Tandridge Gypsy and Traveller Accommodation Assessment – January 2017 Tandridge District Council Gypsy and Traveller Accommodation Assessment Final Report January 2017 Tandridge Gypsy and Traveller Accommodation Assessment – January 2017 Opinion Research Services The Strand, Swansea SA1 1AF Steve Jarman, Claire Thomas, Ciara Small and Kara Steadman Enquiries: 01792 535300 · [email protected] · www.ors.org.uk © Copyright January 2017 Contains public sector information licensed under the Open Government Licence v3.0 Contains OS data © Crown Copyright (2014) Page 2 Tandridge Gypsy and Traveller Accommodation Assessment – January 2017 Contents 1. Executive Summary ................................................................................................................ 5 Introduction and Methodology ........................................................................................................ 5 Gypsy and Traveller Pitch Provision .................................................................................................. 6 Travelling Showpeople Plot Provision ............................................................................................... 7 Transit Provision ............................................................................................................................... 8 2. Introduction ........................................................................................................................... 9 The Study ......................................................................................................................................... 9 Local Development Framework in Tandridge ................................................................................... 9 Definitions ...................................................................................................................................... 10 The Planning Definition in PPTS (2015)........................................................................................... 11 Definition of Travelling ................................................................................................................... 12 Legislation and Guidance for Gypsies and Travellers ...................................................................... 13 Planning Policy for Traveller Sites (PPTS) 2015 ............................................................................... 13 3. Methodology ......................................................................................................................... 16 Background .................................................................................................................................... 16 4. Gypsy, Traveller and Travelling Showpeople Sites and Population ......................................... 18 Introduction ................................................................................................................................... 18 Sites and Yards in Tandridge ........................................................................................................... 19 Census Data .................................................................................................................................... 19 Caravan Count ................................................................................................................................ 19 5. Stakeholder Engagement ....................................................................................................... 20 Introduction ................................................................................................................................... 20 Views of Key Stakeholders, Elected Members and Council Officers in Tandridge ........................... 21 Accommodation Need .................................................................................................................... 21 Travellers living in Bricks and Mortar ............................................................................................. 22 Short-term Roadside Encampments and Transit Provision ............................................................. 22 Cross-border Issues and the Duty to Cooperate ............................................................................. 23 Views of Officers in Neighbouring Authorities ................................................................................ 23 Crawley Borough Council ............................................................................................................... 23 Mid Sussex District Council ............................................................................................................. 24 London Borough of Croydon .......................................................................................................... 25 Reigate & Banstead Borough Council ............................................................................................. 26 Sevenoaks District Council .............................................................................................................. 27 Page 3 Tandridge Gypsy and Traveller Accommodation Assessment – January 2017 Wealden District Council ................................................................................................................ 28 Response from the Showman’s Guild (London Section) ................................................................. 29 6. Survey of Travelling Communities ............................................................................................. 30 Interviews with Gypsies and Travellers .......................................................................................... 30 Efforts to contact bricks and mortar households............................................................................ 32 7. Current and Future Pitch Provision ........................................................................................ 33 Introduction ................................................................................................................................... 33 Fieldwork Summary ........................................................................................................................ 33 Calculating Current and Future Need ............................................................................................. 33 Unknown Households .................................................................................................................... 