Opinion Research Services | The Strand • Swansea • SA1 1AF | 01792 535300 | www.ors.org.uk | [email protected]
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Cheshire
Gypsy, Traveller and Travelling Showpeople
Accommodation Assessment
March 2014
Opinion Research Services Cheshire Gypsy, Traveller and Travelling Showpeople Accommodation Assessment March 2014
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Opinion Research Services The Strand, Swansea SA1 1AF
Nigel Moore, Claire Thomas, Katie Amesbury and Matt Bradley
enquiries: 01792 535300 · [email protected] · www.ors.org.uk
© Copyright March 2014
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Contents
Cheshire ........................................................................................................................................... 1
1. Introduction .............................................................................................................................. 8
The Survey ........................................................................................................................................ 8
Definitions ........................................................................................................................................ 9
Legislation and Guidance for Gypsies and Travellers ......................................................................... 10
Planning Policy for Traveller Sites ..................................................................................................... 11
Tackling Inequalities for Gypsy and Traveller Communities ............................................................... 12
Funding ........................................................................................................................................... 13
Methodology ................................................................................................................................... 13
Stage 1: Background ......................................................................................................................... 14
Stage 2: Household Survey ............................................................................................................... 14
Stage 3: Stakeholder Engagement ..................................................................................................... 14
Stage 4: Future Pitch and Plot Requirements .................................................................................... 14
Stage 5: Conclusions ......................................................................................................................... 15
2. Gypsy, Traveller and Travelling Showpeople Sites and Population .............................................. 16
Sites in Cheshire ............................................................................................................................... 16
Caravan Count ................................................................................................................................. 17
3. Gypsy and Traveller Population ................................................................................................. 19
Survey of the Gypsy and Traveller Population ................................................................................... 19
Length of Residence ......................................................................................................................... 20
Connections with the Area ............................................................................................................... 20
Ethnic Background ........................................................................................................................... 21
Age and Household Profile ............................................................................................................... 21
Employment .................................................................................................................................... 22
Health Problems .............................................................................................................................. 22
4. Existing Sites ............................................................................................................................. 23
Type of Site ...................................................................................................................................... 23
Views of Sites................................................................................................................................... 24
Propensity to Travel ......................................................................................................................... 24
Bricks and Mortar ............................................................................................................................ 26
Moving to a New Permanent Base .................................................................................................... 26
5. Travelling Showpeople .............................................................................................................. 27
Introduction ..................................................................................................................................... 27
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Travelling Showpeople Households in Cheshire ................................................................................. 27
6. Stakeholder Consultation .......................................................................................................... 28
Cheshire East Council ....................................................................................................................... 30
Accommodation ............................................................................................................................... 30
Community, Health and Education Issues ......................................................................................... 32
Community Cohesion ....................................................................................................................... 32
Health.............................................................................................................................................. 32
Education ........................................................................................................................................ 32
Cross Boundary Issues ...................................................................................................................... 32
Consultation Activities ..................................................................................................................... 33
Future Site Provision: Criteria, Management and Geographical Location ........................................... 33
Conclusions and Recommendations .................................................................................................. 33
Cheshire West and Chester Council ................................................................................................... 34
Accommodation ............................................................................................................................... 34
Community, Health and Education Issues ......................................................................................... 36
Community Cohesion ....................................................................................................................... 36
Health.............................................................................................................................................. 36
Education ........................................................................................................................................ 37
Cross Boundary Issues ...................................................................................................................... 38
Consultation Activities ..................................................................................................................... 38
Future Site Provision: Criteria, Management and Geographical Location ........................................... 39
Conclusions and Recommendations .................................................................................................. 39
Halton Borough Council .................................................................................................................... 40
Accommodation ............................................................................................................................... 40
Community, Health and Education Issues ......................................................................................... 41
Community Cohesion ....................................................................................................................... 41
Health.............................................................................................................................................. 41
Education ........................................................................................................................................ 41
Cross Boundary Issues ...................................................................................................................... 42
Consultation Activities ..................................................................................................................... 42
Future Site Provision: Criteria, Management and Geographical Location ........................................... 42
Conclusions and Recommendations .................................................................................................. 42
Warrington Borough Council ............................................................................................................ 43
Accommodation ............................................................................................................................... 43
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Community, Health and Education Issues ......................................................................................... 44
Community Cohesion ....................................................................................................................... 44
Health.............................................................................................................................................. 44
Education ........................................................................................................................................ 44
Cross Boundary Issues ...................................................................................................................... 45
