and the number of pitches or plots on each one. The study also gathered information from

recent caravan counts.

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Stage 2: Site Visits

1.27 For most Gypsy and Traveller studies we seek to interview all known households in a study area using a

detailed questionnaire. Given the very limited size of the population in Luton, instead of conducting

interviewer facilitated detailed personal interviews, all sites were visited by ORS researchers. They

conducted qualitative interviews with the households to determine if they have any current or likely future

needs and how these may be addressed.

1.28 These interviews had a number of objectives. One objective was to analyse the provision of services on

existing sites to assess if more, or improved, service provision was required within the existing sites.

Another main objective was to view travelling patterns and likely future household formation to analyse

the future need for extra site provision.

Stage 3: Stakeholder Engagement

1.29 This study included extensive stakeholder engagement with officers from Luton Council, neighbouring

councils and other stakeholders. The aim of this engagement was to help understand the current situation

in the study area, particularly in relation to households not on known existing sites and also to discuss Duty

to Cooperate issues with neighbouring councils.

Stage 4: Future Pitch and Plot Requirements

1.30 The methodology used by ORS 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 best and

worst practice for Gypsy and Traveller and Travelling Showpeople Accommodation Assessments conducted

across the country.

1.31 The overall principles behind assessing future needs are relatively simple. The model assesses the current

backlog of need for pitches based upon unauthorised sites, concealed households, the net movement of

households from bricks and mortar and those on the waiting list for public sites. It then adds in expected

future need in the form of newly forming households, households on sites with temporary planning

permissions and net migration to the area. From this figure any empty or undeveloped pitches with

planning permission are then subtracted to provide for a final net pitch requirement. The residential pitch

requirements for Gypsies and Travellers are identified separately from those for Travelling Showpeople and

for each group the requirements are identified in 5 year periods to 2028 in line with the requirements of

Planning Policy for Traveller Sites.

Stage 5: Conclusions

1.32 This stage draws together the evidence from Stages 1 to 4 to provide an overall summary of the

requirements for Gypsies, Travellers and Travelling Showpeople in Luton.

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2. Gypsy and Traveller Sites and Population Background

2.01 One of the main considerations of this study is the provision of pitches/plots and sites/yards for Gypsies

and Travellers and Travelling Showpeople. A pitch is an area which is large enough for one household to

occupy and typically contains enough space for one or two caravans, but can vary in size. A site is a

collection of pitches which form a development exclusively for Gypsies and Travellers. For Travelling

Showpeople the terms most commonly used are a plot for the space occupied by one household, and a

yard for a collection of plots (typically occupied exclusively by Travelling Showpeople). This terminology

reflects a difference between the residential pitches of Gypsies and Travellers and the mixed use plots of

Travelling Showpeople, the latter commonly being used for the storage and maintenance of equipment as

well as for residential purposes. Throughout this study the main focus is upon how many extra pitches for

Gypsies and Travellers, and plots for Travelling Showpeople are required in Luton.

2.02 The provision of public and private provision of mainstream housing is largely mirrored when considering

Gypsy and Traveller accommodation. A common form of Gypsy and Traveller site is the public residential

site, which is provided by the local authority or a Registered Provider (usually a housing association). Places

on public sites can be obtained through registration for a waiting list, and the costs of running the sites are

met from the rent paid by the licensees (similar to social housing). The current provision for Gypsies and

Travellers in Luton consists of one such public site, managed by Luton Council.

2.03 An alternative to such public residential sites is private residential sites for Gypsies and Travellers and

Travelling Showpeople. These are privately funded by individuals or families buying areas of land who must

then obtain planning permission to live on them. Pitches on these sites can then also be rented out to other

households. Therefore, these two forms of accommodation are the equivalent to private ownership and

renting for those who live in bricks and mortar housing. The current Travelling Showpeople provision in

Luton consists of one such private site.

2.04 The Gypsy and Traveller population may also utilise other forms of sites due to their mobile nature. Transit

sites tend to contain many of the same facilities as a residential site, but impose a maximum period of

residence which can vary from a few weeks to a period of months. An alternative is an emergency

stopping place. This latter type of site also has restrictions on the length of time for which someone can

stay on it, but has much more limited facilities. Both of these two types of site are designed to

accommodate Gypsies and Travellers whilst they travel.

2.05 When considering Gypsy, Traveller and Travelling Showpeople Accommodation, it is also necessary to take

account of unauthorised developments and encampments. Unauthorised developments are sites

established on land which is owned by the Gypsies, Travellers or Travelling Showpeople themselves, but for

which they do not have planning permission for residential use. Unauthorised encampments occur where

Gypsies and Travellers or Travelling Showpeople occupy land that is owned by others.

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Sites in Luton 2.06 At the time of writing, there are 20 Gypsy and Traveller pitches in Luton contained within a single site

owned and managed by Luton Council. Of these pitches, 14 are single pitches, designed to accommodate

one caravan, while the remaining 6 are double pitches, containing sufficient hard-standing for two

caravans. Each pitch also has an amenity block containing a kitchen and toilet and shower facilities. Luton

Borough Council maintains a waiting list for those wishing to acquire a pitch on the site.

2.07 There are currently no privately owned Gypsy and Traveller sites and no known unauthorised

developments.

2.08 Travelling Showpeople provision in Luton consists of one privately owned site with permission for 6

residential caravans.