34 Households that do not meet the Planning Definition ................................................................... 35 New Household Formation Rates ................................................................................................... 35 Breakdown by 5 Year Bands ........................................................................................................... 37 Applying the Planning Definition .................................................................................................... 37 Bricks and Mortar Interviews ......................................................................................................... 38 Pitch Needs – Gypsies and Travellers that meet the Planning Definition ....................................... 40 Pitch Needs – Unknown Gypsies and Travellers ............................................................................. 40 Waiting Lists ................................................................................................................................... 41 Plot Needs – Travelling Showpeople that meet the Planning Definition ........................................ 42 Plot Needs – Unknown Showpeople .............................................................................................. 43 Transit Provision ............................................................................................................................. 44 Appendix A – Joint Methodology .................................................................................................. 45 Appendix B – Site and Yard List (March 2016) ............................................................................... 46 Appendix C – Household Interview Summary for Respondents in Tandridge ................................. 47 Appendix D – Assessment of need for unknown households and households that do not meet the Planning Definition ....................................................................................................................... 51 Appendix E – Advertisements ....................................................................................................... 55 Appendix F – Site Record Form ...................................................................................................... 56 Appendix G – Glossary of Terms .................................................................................................... 63 Page 4 Tandridge Gypsy and Traveller Accommodation Assessment – January 2017 1. Executive Summary Introduction and Methodology 1.1 The primary objective of this 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 the district of Tandridge. The GTAA provides an evidence base which can be used to inform the preparation of local plans and make planning decisions for the period to 2033, and runs to 2033 to meet the requirements of Planning Policy for Traveller Sites (PPTS) (2015) and the Local Plan period in Tandridge. 1.2 As well as updating the previous GTAA (2013), a key impetus for completing the study was the publication of a revised version of PPTS in August 2015. This included a change to the definition of Travellers for planning purposes. The key change that was made was the removal of the term persons…who have ceased to travel permanently, meaning that those who have ceased to travel permanently will not now fall under the planning definition of a Traveller for the purposes of assessing accommodation need in a GTAA (see Paragraph 2.11 for the full definition). 1.3 The GTAA has sought to understand the accommodation needs of the Gypsy, Traveller and Travelling Showpeople population in Tandridge through a combination of desk-based research, stakeholder interviews and engagement with members of the Travelling Community. A total of 21 interviews were completed with Gypsies and Travellers living on authorised and unauthorised sites, and a further 31 interviews were completed with households living on Travelling Showpeople yards. Extensive efforts were made to identify Gypsy and Traveller households to interview living in bricks and mortar, and a total of 5 interviews were completed. In addition a total of 4 telephone interviews were completed with Officers from Tandridge District Council; a focus group was held with Officers and Members from Tandridge District Council; and 7 interviews were completed with Officers from neighbouring local authorities. A short online questionnaire was also sent to 50 Local Councillors and 21 Parish Councils and a total of 14 responses were received. 1.4 The fieldwork for the study was completed during March 2016, which was after the publication of PPTS (2015). As a result of this change questions to enable the determination of the travelling status of households for planning purposes were included in the household interviews. 1.5 The baseline date for the study is March 2016 which was when the all of the site interviews were completed. 1.6 A Glossary of Terms can be found in Appendix G. Page 5 Tandridge Gypsy and Traveller Accommodation Assessment – January 2017 Gypsy and Traveller Pitch Provision 1.7 Overall, the additional pitch needs for Gypsies and Travellers from 2016-2033 are set out below. Additional needs are set out for those households that meet the planning definition of a Gypsy or Traveller, for those unknown households where an interview was not able to be completed (either due to households refusing to be interviewed, or not being present despite 3 visits to each site) who may meet the planning definition, and for those households that do not meet the planning definition (even though this is no longer a requirement for a GTAA). 1.8 Only the need from those households who meet the planning definition and from those unknown households who subsequently demonstrate that they meet it should be considered as need arising from the GTAA1. 1.9 The need arising from households that meet the planning definition should be addressed through site allocation/intensification/expansion policies. Consideration will also need to be given to the allocation of pitches on public and private sites. 1.10 The Council will need to carefully consider how to address the needs associated with unknown Travellers as it is unlikely that all of this need will need to be addressed through the provision of conditioned Gypsy or Traveller pitches. In terms of Local Plan policies the Council could consider the use of a criteria-based policy (as suggested in PPTS) for any unknown households that do provide evidence that they meet the planning definition. 