Consultation Activities ..................................................................................................................... 45
Future Site Provision: Criteria, Management and Geographical Location ........................................... 45
Conclusions and Recommendations .................................................................................................. 45
Views of Wider Stakeholders ............................................................................................................ 46
Accommodation ............................................................................................................................... 46
Community, Health and Education Issues ......................................................................................... 47
Community Cohesion ....................................................................................................................... 47
Health.............................................................................................................................................. 47
Education ........................................................................................................................................ 47
Cross Boundary Issues ...................................................................................................................... 48
Consultation and Community Engagement ....................................................................................... 48
Future Site Provision: Criteria, Management and Geographical Location ........................................... 48
Travelling Showpeople ..................................................................................................................... 49
Neighbouring Authorities ................................................................................................................. 52
Main Policy Tools ............................................................................................................................. 52
Accommodation Needs: Site Provision and Unauthorised Encampments ........................................... 52
Cross Boundary Issues ...................................................................................................................... 54
7. Future Pitch Provision ............................................................................................................... 55
Pitch Provision ................................................................................................................................. 55
Supply of Pitches .............................................................................................................................. 56
Current Need ................................................................................................................................... 56
Future Need ..................................................................................................................................... 56
Current Gypsy and Traveller Site Provision........................................................................................ 57
Additional Pitch Provision: Current Need .......................................................................................... 58
Current Unauthorised Developments ............................................................................................... 58
Concealed Households ..................................................................................................................... 58
Bricks and Mortar ............................................................................................................................ 59
Additional Pitch Provision: Future Need............................................................................................ 60
Temporary Planning Permissions ...................................................................................................... 60
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New Household Formation ............................................................................................................... 61
In-migration from Other Sources ...................................................................................................... 62
Overall Needs for Cheshire ............................................................................................................... 63
Overall Needs for Each Planning Authority ........................................................................................ 64
Cheshire East ................................................................................................................................... 64
Cheshire West and Chester ............................................................................................................... 65
Halton ............................................................................................................................................. 66
Warrington ...................................................................................................................................... 67
Split by Local Authority to 2028 in 5 year Time Period ....................................................................... 68
Transit/Emergency Stopping Site Provision ....................................................................................... 68
Needs for Plots for Travelling Showpeople ........................................................................................ 70
Additional Plot Provision: Current Need ........................................................................................... 71
Current Unauthorised Developments ............................................................................................... 71
Concealed Households ..................................................................................................................... 71
Bricks and Mortar ............................................................................................................................ 72
Additional Plot Provision: Future Need ............................................................................................. 72
Temporary Planning Permissions ...................................................................................................... 72
In-migration from Other Sources ...................................................................................................... 72
New Household Formation ............................................................................................................... 74
Overall Needs for Cheshire for Travelling Showpeople ...................................................................... 75
Overall Needs for Each Planning Authority for Travelling Showpeople ............................................... 76
Cheshire East ................................................................................................................................... 76
Cheshire West and Chester ............................................................................................................... 77
Halton ............................................................................................................................................. 78
Warrington ...................................................................................................................................... 79
Split by Local Authority to 2028 for Travelling Showpeople ............................................................... 79
8. Conclusions .................................................................................................................................. 80
Introduction ..................................................................................................................................... 80
Gypsy and Traveller Future Pitch Provision ....................................................................................... 80
Transit Sites ..................................................................................................................................... 80
Travelling Showperson Requirements ............................................................................................... 81
Appendices ...................................................................................................................................... 82
Appendix A: Gypsy and Traveller Sites in Cheshire (April 2013) .......................................................... 83
Gypsy and Traveller Sites in Cheshire East ......................................................................................... 83
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Gypsy and Traveller Sites in Cheshire West and Chester .................................................................... 84
Gypsy and Traveller Sites in Halton ................................................................................................... 85
Gypsy and Traveller Sites in Warrington ........................................................................................... 86
Appendix B: Travelling Showpeople Yards in Cheshire (April 2013) .................................................... 87
Travelling Showpeople Yards in Cheshire East ................................................................................... 87
Travelling Showpeople Yards in Cheshire West and Chester .............................................................. 88
Travelling Showpeople Yards in Halton ............................................................................................. 89
Travelling Showpeople Yards in Warrington ...................................................................................... 90
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1. Introduction The Survey
1.1 Opinion Research Services (ORS) was commissioned by the Local Authorities of Cheshire to undertake a
Gypsy, Traveller and Travelling Showpeople Accommodation Assessment (GTTSAA). The authorities
involved in this study are:
» Cheshire West and Chester
» Cheshire East
» Halton
» Warrington.
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1.2 The study seeks to provide an evidence base to enable authorities to comply with their requirements
towards Gypsies, 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 Local Authorities with robust, defensible and up-to-date evidence about the accommodation
needs of Gypsies, Travellers and Travelling Showpeople in the study area during the 15 year period until
2028 in 5 year sections, covering 2013-2018, 2018-2023 and 2023-2028. It seeks to identify whether or not
any of the Local Authorities need to plan for the provision of permanent accommodation as well as transit
sites or emergency stopping places.