Caravan Count

2.09 A source of quantitative information available on the Gypsy and Traveller population derives from a bi-

annual survey of Gypsy and Traveller caravans, required by government, conducted by each local authority

in England on a specific date in January and July of each year, and reported to CLG. This count is of

caravans and not households, which makes it more difficult to interpret for a study such as this because it

does not count pitches or resident households. It must also be remembered that the count is conducted by

the local authority on a specific day and that any unauthorised 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.

2.10 The chart below shows the number of unauthorised and authorised caravans in Luton at the time of the

counts. The chart does not include any Travelling Showpeople caravans in the area. We would also note

that the figures are provided for illustrative purposes to demonstrate the relative size of the population and

are not used in any modelling of future pitch requirements.

Figure 1 Gypsy Caravan Count for Luton: January 2007– January 2013 (Source: CLG Bi-annual Local Authority Caravan Count)

0

5

10

15

20

25

30

Jan-07 Jan-08 Jan-09 Jan-10 Jan-11 Jan-12 Jan-13

Nu

mb

er o

f C

arav

ans

Authorised Unauthorised

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2.11 While the numbers of caravans on unauthorised sites has varied in recent years, the number of caravans on

authorised sites – i.e. the Council managed site at St Thomas Road – has remained constant, at 26 caravans.

This reflects the number of caravans allowed on the site according to the site license: one caravan on each

of the 14 single pitches, and 2 on each of the 6 double pitches. While this would seem to indicate a strict

adherence to the terms of the site license by those on site, information obtained from a visit to the site by

ORS researchers and from stakeholders suggest that this is not always the case (see para. 4.07). However, it

does suggest that those on site have remained relatively settled, with no evidence of any residents

travelling away from the site with their caravans. This inference is supported by the responses gained from

Gypsies and Travellers during the site visit, where few reported travelling away from the site.

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3. Site Visits

Introduction 3.01 Each known site in Luton was visited by ORS researchers to conduct face to face interviews with members

of the Gypsy and Traveller community currently resident within the study area. The interviews were

conducted within the interviewees’ place of residence in May 2013. Researchers visited both known Gypsy

and Traveller and Travelling Showpeople sites in Luton.

St. Thomas’s Road Gypsy and Traveller Site 3.02 The site consists of 20 pitches of which 6 are double sized, and able to accommodate 2 caravans (a total of

26 caravans. Opened in 1972, the site underwent substantial refurbishment in 2003/4. The site is situated

next to a mobile home site owned by Luton Council. Residents of the Gypsy and Traveller site were

generally positive about the site, reporting good relations between the resident households, and no

problems accessing healthcare, education and other facilities. However, interviews revealed a number of

issues across the site, including;

» rodent problems;

» a lack of street lighting, especially at the entrance to the site;

» broken fences/gates;

» issues with heating in day rooms, causing pipes to freeze up and some households to use

toilet facilities in the nearby sports centre during the winter;

» general repairs needed to day rooms.

3.03 In addition, a number of those interviewed on site complained of a lack of space on their pitches for their

growing families. Across the site there seemed to be issues with over- and under-occupation of pitches, due

to smaller households occupying double pitches, while some larger families were occupying single caravans

on the smaller, single pitches.

3.04 Researchers also spoke to one household who were sharing a pitch with relatives. This household had been

on the waiting list for a pitch on the site for a number of years.

3.05 In terms of the possibility of extending the site to accommodate future needs, most residents were

resistant to the suggestion of any increase in the number of pitches on site, and expressed concerns that

the introduction of new families could jeopardise the positive community relations that currently exist at

the site. However, one resident suggested that one or two additional pitches at the site would be unlikely

to cause major issues.

3.06 Nonetheless, space was an issue for many of those on site, and a number of residents suggested that

existing pitches needed to be expanded in order to accommodate the growing families on the site.

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Stopsley Travelling Showpeople Site 3.07 This site consists of a gated and screened area of hardstanding with a wash house and toilet block, and has

been in existence for more than 40 years. After a number of temporary permissions, the site was granted

permanent permission for six caravans for residential use in 2001. However, no caravans were present

when ORS researchers visited the site, and despite enquiries with neighbours and with the Showmen’s

Guild, researchers were unable to make contact with the owners. Stakeholders confirmed that the site is

used by two Travelling Showpeople families as a winter quarters, and is therefore unoccupied for a large

part of the year. ORS attempted to gain contact with the owners of the site via the Showmen’s Guild, but to

no avail.

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4. Stakeholder Consultation

Introduction 4.01 In addition to site visits, ORS conducted 12 semi-structured, in-depth telephone interviews between May

and June 2013 in order to set the context of the research and ensure the study is based on a sound

understanding of the relevant issues. The interviews typically lasted between 25 and 45 minutes, and were

undertaken with LBC officers representing housing, planning, education and legal services, as well as

others.

4.02 As stated in the Planning Policy for Traveller Sites, Local Authorities have a duty to cooperate on planning

issues that cross administrative boundaries. For this purpose, officers from the following neighbouring

Local Authorities were amongst those who contributed to the study, and a summary of their comments has

been included at the end of this section:

» Central Bedfordshire Council;

» Dacorum Borough Council;

» Hertfordshire County Council;

» North Hertfordshire District Council;

» St. Albans City and District Council.