1.11 The need for those households who do not meet the planning definition will need to be addressed through other means such as the Strategic Housing Market Assessment (SHMA). 1.12 There were 4 Gypsy or Traveller households identified in Tandridge that meet the planning definition, 17 unknown households that may meet the planning definition, and 26 households that do not meet the planning definition. 1.13 The GTAA identifies a need for 5 additional pitches for households that meet the planning definition. As well as need arising from 1 unauthorised pitch, analysis of the household interviews indicated that there is a short-term need for 1 additional pitch for a concealed household or adult, and 2 additional pitches for older teenage children. In addition, 1 household living in bricks and mortar who meets the planning definition stated they would like to move to a pitch on a site. There is no further future need as a result of new household formation. 1.14 The GTAA identifies a need for up to 15 additional pitches for unknown households and this is made up of 8 unauthorised pitches and new household formation of up to 7 from a maximum of 26 households. If the ORS national average2 of 10% were applied this could result in a need for 2 additional pitches. 1.15 Whilst no longer a requirement for a GTAA, the need for households that do not meet the planning definition is included in this report to inform the Council’s SHMA. Need for 23 additional pitches for the 17 households that do not meet the planning definition is made up of 6 unauthorised pitches, 1 pitch with temporary planning permission, 3 concealed households or adults, 3 pitches for older 1 See Paragraphs 7.7-7.13. 2 Based on the outcome of over 1,800 interviews that have been completed with Gypsies and Travellers by ORS since the publication of PPTS (2015). Page 6 Tandridge Gypsy and Traveller Accommodation Assessment – January 2017 teenage children living on sites who will need a pitch of their own in the next 5 years, and new household formation of 8. In addition there were 2 households interviewed living in bricks and mortar who did not meet the planning definition who expressed a wish to move to a site. Figure 1 – Additional need for Gypsy and Traveller households in Tandridge District (2016-2033) Status Total Meets Planning Definition 5 Unknown 0-15 (10% = 2) Does Not Meet Planning Definition 23 Travelling Showpeople Plot Provision 1.16 Overall the additional plot needs for Travelling Showpeople from 2016 to 2033 are set out below. Additional needs are set out for those households that meet the planning definition of a Travelling Showperson, for those unknown households where an interview was not able to be completed (either due to households refusing to be interviewed, or not being present despite 3 visits to each yard) who may meet the planning definition, and for those households that do not meet the planning definition (although this is no longer a requirement for a GTAA). 1.17 Only the need from those households who meet the planning definition and from those of the unknown households who subsequently demonstrate that they meet it should be considered as need arising from the GTAA3. 1.18 The need arising from households that meet the planning definition should be addressed through yard allocation/intensification/expansion policies. 1.19 The Council will need to carefully consider how to address the needs associated with unknown Travelling Showpeople as it is unlikely that all of this need will need to be addressed through the provision of conditioned Travelling Showpeople plots. In terms of Local Plan policies the Council could consider the use of a criteria-based policy (as suggested in PPTS) for any unknown households that do provide evidence that they meet the planning definition. 1.20 The need for those households who do not meet the planning definition will need to be addressed through other means such as the SHMA. 1.21 There were 26 Travelling Showpeople households identified in Tandridge that meet the planning definition, 28 unknown households that may meet the planning definition and 5 households that did not meet the planning definition. 1.21 The 26 households who meet the planning definition of Travelling Showperson were found on 2 private yards. Analysis of the household interviews indicated that there is a need for 21 additional plots over the 17 year GTAA period. This is made up of 9 concealed households or adults, 7 older teenage children in need of a plot of their own in the next 5 years, and 9 from new household formation. This need is offset by supply of 4 plots through households that stated that they were planning to move. 3 See Paragraphs 7.7-7.13. Page 7 Tandridge Gypsy and Traveller Accommodation Assessment – January 2017 1.22 The GTAA identifies a need for up to 5 additional plots for unknown households and this is made up of up to 5 plots from new household formation. If the national average of 70% were applied this could result in a need for 4 additional plots. 1.23 Whilst no longer a requirement for a GTAA, the need for households that do not meet the planning definition is included in this report to inform the Council’s SHMA. Need for 3 additional plots for the 5 households that do not meet the planning definition is made up of new household formation of 3. Figure 2 – Additional need for Travelling Showpeople households in Tandridge District (2016-2033) Status Total Meets Planning Definition 21 Unknown 0-5 (70% = 4) Does Not Meet Planning Definition 3 Transit Provision 1.24 The 2013 GTAA recommended that there was not any need for the Council to consider transit provision due to very low numbers of unauthorised encampments. 1.25 Evidence from the Caravan Count shows that there have been relatively low numbers of unauthorised caravans on land not owned by Travellers recorded in recent years. The stakeholder interviews undertaken also identified that there are relatively low levels of encampments in the area, and that the majority were short-term and transient, or from a small number of groups moving around the area. 1.26 There is the possibility that PPTS (2015) could result in increased levels of travelling but it is not recommended that there is a need for the Council to consider any new transit provision at this time. 1.27 However whist accepted that there is no need from the perspective of providing short term sites for those passing through Tandridge, there may be a wider need for a transit site on a county-wide basis to allow for effective enforcement of unauthorised sites where direct action is contemplated. This should be considered in partnership with other local authorities in Surrey and also with Surrey County Council. 