1.3 We would note at the outset that the study covers the needs of Gypsies (including English, Scottish, Welsh
and Romany Gypsies), Irish Travellers, New Travellers, Traveller and Travelling Showpeople, but for ease of
reference we have referred to the study as a Gypsy, Traveller and Travelling Showpeople Accommodation
Assessment.
1.4 This document is the main report and summarises the key findings of the study, in particular where they
relate to existing policies, or have implications for future policy decisions across the study area.
Definitions
1.5 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 dependants’ educational or health needs or old age
have ceased to travel temporarily or permanently, but excluding members of an organised group of
Travelling Showpeople or circus people travelling together as such. (Planning Policy for Traveller
Sites, Department for Communities and Local Government (CLG), March 2012).
1.6 Within the main definition of Gypsies and Travellers, there are a number of main cultural groups which
include:
» Romany Gypsies
» Irish Travellers
» New Travellers.
1.7 Romany Gypsies and Irish Travellers are recognised in law as distinct ethnic groups and are legally
protected from discrimination under the Equalities Act 2010.
1.8 Alongside Gypsies and Travellers, a further group to be considered is 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
dependant’s more localised pattern of trading, educational or health needs or old age have ceased
to travel temporarily or permanently, but excludes Gypsies and Travellers as defined above.
(Planning Policy for Traveller Sites, CLG, March 2012).
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Legislation and Guidance for Gypsies and Travellers
1.9 Decision-making for policy concerning Gypsies, Travellers and Travelling Showpeople sits within a complex
legislative and national policy framework and this study must be viewed in the context of this legislation
and guidance. For example, the following pieces of legislation and guidance are relevant when constructing
policies relating to Gypsies, Travellers and Travelling Showpeople:
» Planning Policy for Traveller Sites 2012
» National Planning Policy Framework 2012
» Gypsy and Traveller Accommodation Needs Assessments Guidance October 2007
» 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
» 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 this element of government guidance)
» Housing Act 1996 (in respect of homelessness).
1.10 To focus on Gypsies and Travellers, the Criminal Justice and Public Order Act 1994 is particularly important
with regard to the issue of planning for Gypsy and Traveller site provision. This repealed the duty of Local
Authorities from the Caravans Act 1968 to provide appropriate accommodation for Gypsies and Travellers.
However, at this time Circular 1/94 did support maintaining existing sites and stated that appropriate
future site provision should be considered.
1.11 For site provision, the previous Labour Government guidance focused on increasing site provision for
Gypsies and Travellers and Travelling Showpeople and encouraged Local Authorities to have a more
inclusive approach to Gypsies and Travellers and Travelling Showpeople within their Housing Needs
Assessment. The Housing Act 2004 Section 225 requires Local Authorities to identify the need for Gypsy
and Traveller sites, alongside the need for other types of housing, when conducting Housing Needs Surveys.
Therefore, all Local Authorities were required to undertake accommodation assessments for Gypsies and
Travellers and Travelling Showpeople either as a separate study such as this one, or as part of their main
Housing Needs Assessment.
1.12 Local Authorities were encouraged rather than compelled to provide new Gypsy and Traveller sites by
central Government. Circular 1/06 ‘Planning for Gypsy and Traveller Caravan Sites’, released by the CLG in
January 2006, replaced Circular 1/94 and suggested that the provision of authorised sites should be
encouraged so that the number of unauthorised sites would be reduced.
1.13 The Coalition Government announced that the previous Government’s guidance contained in Planning for
Gypsy and Traveller Caravan Sites (Circular 01/06) and Planning for Travelling Showpeople (Circular 04/07)
was to be repealed, along with the Regional Spatial Strategies (RSS) which were used to allocate pitch
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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
1.14 The document ‘Planning Policy for Traveller Sites’, which came into force in March 2012, sets out the
direction of Government policy. Among other objectives, the aims of the new policy in respect of Traveller
sites are (Planning Policy for Traveller Sites Pages 1-2):
» Local planning authorities should make their own assessment of need for the purposes of
planning.
» To ensure that local planning authorities, working collaboratively, develop fair and
effective strategies to meet need through the identification of land for sites.
» 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.
1.15 In practice, the document states that (Planning Policy for Traveller Sites Page 3):
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.
1.16 In producing their Local Plan local planning authorities should:
» Identify and annually update a supply of specific deliverable sites sufficient to provide five
years’ worth of sites against their locally set targets.
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» Identify a supply of specific, developable sites or broad locations for growth, for years 6-
10 and, where possible, for years 11-15.