Main Policy Tools

4.03 Since the April 2011 change which brought publicly-run Gypsy and Traveller sites under the 1983 Mobile

Homes Act, the management of the St. Thomas’s Road site was considered to have made easier. Given the

site’s proximity to a mobile home site, it was deemed helpful to be able to deal with both under the same

rubric.

4.04 With regards to unauthorised encampments, Sections 77 and 78 of the Criminal Justice and Public Order

Act are used to move Travellers off council and private land as soon as the authority is made aware of

them. Stakeholders from legal services and highways management reported that this was made difficult by

the need to undertake checks for health issues and by movement of families and individuals to and from

the site – authorities are required to issue a new order to depart for any families or individuals arriving on

an encampment after the initial order was issued.

Existing Accommodation 4.05 As already noted, Luton has one council owned and managed site, and no private sites or unauthorised

developments. Stakeholders were generally positive about the existing site at St. Thomas’s Road, and felt

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that it was meeting the needs of those on the site. However, the site is currently at capacity, and

stakeholders noted that vacancies at the site are very rare.

4.06 One stakeholder also noted issues with overcrowding on the site, with some larger families lacking space

on their plots, as well as some maintenance issues. This is supported by the findings of the site visit, where

both issues were raised by residents.

4.07 One stakeholder also reported issues with some on the site breaching the terms of the site license by

exceeding the designated number of caravans on their pitches.

4.08 It was noted that many of those on site did not use the official protocols to report maintenance issues or

other problems, but rather reported any problems directly to housing staff when they visited the site. It

was noted by one stakeholder that those on site seemed to prefer to communicate with someone they

were familiar with face to face, rather than reporting issues via phone.

4.09 Stakeholders were also aware of 4 Gypsy and Traveller households residing in the mobile home adjacent to

the Gypsy and Traveller site. It was believed that these households were related to some of those on the

site. As ORS were not made aware of these at the time of the site visit, they were not interviewed.

However, stakeholders were of the opinion that the Gypsy and Traveller households living on the mobile

home site were satisfied with this arrangement, as they were close to family members, and because they

were not required to live in bricks and mortar accommodation.

Unauthorised encampments 4.10 For the most part, stakeholders agreed that unauthorised encampments were a significant issue in Luton,

with one stakeholder reporting that during the summer months they were as frequent as once a week.

Stakeholders identified a number of specific locations which were favoured for such encampments,

including Stockwood Park, Lewsey Park, Leegrave Park, Pondwicks Road, Power Court and Sedgwick Road.

Stakeholders noted that the latter three had caused issues for the businesses that operated in those areas.

4.11 According to one stakeholder, these issues were made more difficult to deal with due to the stance of the

police. While previously the police had been willing to offer assistance in dealing with unauthorised

encampments, they have recently adopted a hands-off approach.

4.12 Stakeholders reported that most of those inhabiting these unauthorised encampments had family in the

Luton area – either on the St. Thomas’s Road site or in bricks and mortar accommodation. Stakeholders

reported large groups of Travellers arriving on unauthorised sites in order to attend family events, such as

christenings, weddings and funerals, with one stakeholder reporting up to 25 caravans arriving for one

event. However, one stakeholder also stated that some Travellers visited the area in order for work, laying

paving or driveways.

4.13 Stakeholders reported that many of those on unauthorised encampments had travelled from Ireland,

although some also noted travellers from elsewhere, such as the south coast.

4.14 It was noted that in 2012, the number of unauthorised encampments had increased significantly, but that

this was at least partly due to a single family group, who travelled to Luton to visit relatives before

returning to their accommodation elsewhere for the winter.

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Bricks and Mortar 4.15 Stakeholders agreed that there was a significant population of Gypsies and Travellers in bricks and mortar

accommodation. One stakeholder felt that many of these households were living in bricks and mortar

accommodation from necessity, and would prefer to live on a site.

4.16 Two stakeholders agreed to pass on ORS’ details to those Traveller households they were aware of living in

bricks and mortar accommodation, especially if they were interested in living on a site. However, this did

not result in any Travellers contacting ORS. It was noted that those who wished to live on a site could add

their names to the waiting list. However, according to a stakeholder from housing, none of those in social

housing in Luton had done so.

4.17 One stakeholder reported that those Travellers who found themselves in bricks and mortar

accommodation often found it difficult to integrate, which sometimes caused problems with neighbours.

Travelling Showpeople 4.18 As already mentioned, ORS also interviewed a representative of the Showmen’s Guild as part of the

stakeholder consultation. The representative was not aware of Travelling Showpeople looking to develop a

site within Luton. However, the representative emphasised the shortage of authorised Travelling

Showpeople sites across the country, and the need for planning authorities to give any planning

applications for Travelling Showpeople sites serious consideration.

Community, Health and Education Issues 4.19 Stakeholders raised very few issues in relation to the St. Thomas’s Road site, although some mentioned

allegations of antisocial behaviour against some of the younger residents.

4.20 In contrast, unauthorised encampments were deemed to be deeply problematic, with members of the

settled community unhappy about the council’s inability to move Travellers on immediately. One

stakeholder noted that unauthorised encampments generated many complaints from the settled

community, especially those on public parks. Issues with waste being left behind after encampments had

left and intimidation of the settled community by Travellers were also mentioned.