1.28 The Council should consider a review of the evidence base relating to unauthorised encampments in the future, once there is a robust post-PPTS (2015) evidence base. This will establish whether there is a need for investment in any additional transit sites or emergency stopping places. 1.29 In the short-term the Council should consider the use of short-term toleration or negotiated stopping agreements to deal with any encampments. 1.30 The term ‘negotiated stopping’ is used to describe agreed short term provision for Gypsy and Traveller caravans. It does not describe permanent ‘built’ transit sites but negotiated agreements which allow caravans to be sited on suitable specific pieces of ground for an agreed and limited period of time, with the provision of limited services such as water, waste disposal and toilets. Agreements are made between the authority and the (temporary) residents regarding expectations on both sides. Page 8 Tandridge Gypsy and Traveller Accommodation Assessment – January 2017 2. Introduction The Study 2.1 Opinion Research Services (ORS) were appointed by Tandridge District Council (TDC) in January 2016 to complete a robust and up-to-date needs assessment of accommodation for Gypsies, Travellers and Travelling Showpeople to support the Local Plan period to 2033 for Tandridge, and to meet the requirements of PPTS for a 15 year assessment of need. This was a joint appointment that included separate GTAA studies for Elmbridge Borough Council and Reigate & Banstead Borough Council, along with the development of a Joint Methodology for the three councils. 2.2 The study provides an evidence base to enable TDC to comply with their requirements towards Gypsies, Travellers and Travelling Showpeople under the Housing Act 2004, the National Planning Policy Framework (NPPF) 2012, Planning Practice Guidance (PPG), and PPTS (2015). It has also taken into consideration more recent changes that were introduced in the Housing and Planning Act (2016). 2.3 The GTAA provides a robust assessment of potential need for Gypsy, Traveller and Travelling Showpeople accommodation within Tandridge. It is a credible evidence base which can be used to aid the preparation of local plans and to make planning decisions to 2033. As well as seeking to identify whether there are any current and future permanent accommodation needs, it also identifies whether or not TBC needs to plan for the provision of transit sites or emergency stopping places. 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 (and Travelling Showpeople) Accommodation Assessment (GTAA). 2.5 The baseline date for the study is March 2016 which was when the all of the household interviews were completed. Local Development Framework in Tandridge 2.6 The Tandridge District Core Strategy was adopted by the Council in October 2008. It sets out key planning policies for the District. Policy CSP 9 deals with Gypsy and Traveller provision. Figure 3 – Local Plan Policies Policy CSP 9 Gypsy and Traveller Caravan Sites The Council will make provision for sites for Gypsies and Travellers, through a Site Allocations Development Plan Document in accordance with any identified need and taking into account the existing authorised provision within the District. Page 9 Tandridge Gypsy and Traveller Accommodation Assessment – January 2017 In allocating sites the preference will be for urban sites, however when it is not possible to identify urban sites the Council will allocate sites within the Green Belt. Allocated sites will be small, appropriate to the size of site and availability of infrastructure and services. The following criteria will be used to assess the suitability of sites being considered for allocation through the Development Plan; in addition proposals for Gypsy and Traveller caravan sites to meet unexpected and proven need will be permitted where the following criteria are satisfied: a) Unallocated sites within the Green Belt will only be acceptable where it can be demonstrated that very special circumstances exist, these may include the lack of alternative sites within non-green belt locations. b) The development would not significantly harm the visual amenities and character of the area. c) The number of pitches is appropriate to the site size and the availability of infrastructure and services. d) The site can be provided with safe access to the highway and includes adequate on-site parking and turning facilities. e) Where ancillary space for business activities is proposed the activity within that space would not be detrimental to the amenities of the nearby residential properties by reason of noise, dust, fumes or visual intrusion. f) Preference will be given to sites that are accessible by non-car modes of transport. 2.7 The Council are currently in the process of preparing a new Local Plan and have recently undertaken a Regulation 18 Sites Consultation. Emerging issues relating to Gypsies and Travellers include the need to address issues relating to unauthorised and temporary pitches. The new Local Plan will replace the current Core Strategy and will include a new policy addressing the needs of Gypsies, Travellers and Travelling Showpeople. Definitions 2.8 The planning definition for a Gypsy, Traveller or Travelling Showperson is set out in PPTS (2015). The previous definition set out in the Housing Act (2004) was repealed by the Housing and Planning Act (2016). 2.9 Provisions set out in the Housing and Planning Act (2016) now include a duty (under Section 8 of the 1985 Housing Act that covers the requirement for a periodical review of housing needs) for local authorities to consider the needs of people residing in or resorting to their district with respect to the provision of sites on which caravans can be stationed, or places on inland waterways where houseboats can be moored. Draft Guidance4 related to this section of the Act has been published setting out how the government would want local housing authorities to undertake this assessment and it is the same as the GTAA assessment process. The implication is therefore that the housing needs of any Gypsy and Traveller households who do not meet the planning definition of a Traveller 4 “Draft guidance to local housing authorities on the periodical review of housing needs for caravans and houseboats.” (March 2016) Page 10