» Consider production of joint development plans that set targets on a cross-authority
basis, to provide more flexibility in identifying sites, particularly if a local planning
authority has special or strict planning constraints across its area (local planning
authorities have a duty to cooperate on 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.
1.17 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.
1.18 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
1.19 In April 2012 the Government issued a further document relating to Gypsies and Travellers titled ‘Progress
report by the ministerial working group on tackling inequalities experienced by Gypsies and Travellers’ (CLG
April 2012).
1.20 The aforementioned report contains 28 commitments to help improve the circumstances and outcomes for
Gypsies and Travellers across a range of areas including:
» Identifying ways of raising educational aspirations and attainment of Gypsy, Roma and
Traveller children.
» Identifying ways to improve health outcomes for Gypsies and Travellers within the
proposed new structures of the NHS.
» Encouraging appropriate site provision; building on £60 million Traveller Pitch Funding
and New Homes Bonus incentives.
» Tackling hate crime against Gypsies and Travellers and improving their interaction with
the criminal justice system.
» 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.
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» Sharing good practice in engagement between Gypsies and Travellers and public service
providers.
Funding
1.21 The Coalition Government policies also involve financial incentives for new affordable pitch provision in the
form of the New Homes Bonus. All new pitches on Local Authority or Registered Provider-owned and
managed sites, Local Authorities 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.
1.22 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 £16.3 million 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.
1.23 The HCA has now confirmed allocations for all of its £60 million 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. The table below shows the allocation outside of
London.
Figure 1 HCA Grant Allocations for New Pitches (Source: HCA)
Local Authority Amount of money Number of new pitches
East and South East £6,218,381 91
Midlands £14,126,576 216
North East, Yorkshire and The Humber £15,328,694 375
North West £3,850,763 108
South and South West £16,713,954 309
Total £56,238,368 1,099
1.24 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.
Methodology
1.25 This section sets out the methodology we have followed to deliver the outputs for this study. Over the past
10 years ORS has developed a methodology which provides the required outputs from a Gypsy, Traveller
and Travelling Showpeople Accommodation Assessment and this has been updated in light of Planning
Policy for Traveller Sites.
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1.26 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
1.27 At the outset of the project ORS sought to understand the background to the Gypsy, Traveller and
Travelling Showpeople population in the study area. 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 provided by each Local Authority, information held on
unauthorised encampments in each area and also from those who have expressed an interest in public
pitches.
Stage 2: Household Survey
1.28 The research methodology for identifying the housing needs of Gypsies, Travellers and Travelling
Showpeople adopted in this report was largely based upon face-to-face interviews with Gypsies, Travellers
and Travelling Showpeople across Cheshire. ORS sought to undertake a census of Gypsy, Traveller and
Travelling Showpeople households in April to June 2013. Interviews were sought with every known Gypsy,
Traveller and Travelling Showpeople household present during this time period and 131 interviews were
achieved in total on Gypsy and Traveller sites, with a further three interviews in bricks and mortar and ten
interviews on Travelling Showperson yards. Though only one member of each household was interviewed,
the survey questions cover other members of the same household. We would note that a single Traveller
household may occupy several caravans.
Stage 3: Stakeholder Engagement
1.29 This study includes extensive stakeholder engagement with Council Officers and Elected Members from the
Local Authorities of Cheshire, neighbouring Local Authorities and other stakeholders. Cheshire has a Gypsy
and Traveller Strategic Partnership across the four Cheshire authorities which has been in existence since
2004, so the authorities have joint working relationships already. 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 Local Authorities, and any
issues regarding education, health and community cohesion.
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 from Gypsy, 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 and the net movement
of households from bricks and mortar, as well as those on the site preference lists for public sites. It then
adds in future arising 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
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and transit 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 2031.
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 Cheshire.
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2. Gypsy, Traveller and Travelling Showpeople Sites and Population Sites in Cheshire
2.1 A Strategic Housing Market Assessment (SHMA) focuses upon the number of dwellings required in an area,
and how many of these should each be provided by the public and private sector. The central aim of this
study was to follow a similar format for Gypsy, Traveller and Travelling Showpeople accommodation
requirements.
2.2 One of the main considerations of this study is the provision of pitches and sites 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
most common descriptions used are a plot for the space occupied by one household and a yard for a
collection of plots which are typically exclusively occupied by Travelling Showpeople. Throughout this study
the main focus is upon how many extra pitches for Gypsies and Travellers and plots for Travelling
Showpeople are required in Cheshire.
2.3 The public and private provision of mainstream housing is also largely mirrored when considering Gypsy
and Traveller accommodation. One common form of a Gypsy and Traveller site is the publicly-provided
residential site, which is provided by the Local Authority or by a Registered Provider (usually a Housing
Association). Pitches on public sites can be obtained through signing up to a site preference list, and the
costs of running the sites are met from the rent paid by the licensees (similar to social housing).