4.21 One stakeholder also raised issues that faced Travellers in bricks and mortar accommodation. It was

reported that some of those settled in bricks and mortar were culturally unprepared for such a lifestyle,

creating tensions with neighbours. The stakeholder felt that engagement with such Travellers was needed

to educate them about the settled community and help to integrate them.

4.22 Most stakeholders were not aware of any issues related to health amongst the Gypsy and Traveller

community. However, one council officer reported that some Travellers had experienced difficulties

registering with GPs or dentists, due to a lack of literacy. The officer suggested that cultural awareness

training for health workers might be necessary.

4.23 In terms of education, it was reported that some of the children on the St. Thomas’s Road site were

receiving home education. This was apparently working well, with private tutors visiting the site to carry

out lessons. However, there are also some recorded issues with school attendance amongst those children

on site who were registered with schools.

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4.24 It was noted by one stakeholder that Traveller families had been encouraged to restrict their travelling to

school holidays so as not to interrupt their children’s education. The stakeholder reported that this had

been somewhat successful.

4.25 With regards to Travelling Showpeople, no stakeholders were aware of any community, health or

education issues. A stakeholder for education reported that the children of the Travelling Showpeople

households in Luton attended school in the area and were given distance learning packs when they

travelled away to fairs. This was reported to work well, and the stakeholder had no complaints about the

process.

Cross Boundary Issues 4.26 With regards to Gypsies and Travellers, stakeholders reported little in the way of cross border working with

other authorities, though one officer noted connections with Dacorum Borough Council which had

previously been used to find accommodation for a Traveller within Dacorum, due to the lack of vacancies at

the Luton site. Such cooperation between authorities was felt to be important, especially given the

relatively low tenancy turnover on the St. Thomas’s Road site.

4.27 However, there were some inter-authority workings reported in relation to the education of Traveller

children, with the stakeholder for education mentioning work with authorities in Ireland with regard to the

movements of Irish Travellers between Luton and Ireland and their children’s education.

4.28 The stakeholder for highways management suggested that there may be possibilities for discussion with

neighbouring authorities regarding transit provision for Travellers on the borders of Luton.

Consultation Activities 4.29 In terms of consultation with the Traveller community, stakeholders mentioned public meetings, which

were well attended by those on the St. Thomas’s Road site. Stakeholders from education and housing also

mentioned that occasional visits to the site itself were used by residents to raise any issues they had.

4.30 One stakeholder emphasised the importance of building relationships with the Traveller community in

Luton, and felt that the most effective route to this was to establish an individual as a point of contact, so

that Travellers were comfortable raising issues. As noted earlier, stakeholders felt that Travellers were less

likely to contact council offices, and preferred face-to-face communication.

Future Site Provision: Residential and Transit 4.31 Stakeholders were unsure of the level of outstanding need for Gypsy and Traveller site provision. One

stakeholder noted that the waiting list had remained relative static, suggesting that there was not a large

population of Travellers looking for site accommodation in Luton.

4.32 Another stakeholder was concerned that while there might be demand for on-site accommodation, it was

not necessarily ‘need’, but more aspirational. The stakeholder noted that a number of those on the waiting

list were residing on sites outside of Luton, and simply wanted to move closer to family on the St. Thomas’s

Road or in bricks and mortar accommodation elsewhere in Luton.

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4.33 The stakeholder for education suggested that many of those currently residing in bricks and mortar were

uncomfortable in such accommodation, and would prefer to live on a site. Nonetheless, despite attempts

to reach Gypsies and Travellers in such a situation, none have contacted ORS.

4.34 In terms of how any future permanent residential provision for Travellers might be provided, stakeholders

had mixed ideas. One stakeholder noted that perhaps the simplest option would be the expansion of the

existing St. Thomas’s Road site. However, the stakeholder noted that previous proposals to this effect had

been strongly opposed by the site’s residents.

4.35 However, one stakeholder suggested that smaller, private sites of around 5 or 6 pitches could be used to

meet any future need. The stakeholder felt that private sites would be maintained better by their owners

than any public provision.

4.36 With regards to a transit provision, most stakeholders were in agreement that there was a need to provide

for those Travellers who were either passing through the area, visiting relatives or attending family events.

However, a number raised concerns that any such site would have to be well policed to prevent Travellers

using the site as long term, residential accommodation. One stakeholder suggested a limit of 2 -3 weeks.

4.37 It was envisaged that such accommodation would help alleviate some of the tensions that arise where

Travellers encamp on public parks and commercial property, as they could be directed towards a suitable

location to stay for a short time, with facilities provided for them.

4.38 This was deemed much more suitable than a tolerance policy – given Luton’s lack of unused space, and the

disruption for the settled community and businesses caused by encampments, it was felt to be unrealistic

to allow Travellers to remain in their encampments for any length of time.

4.39 However, stakeholders acknowledged the difficulty of locating a location for either a permanent residential

site or a transit site, given the built up nature of Luton and restrictions such as the Green Belt and the

potential opposition from the settled community. One stakeholder noted that most green spaces which

might be considered for locating a site were well used by the community, and any proposals to develop

such spaces would likely be met by strong opposition from the settled community.

4.40 With regard to the location of any permanent residential provision, one stakeholder noted that there was a

need to consider the availability of school places in any potential area, to ensure that any children residing

on the site could access education without difficulty. The stakeholder suggested that the availability of

places for schoolchildren in Stopsley could make it a suitable location for a site.

4.41 With regard to the location of a transit site, two stakeholders also suggested Stopsley as a potential

location. However, both were concerned that this could lead to tensions between the groups using the

transit site and those on the St. Thomas’s Road site.

Neighbouring Authorities 4.42 In addition to the interviews carried out with stakeholders representing Luton Borough Council’s Housing,

Education, Highways and Legal services, ORS also spoke to officers representing neighbouring authorities.

Their comments are summarised below.

4.43 The accommodation situations of the authorities surrounding Luton (as reported by their respective

stakeholders) is summarised below:

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» Hertfordshire County Council currently manages 11 sites across the county, of which 1 is a

transit site. Hertfordshire also contains a number of private sites. However, the

stakeholder felt that current provision was insufficient for the population. The

stakeholder did not feel that unauthorised encampments were a major issue in

Hertfordshire, and noted that they had declined in recent years due to stricter policing.

» North Hertfordshire District has no council sites, but does have three small private sites.

There have been issues on one of these sites with caravans being let to non-Travellers, in

breach of the site’s planning permission. Unauthorised encampments are not a significant

issue in North Hertfordshire, and there does not appear to be any outstanding demand

for more site provision. The district is currently preparing a new Gypsy and Traveller

Accommodation Assessment (GTAA) for publication.

» Central Bedfordshire currently has two active council-run sites with another due to come

back into use within the next five years, after having undergone refurbishment. The

authority has acknowledged a backlog of approximately 20 pitches (at the time of

interview). The stakeholder was not aware of any significant issues with unauthorised

encampments. A GTAA was prepared for Central Bedfordshire by ORS. The figures from

this are currently being used to inform the council’s Local Plan.

» St. Albans City and District contains three of Hertfordshire’s county council owned and

managed sites, as well as a number of smaller private sites. The stakeholder felt that

these sites were sufficient to meet the needs of the Gypsy and Traveller population within

the district. Unauthorised encampments are not a significant issue in St. Albans. The

stakeholder reported that (at the time of interview) the council were currently in the

process of scoping a new GTAA.

4.44 In terms of cross boundary working, few authorities had any specific issues that they felt would require

joint work from other authorities. North Hertfordshire District expected that any future need would be met

on their existing sites. Likewise, Central Bedfordshire expected to be able to meet any future need within

its own boundaries. The stakeholder for St. Albans also saw no specific need for any collaboration between

authorities in relation to Gypsies and Travellers.

4.45 However, the Stakeholder for Hertfordshire County Council reported some previous communication with

Luton with regards to Gypsies and Travellers, but that this had declined since the abolition of the Gypsy

Liaison Officer role. The stakeholder felt that while there were no specific issues that needed attention,

communication between authorities could nonetheless be helpful.

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5. Future Site Provision Pitch Provision

5.01 This section focuses on the extra pitch provision which is required in Luton currently and over the next 15

years by 5 year segments.

5.02 The March 2012, CLG document ‘Planning Policy for Traveller Sites’, requires an assessment for future pitch

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 available for

occupation with the current and future needs of the households. The key factors in each of these elements

are set out below:

Supply of pitches

5.03 Pitches which are available for use can come from a variety of sources. These include

» Currently vacant pitches;

» Any pitches currently programmed to be developed within the study period;

Current Need

5.04 There are four key components of current need. Total current need (which is not necessarily need for

additional pitches) is simply:

» Households on unauthorised developments for which planning permission is not expected;

» Concealed households;

» Households in brick and mortar wishing to move to sites.

Future Need

5.05 There are three key components of future need. Total future need is simply the sum of the following:

» Households living on sites with temporary planning permissions;

» New household formation expected during the study period; and

» Migration to sites from outside the study area.

5.06 We will firstly provide the model as set out above for Gypsies and Travellers before repeating the

calculation for Travelling Showpeople.

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Current Gypsy and Traveller Site Provision 5.07 There are currently 20 pitches in Luton contained within a single public site.

5.08 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 are likely to gain planning permission;

5.09 Currently, there are no unoccupied pitches on the public site in Luton, and no current plans for any new

sites or extensions to the existing site.

5.10 When considering out-migration to other areas or movements to bricks and mortar, it is important to note

that households will also wish to move in the opposite direction. Therefore, we have treated these as

being part of the current and future need sections of the calculation, rather than including any such

movements in this section.

5.11 The dissolution of a household occurs when all the members leave the household. Common ways for a

household to dissolve are for a person living on their own to die, or to move to an existing household.

Given that households will also form in the future we have treated the net growth in household numbers as

being part of the future need.

Additional Site Provision: Current Need 5.12 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 developments for which planning permission is not

expected;

» Concealed households (i.e. households living on sites without their own pitch);

» Households in brick and mortar wishing to move to sites.

Current Unauthorised Developments 5.13 There are currently no known households on unauthorised developments in Luton.

Concealed Households 5.14 The St Thomas Road site visit by ORS researchers revealed one household without their own pitch. This

household reported that they were registered on the waiting list for the site. However, we have counted

them at this point and not in the waiting list.

Bricks and Mortar 5.15 Identifying households in bricks and mortar has been frequently highlighted as an issue with Gypsy and

Traveller Accommodation Assessments.