2.4 The alternative to public residential sites is private residential sites for Gypsies, Travellers and Travelling
Showpeople. These result from individuals or families buying areas of land and then obtaining planning
permission to live on them. Households can also rent pitches on existing private sites. Therefore, these two
forms of accommodation are the equivalent to private ownership and renting for those who live in bricks
and mortar housing.
2.5 The Gypsy, Traveller and Travelling Showpeople population also has other forms of sites due to its mobile
nature. Transit sites tend to contain many of the same facilities as a residential site, except that there is a
maximum period of residence which can vary from a few days or weeks to a period of months. The only
transit site in Cheshire is in Halton and it contains separate male, female and disabled shared bathrooms
and has a maximum stay of 13 weeks. An alternative to transit sites is an emergency stopping place. This
type of site also has restrictions on the length of time someone can stay on it, but has much more limited
facilities. Both of these two types of site are designed to accommodate, for a temporary period, Gypsies,
Travellers and Travelling Showpeople whilst they travel. A number of authorities also operate an accepted
encampments policy where short-term stopovers are tolerated without enforcement action.
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2.6 Further considerations for the Gypsy and Traveller population are unauthorised developments and
encampments. Unauthorised developments occur on land which is owned by the Gypsies and Travellers or
with the approval of the land owner, but for which they do not have planning permission to use for
residential purposes. Unauthorised encampments occur on land which is not owned by the Gypsies and
Travellers.
Caravan Count
2.7 A source of 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 merely a ‘snapshot in time’
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.
2.8 The charts below show the cumulative number of unauthorised and authorised caravans in each Local
Authority area at the time of the counts. Please note that the scale on each chart varies and that the charts
are to be read cumulatively to give the total caravan count. Some data for Warrington are based on
estimates because the count was not undertaken. They do not include any Showpeople caravans in the
area. These are counted separately each January. We would also note the figures are provided for
illustrative purposes to demonstrate the relative size of the populations and are not used in any modelling
of future pitch requirements.
Figure 2 Gypsy Caravan Count for Cheshire East: July 2008– January 2013 (Source: CLG Bi-annual Local Authority Caravan Count)
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Figure 3
Gypsy Caravan Count for Cheshire West and Chester: July 2008 – January 2013 (Source: CLG Bi-annual Local Authority Caravan
Count)
Figure 4 Gypsy Caravan Count for Halton: July 2008 – January 2013 (Source: CLG Bi-annual Local Authority Caravan Count)
Figure 5 Gypsy Caravan Count for Warrington: July 2008 – January 2013 (Source: CLG Bi-annual Local Authority Caravan Count)
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50
Jul-08 Jul-09 Jul-10 Jul-11 Jul-12
Nu
mb
er o
f C
arav
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Unauthorised Authorised
Opinion Research Services Cheshire Gypsy, Traveller and Travelling Showpeople Accommodation Assessment March 2014
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3. Gypsy and Traveller Population
Survey of the Gypsy and Traveller Population
3.1 One of the major components of this assessment is a detailed survey of the Gypsy and Traveller population
within the Cheshire authorities. This aims to identify current households with housing needs and to assess
likely future household formation from within existing households, to help judge the need for future site
provision. As noted in the introduction, “Gypsy and Traveller” refers to:
Persons of nomadic habit of life, whatever their race or origin, including such persons who on
grounds only of their own or their family’s or dependants’ educational or health needs or old age
have ceased to travel temporarily or permanently, but excluding members of an organised group of
Travelling Showpeople or circus people travelling together as such (Planning Policy for Traveller
Sites, CLG, March 2012).
3.2 Interviews were attempted with every Gypsy and Traveller household in the area who were present during
April to June 2013. Therefore, the base date for the findings of this study is April 2013. Throughout the
survey period, interviewers from ORS worked from 9am to 7pm each day and made repeated visits to each
household until a successful interview was concluded. In total, interviews were achieved on-site with 131
households.
3.3 Throughout this study the person responding to the survey will be referred to as the respondent, and in
questions which refer to all people in the household, they will be referred to as household members.
Throughout the remainder of this report the majority of numbers which appear on the charts represent the
percentage of respondents who appear in that category. The purpose of showing percentages is to allow
the results of the survey to be extrapolated to the whole Gypsy and Traveller population of Cheshire. In a
few cases, it is more appropriate to use the actual number of respondents, and these cases are clearly
identified. In all charts, those respondents who answered ‘don’t know’ or did not answer the question, are
omitted unless otherwise stated.