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5.16 The 2011 UK Census of Population identified a population of 198 Gypsy and Traveller persons in Luton. This

is likely an under-estimate of the total population, due to some Gypsies and Travellers not declaring their

ethnic status or not completing the Census at all. Nonetheless, it would seem to suggest a sizeable

population of Gypsies and Travellers residing in bricks and mortar accommodation within Luton.

5.17 In a number of recent studies similar to the current one, ORS have worked with local and national Gypsy

and Traveller representatives to identify households in brick and mortar. In some cases these

representatives reported over 100 known households in housing within a study area and encouraged them

to come forward to take part in the survey. The actual number who eventually took part in the surveys

ranged from zero to six household per area, and not all wished to move back to sites. Therefore, in the

experience of ORS, while there is often 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.

5.18 It is also quite often the case that national Gypsy and Traveller organisations will not have specific

information relating to Gypsies and Travellers (whether in bricks and mortar or otherwise) in a specific

area. While local groups can be more helpful in this respect, ORS has not been made aware of any locally

based groups that could aid the study with regard to reaching those Gypsies and Travellers residing in

bricks and mortar accommodation in Luton.

5.19 Nonetheless, for the purposes of this study, a number of attempts were made by ORS to reach households

in bricks and mortar. ORS arranged for an article to be placed on the website of Travellers’ Times1 inviting

those currently looking for a pitch on a Gypsy and Traveller site within Luton (as well as a number of other

study areas) to register their interest in doing so. Similarly, a statement was also distributed via the Friends,

Families and Travellers Facebook page, inviting contact from any interested parties. However, ORS did not

receive any contact from Gypsies and Travellers in bricks and mortar accommodation in response to these

efforts.

5.20 Two stakeholders also agreed to pass on contact details for a researcher at ORS to those Gypsies and

Travellers that they were aware of in bricks and mortar accommodation. However, ORS did not receive any

contacts as a result.

5.21 However, Luton Council maintains a waiting list for those wishing to live on St. Thomas’s Road. There are

currently 9 households on the list, dating back to 2000, with a further 7 previous applicants with whom

follow up contact has been sought, but not obtained. Location details of the applicants are;

» 5 in Luton, one of whom has already been counted as a concealed household and another

who wishes to transfer to a larger pitch.

» 2 are residing outside Luton in housing, one of whom is in a care home following an

accident & unlikely to occupy a pitch.

» 2 are residing outside Luton in caravans

5.22 It is generally acknowledged that waiting lists for public sites are likely to include double counting as

households can register in more than one area. ORS have a similar waiting list for Central Bedfordshire

Council and this contains a resident seeking to move from the St. Thomas’s Road site, so counting all

1 The article can be viewed here: http://www.travellerstimes.org.uk/list.aspx?c=00619ef1-21e2-40aa-8d5e-

f7c38586d32f&n=df9a585b-61a8-4d08-94c6-8bc1b4277694

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households in all areas would clearly involve double counting as this would create a vacant pitch in Luton.

However, excluding the household seeking to transfer pitches and the household who is concealed, the

waiting list does include 3 households currently living in Luton who require a public site in Luton and it is

this figure which we have used.

5.23 The site visit found no evidence of households seeking to leave the site for bricks and mortar

accommodation. On this basis, and in the absence of any evidence of households wishing to move from

bricks and mortar accommodation to a site, we have modelled the future pitch requirement on the basis

that there will be no movement in either direction between bricks and mortar and sites.

5.24 We would also note that a number of stakeholders were aware of Gypsy and Traveller families residing on a

mobile home park adjacent to the existing site. While the mobile home site is open to all, rather than being

restricted to Gypsies and Travellers, stakeholders reported that the Gypsy and Traveller households

residing on the site were satisfied with their accommodation, given its nature (i.e. mobile homes rather

than bricks and mortar housing) and its proximity to the existing Traveller site. These households have

been counted as contributing towards future growth, we have not counted the households themselves as

representing a need, in light of their circumstances.

Additional Site Provision: Future Need

5.25 The next stage of the process is to assess how many households are likely to be seeking pitches in the area

in the future. Groups of people who are likely to be seeking pitches will include those:

» Households living on sites with temporary planning permissions;

» New household formation expected during the study period; and

» Migration to sites from outside the study area.

Temporary Planning Permissions

5.26 Luton currently has no sites with temporary planning permissions.

New Household Formation

5.27 It is recognised that an important group for future pitch provision will be children from existing households

who will wish to form their own households. Many studies of Gypsy and Traveller populations, including

the (now abolished) East of England Regional Spatial Strategy, assume a net growth in the population of

around 3% per annum. However, long-term trends indicate that the number of Gypsy and Traveller

caravans on site has grown by 134% nationally in the past 34 years, which equates to a net growth of

around 2.5% per annum. However, UK Census of Population 2011 and ORS’ own national survey data both

indicate the population of Gypsies and Travellers has an annual growth rate of around 1.25%-1.5% per

annum. Evidence for this is covered in a technical appendum available on request.

5.28 While previous studies have used a net growth figure of 3%, ORS firmly believe that any evidence base,

including the present study, should use the most accurate information available, rather than simply relying

on precedent. Practice Guidance notes on Page 25, footnote 5 that:

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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.