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Length of Residence
3.4 Though more than half (53%) of those
interviewed had lived on their current site
for 5 years or more, a significant minority
(30%) had been residing at their current
site for less than 1 year. The vast majority
(88.5%) described their current site as their
permanent base, with only 15 respondents
(11.5%) saying otherwise. Of these, only
two respondents had permanent bases
elsewhere (both outside of the study area).
The remaining 13 had no permanent base,
and while in many cases this appeared to
be due to choice, six respondents stated
they were on site because they had
nowhere else to go.
Connections with the Area
3.5 Respondents noted a variety of different connections to their local areas (see Figure 7), with the main
links identified being that their family (57.3%) or friends (47.3%) were from the area, or that they had
lived in the area for a long time (49.6%). The survey did not seek to identity what the population
considered to be a long time.
Figure 7 Nature of Local Connections in Cheshire, by all Respondents (Source: Survey of Gypsy and Traveller Population On-site 2013)
3.1%
12.2%
14.5%
14.5%
16.0%
19.8%
29.8%
47.3%
49.6%
57.3%
0% 10% 20% 30% 40% 50% 60% 70%
Own land in this area
Grew up in the area
Have a tradition of travelling to/through this area
Family members receive care/support from Council/other local services
Children go to school here
Always lived in this area
Family members work here
Friends are from this area
Lived here a long time
Family are from this area
Figure 6 Length of Time Respondents Have Lived on Their Current Site, by all Respondents (Source: Survey of Gypsy and Traveller Population On-site 2013)
Less than a week
2%
1 week but less than 1
month 8%
1 month but less than 6
months 11%
6 months but less than 1
year 9%
1 year but less than 3
years 11%
3 years but less than 5
years 6%
5 years or more 53%
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Figure 8 Ethnic Group by all Respondents (Source: Survey of Gypsy and Traveller Population On-site 2013)
Romany Gypsy 45.4%
Irish Traveller
15.4%
Scottish Gypsy or Traveller
0.8%
New Traveller
0.8%
English Traveller
36.2%
Welsh Gypsy 0.8% Other
0.8%
Ethnic Background
3.6 Amongst those surveyed, the largest ethnic group
was Romany Gypsies, with 45.4% identified
themselves as such. A further 36.2% identified
themselves as English Travellers, which is frequently
used as an alternative to Romany Gypsy, and 15.4%
as Irish Travellers.
Age and Household Profile
3.7 The households showed a mixed range of ages across their members, very much in line with the results
of similar studies carried out by ORS elsewhere. Nearly 42% of household members were aged 16 or
under, with nearly a quarter being of school age (i.e. between 5 and 16 years old). 9.6% of household
members were aged 60 or more. However, it is typical for Gypsy and Traveller studies to record
relatively few males aged 18-60 years, many of who travel on an almost permanent basis. This is the
case in Cheshire and in practice, the share of children in the total population is almost certainly lower,
so less than 40% of the population will be children.
Figure 9 Age of Household Members, by all Household Members (Source: Survey of Gypsy and Traveller Population On-site 2013)
0-4 years 17.0%
5-11 years 13.9%
12-16 years 10.6%
17-24 years 11.3%
25-39 years 19.2%
40-59 years 18.5%
60 years and over 9.6%
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3.8 Only three respondents reported more than one household on their pitch. Of these, two respondents
reported they were sharing their pitch with one other household, while one respondent reported they
were sharing with two other households. 124 respondents (95%) reported just one household residing
at their pitch.
Employment
3.9 Respondents were asked to give the employment status of all members of their household aged 16 or
over. Of those household members who had their employment status recorded, the largest group
(37.8%) were looking after their home and/or family. 28.3% were in some form of employment (though
only 15.2% working in a permanent job), while 7.8% were registered unemployed and 15.7% retired.
3.10 Amongst those working, a wide variety of jobs were reported, with the most common being
gardening/landscaping/tree surgery (27 respondents) and building work (eight respondents).
Health Problems
3.11 Over a third (34.4%) of respondents interviewed reported that their household contained at least one
member with a long-term health problem. Of these, nearly three quarters (73.3%) said that their
current pitch was able to meet the needs of those with long-term health problems. However, 26.7% (12
respondents) said that their existing pitch was not meeting the needs of those with health issues.
Figure 10 Employment Status of Household Members, by All Household Members Aged Over 16 Years (Source: Survey of Gypsy and Traveller Population On-site 2013)
Working in a permanent job
15.2%
Undertaking casual/temporary work
12.2%
Undertaking seasonal work 0.9%
Registered unemployed 7.8% Retired
15.7%
Long-term sick/disabled 4.8%
Looking after home/family
37.8%
Full-time carer 0.9%
Student/full-time education
4.3%
Other 0.4%
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4. Existing Sites Type of Site
4.1 86% of interviews were carried out on authorised
sites, with 62% on private sites, 20% on Council
sites and 4% on transit sites. Only 12% of
interviews were carried out on unauthorised sites.
4.2 All respondents were asked if they required any
additional caravans at their current pitch. Only
4.6% (six respondents) indicated that they would
like additional residential caravans within their
existing household. Most of these respondents
stating that the additional caravans were for the
use of older children.
4.3 When asked how many additional caravans were
required, two respondents said they needed just
one additional caravan, one respondent needed
two caravans, another respondent said they
needed four caravans and two respondents said
they needed five or more. However, only two of
the six respondents felt that there was space for
additional caravans on their current pitch.
4.4 The phrasing of this question focused on a need rather than a demand for more caravans. Respondents
were asked, irrespective of who was purchasing the caravans, whether they needed more caravans for
household members. Therefore, this question simply reflected a perceived need for more caravans, rather
than an ability to afford (demand for) more caravans.
4.5 Only one respondent said that a member of their household would like to leave to live elsewhere in the
next two years, while four households on the transit site in Halton wished to move on to a permanent
pitch.
Figure 11 Type of Pitch, by all Respondents (Source: Survey of Gypsy and Traveller Population On-site 2013)
Owner-occupied
pitch 22%
Privately- rented pitch
40%
Authorised public site (Council)
20%
Unauthor-ised
develop-ment
9%
Unauthor-ised
encamp-ment
3%
Transit site 4%
Other type of site
2%
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Figure 12 Time Spent Travelling in a Caravan or Trailer Away From Your Permanent Base in the Last 12 Months, by Respondents Who Took at Least One Trip in the Last 12 Months (Source: Survey of Gypsy and Traveller Population On-site 2013)
Less than 1 month 53.3%
1 month but less than 3
months 21.7%
3 months but less than 6
months 3.3%
6 months but less than 12 months 10.0%
Travelled all year round
11.7%
Views of Sites
4.6 All respondents were asked if their current site was meeting their need in terms of accommodation quality,
space, site facilities, location and management. Only 14.5% (19 respondents) felt that their site was not
meeting their needs.
4.7 The most common reasons given by respondents for their site not meeting their needs were: a lack of
facilities (11 respondents), a lack of play areas for children and being too far from services (both five
respondents). Other reasons included not enough space for visiting caravans (two respondents) and a lack
of safety on site (two respondents).
4.8 When asked what facilities they felt were needed at their sites, eight respondents felt that their sites
needed permanent toilet facilities, and four felt their sites needed amenity blocks for washing and cooking
or improvements to existing blocks. Interestingly, one respondent on the Runcorn transit site in Halton
wanted additional education support.
4.9 15 of the 19 respondents whose current site/pitch was not meeting their needs felt that their needs could
be met at their existing pitch. Many of these households were either on the transit site in Halton or an
unauthorised site in Ellesmere Port, so there is little indication of problems on permanent sites. However,
four respondents wanted to move to another site.
Propensity to Travel
4.10 52.7% of those surveyed (69 respondents)
reported that they had not travelled at all
during the last 12 months, and of those who
had travelled, more than half (53.3%) had
travelled less than a month. Only 11.7% of
those who had travelled in the last 12 months
had travelled all year round (see Figure 12).
4.11 Of those who had travelled in the past, but not
in the last 12 months, 75.8% (25 respondents)
reported that the change in their travelling
habits was due to a desire for a more settled
lifestyle, 39.4% (13 respondents) reported that
they had stopped travelling so their children
could receive education and 33.3% (11
respondents) said it was due to the ill health of
family members. Other reasons given for not
travelling were increasing difficulties with camping at the roadside (30.3%, 10 respondents) and the old age
of some family members (18.2%, six respondents).
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Figure 13 Reasons for Not Travelling in the Last 12 Months (Source: Survey of Gypsy and Traveller Population On-site 2013)
4.12 Amongst those respondents who had travelled, the main reasons given for travelling were: for a holiday
(55.8%), for fairs (51.2%) and for family reasons (20.9%). (See Figure 14 below).
Figure 14 Reasons for Travelling (Source: Survey of Gypsy and Traveller Population On-site 2013)
18.2%
30.3%
33.3%
39.4%
75.8%
0% 10% 20% 30% 40% 50% 60% 70% 80%
Due to old age of some family members
No longer easy to camp on the side of the road when travelling
Due to ill-health of some family members
So children can receive education
Want a more settled lifestyle
4.7%
4.7%
9.3%
20.9%
51.2%
55.8%
0% 10% 20% 30% 40% 50% 60%
Church Missions
Have nowhere else to go
For work
Family reasons
Fairs
For a holiday
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Bricks and Mortar
4.13 Only 5.3% (seven respondents) reported that they had previously lived in bricks and mortar
accommodation (i.e. a house, bungalow or flat). Of these, more than half (four respondents) had lived in
such accommodation 10 years ago or longer.