5.29 As the site visit by ORS researchers did not indicate an age profile significantly different from that typically

found in studies undertaken elsewhere by ORS, we consider it appropriate to allow for future projected

household growth to occur in line with national trends. While we consider the population is growing at less

than 2% per annum, we allow a more standard national growth rate of 2.5% per annum to allow for

unforeseen and unknowable eventualities. Therefore, we have used 2.5% growth per annum for this study.

When including the impact of compound growth, a 2% growth per annum provides for 13% growth over 5

years, 28% over 10 years and 45% over 15 years.

5.30 On the basis of 28 households (20 households on site, 1 concealed household plus 3 households on the

waiting list and 4 households in the mobile home park adjacent to the site), a growth rate of 45% would see

an additional 13 households in the area by 2028. Using 3% compound growth per annum would add a

further 3 pitches to this figure.

In-migration from Other Areas 5.31 The most complicated area for a survey such as this is to estimate how many households will require

accommodation from outside the area. Potentially Gypsies and Travellers could move to Luton from

anywhere in the country and the number of households seeking to move to Luton is likely to be heavily

dependent upon pitch provision elsewhere. It has been noted that a weakness of many Gypsy and

Traveller Accommodation Assessments conducted across the country has been that they either allowed for

out-migration without in-migration which led to under-counting of need, or they over-counted need by

assuming every household visiting the area required a pitch.

5.32 Overall the level of in-migration to Luton is a very difficult issue to predict. We have allowed for a balanced

level of migration into the area. The advantage of assuming a net migration of zero is that it avoids the

problems seen with other Gypsy and Traveller Accommodation Assessments where the modelling of

migration clearly identified too low or high a level of total pitch provision needed. An assumption of net nil

migration implies that the net pitch requirement is driven by locally identifiable need. This conclusion is

also supported by the lack of response to adverts ORS placed on the Traveller’s Times website and on the

Friends, Families and Travellers Facebook page.2

5.33 Beyond this number, rather than assess in-migrant households seeking to develop new sites in the area, we

would propose that each case is assessed as a desire to live in the area and that site criteria rules are

followed for any new site(s). It is important for the authorities to have clear criteria based planning policies

in place for any new potential sites which do arise.

Overall Needs for Luton 5.34 Given the current need arising from 3 households on the waiting list, the concealed household and future

growth over the next 15 years of 13 households, the total projected need for Luton until 2028 is 17 pitches.

2 In addition to asking those in bricks and mortar to come forward, these adverts also requested that any Gypsies and

Travellers looking to live on a site within Luton contact ORS for an interview.

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Figure 2 Extra Pitches which are Required in Luton from 2013-2028

Reason for Requirement/Vacancy Gross Requirement

Supply Net Requirement

Supply of Pitches

Additional supply from empty pitches - 0

Additional supply new sites - 0

Total Supply 0

Current Need

Current unauthorised developments or encampments and seeking to stay in the area

0 -

Concealed households 1 -

Movement from bricks and mortar 3 -

Total Current Need 4

Future Needs

Currently on sites with temporary planning permission 0 -

Net migration 0 -

Net new household formation 13 -

Total Future Needs 17 -

Total 17 0 17

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Requirements by Time Period 5.35 The table below sets out the net requirement of new pitches in 5 year time periods. Any outstanding need

(e.g. households on a waiting list) have been included in the initial period (2013-2018), along with any new

household formation that occurs within that time. Need in the periods 2018-2023 and 2023-2028 is driven

entirely by new household formation.

Figure 3 Extra Pitch Provision Require on Luton in 5 Year Periods to 2028

2013-2018 2018-2023 2023-2028 Total

8 4 5 17

Transit Sites/Emergency Stopping Places

5.36 As noted in Chapter 1, transit sites are sites that contain many of the same facilities as a residential site, but

which impose a maximum period of residence on those who wish to utilise the site, which can vary from a

few weeks to a period of months. Emergency stopping places have similar limits on the amount of time

Travellers may stay on them, but have much more limited facilities, and usually a much shorter time limit

on their use.

5.37 There are currently no transit sites or emergency stopping places in the study area. However, information

provided to ORS by Luton Borough Council and the comments of stakeholders indicate there may be a need

for some form of transit provision within Luton. Stakeholders noted that a number of public parks and

commercial zones within Luton are frequently used as stopping points for Gypsies and Travellers when

visiting relatives or attending family events such as christenings, weddings and funerals, causing some

disruption and tension with the settled community and businesses.

5.38 As well as facilitating the accommodation needs of a household visiting an area, the presence of a transit

site or emergency stopping place in an area can speed up enforcement on unauthorised encampments,

with households facing committing an offence if they do not move on to the site, or leave the area.

However, we would note that local authorities are not able to use transit provision on private sites as part

of their enforcement action policies and therefore while it does provide an option for visiting households it

is at the discretion of the site owner who is allowed on to the site. It should also be noted that

strengthened Police powers can only be triggered if a transit site or temporary stopping place is made

available within a specific local authority area. The legislation does not currently allow the direction of

Travellers across local authority boundaries. Luton would therefore need to plan for a separate site within

its local authority area or accept some limitations to Police powers.

5.39 A publicly provided transit site of 10 pitches within the Luton Borough boundary would give the police

stronger powers to move on unauthorised encampments, as well as providing Travellers with facilities, and

potentially alleviating some of the tensions with the settled community caused by Travellers occupying and

possibly damaging public parks and other land. In this way a 10 pitch transit site may also help to reduce

legal costs currently entailed by dealing with unauthorised encampments.

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Travelling Showpeople 5.40 There are currently no known sources of Travelling Showpeople provision in Luton other than the existing

site at Wigmore Lane. As ORS was unable to speak to anyone on the site, the number of households on site

can only be estimated from stakeholders who suggest that two related families operate from the site.

5.41 Travelling Showpeople populations typically grow at a slower rate than those of Gypsies and Travellers,

with estimates normally falling between 1% and 1.5%. Regardless of which of these two figures are used,

future household formation for Travelling Showpeople will be no households by 2028. We have therefore

not allowed for a future need for Travelling Showpeople in Luton. However, we do consider that the

situation should be carefully monitored to ensure no additional needs arise.

5.42 It is still important for the authority to have criteria based planning policies in place in the event that any

Travelling Showpeople do seek to develop a new Showpeople’s yard in Luton in future.

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6. Conclusions Introduction

6.01 This chapter brings together the evidence presented earlier in the report to provide some key policy

conclusions for Luton. It focuses upon the key issues of future site provision for Gypsies and Travellers and

also Travelling Showpeople.

Gypsy and Traveller Future Residential Pitch Provision 6.02 Based upon the evidence presented in Chapter 5, the estimated extra residential pitch provision that is

required for Gypsies and Travellers in Luton in the next 15 years in Luton is 17 pitches. The table below

shows the requirements by 5 year time periods until 2028.

Figure 4 Extra Pitch Provision Require in Luton in 5 Year Periods to 2028

2013-2018 2018-2023 2023-2028 Total

8 4 5 17

6.03 In addition to this requirement for residential pitches, ORS recommends the provision of a transit site of 10

pitches, to be located within a reasonable distance of current locations favoured by Travellers. It should be

noted that in order to attain the greatest benefit from transit sites in terms of tackling unauthorised

encampments, authorities must have the cooperation of police in moving Travellers on from their

encampment to a transit site.

Travelling Showpeople Future Plot Provision 6.04 There are currently no known sources of need for Travelling Showpeople provision in Luton other than the

existing site at Wigmore Lane. Based on an estimated 2 households on site, there is no extra Travelling

Showpeople provision required in Luton in the next 15 years, but this situation requires careful monitoring.

Policy Recommendations

Safeguarding existing sites

6.05 In developing their local plans, “Planning Policy for Traveller Sites” requires local planning authorities to

identify and keep up-to-date a supply of specific deliverable sites sufficient to provide five years’ worth of

sites against those locally set targets and a supply of specific developable sites or broad locations to meet

needs, where possible, for up to 15 years.

6.06 We would suggest that an initial starting point would be for the Council to consider safeguarding the

existing authorised sites, to ensure that existing needs continue to be met in perpetuity. If sites are lost

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from these uses, then new replacement sites may need to be found to maintain an adequate supply to

meet needs in accordance with the identified pitch and plot targets.

Broad Geographical Locations

6.07 Where specific deliverable or developable sites for further Gypsy, Traveller and Travelling Showpeople

provision cannot be identified, the Council should consider including broad geographical locations within

their Local Plans.

6.08 This document recommends that the identification of further Gypsy, Traveller and Travelling Showpeople

residential sites should focus on the broad geographical locations and should take into account where the

need arises and the capacity of local infrastructure to determine the most appropriate broad location to

commence the site search.

6.09 The Council should investigate public sites within the most sustainable broad locations, particularly in

locations where there is good access to main facilities and services such as local hospitals.

Sites with Potential to Meet Future Needs

6.10 The Council should investigate the potential from existing sites to achieve additional pitches/plots either

through increasing the capacity within existing boundaries or through site extension onto adjoining land.

6.11 To provide a medium and long term supply, the Council should consider allocating sites through their Local

Plans. This can either be through a Core Strategy, Local Plan or a Site Allocations DPD, depending upon the

nature of the development plan within each area.

Delivery

6.12 As with other forms of development, the release of Gypsy, Traveller and Travelling Showpeople sites should

be managed to ensure a good fit with identified need.

6.13 It is important to note that Romany Gypsies and Irish Travellers have separate traditions and patterns of

movement and may not be prepared to share sites. Similarly, Travelling Showpeople families operate

separate commercial businesses and are unlikely to share sites.

6.14 There is therefore a strong likelihood that more than the bare minimum of sites will need to be identified

and brought forward to provide a flexible and sufficient pool of sites to meet identified existing and future

needs.

6.15 We would suggest that it would be prudent for the Council to identify a potential reserve supply from the

identified sites or other sites which could be brought forward in the future if required to ensure a

continuous supply of deliverable and developable sites.

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Phasing, Monitoring and Review

6.16 Any release of land to meet future needs would require active monitoring of supply against need, at least

on an annual basis. It would also require the Council to undertake periodic reviews of the needs evidence

base.

Site Criteria

6.17 To meet any other unidentified need through the plan period and to provide a base for considering

planning applications, we would recommend the development of suitable criteria based-policies which

could be incorporated within the Council’s Core Strategy, Local Plans or other DPD.


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