4.14 Amongst the reasons given for leaving bricks and mortar accommodation were: marriage, being
uncomfortable in bricks and mortar housing, and moving away from parents.
Moving to a New Permanent Base
4.15 5.3% (seven respondents) indicated that they would want or need to move to a new permanent base,
either now or in the next 15 years. Three of these respondents indicated that their main reason for wanting
a new permanent base was to live a more settled lifestyle.
4.16 These respondents were asked to state where they would like to establish a new permanent base.
Respondents were given the opportunity to pick as many areas as they liked, and many chose more than
one area. Only one respondent expressed an interest in moving outside of the study are (i.e. Wrexham).
Otherwise, the areas that respondents were interested in living in were as follows: five respondents wished
to live in Runcorn and three in Widnes; Warrington North and Ellesmere Port both had two respondents;
while one respondent wished to live in Warrington South.
4.17 All but one of the above respondents stated that that their main reason for moving to the specified
location(s) was to be near family and/or friends (though one of these respondents also stated that they
were already registered with schools and a GP in the area). The remaining respondent wanted to move in
order to be able to take advantage of “better facilities”.
4.18 When asked what criteria they felt was important in determining the location(s) of new sites, two
respondents specifically identified proximity to facilities (such as GPs and shops), while one respondent felt
that any new sites should be located away from undesirable locations, such as Council waste facilities.
Additional responses referred to a desire to be away from other populations (one respondent), and another
respondent stated that they did not mind where sites are “as long as it is permanent”.
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5. Travelling Showpeople Introduction
5.1 This section focuses on the needs and aspirations of Showpeople in Cheshire. As noted in the introduction,
Travelling Showpeople are not a recognised ethnic group under the Equalities Act 2010, but within Planning
Policy for Traveller Sites 2012 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 dependant’s more localised pattern of trading, educational or health needs or old age have
ceased to travel temporarily or permanently, but excludes Gypsies and Travellers as defined
above (Planning Policy for Traveller Sites, CLG, March 2012).
Travelling Showpeople Households in Cheshire
5.2 The population of Travelling Showpeople is typically smaller than that of Gypsies and Travellers and
planning records also tend to be more disparate. Working with the respective authorities in Cheshire, with
input from the Travelling Showpeople themselves, ORS was able to identify that there are the following
number of Showpeople yards in the study area with their number of plots:
» Cheshire East – two yards
» Cheshire West and Chester – one yard
» Halton – no yards
» Warrington – one yard with permanent permission and one unauthorised yard.
5.3 Therefore in total the study area contains five Travelling Showpeople yards.
5.4 During the course of the household survey with Gypsies and Travellers interviews were attempted with all
Showpeople households in the area. Contact was made with the residents of all known Travelling
Showperson sites.
5.5 In total, 10 interviews were carried out with Travelling Showpeople. Given the limited number of full
interviews undertaken with Travelling Showpeople and also the less structured information gained from
site visits, we have chosen not to provide detailed statistics on the population. However, we would note
that all respondents apart from one were satisfied with their current sites and did not wish to move. The
only respondent reporting any issues felt that access to the site was difficult and that they wished to move
to a larger yard. This respondent was a resident on an unauthorised yard and so would have appeared as a
need in calculations even if they did not want to move.
5.6 However, ORS would note that a number of other Travelling Showpeople, who currently do not live in
Cheshire, have expressed interested in living in Cheshire and these are documented in the next section.
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6. Stakeholder Consultation Introduction
6.1 In order to provide thoughtful consideration of the issues by a wide range of stakeholders involved with
Gypsies and Travellers, ORS conducted 59 semi-structured interviews between May and July 2013.
6.2 A list of stakeholders was compiled by the lead authorities at the outset of the project. ORS reviewed this
list for consistency with other studies to ensure it was comprehensive and fair. Each stakeholder received
an email outlining the aims and objectives of the project and the interview timetable, which was followed
up with a telephone call to arrange a suitable time to undertake the interview. The interviews were
conducted via telephone and typically lasted between 30 and 90 minutes.
6.3 Stakeholders included Council Officers, Council Partners (Health, Education and Police) and Elected
Members representing the following areas:
» Cheshire East Council (11 Council Officers, 2 Elected Members)
» Cheshire West and Chester Council (13 Council Officers, 1 Elected Member, 1 Registered
Provider)
» Halton Borough Council (5 Council Officers, 0 Elected Members)
» Warrington Borough Council (6 Council Officers, 1 Elected Member, 1 Council Partner).
6.4 Wider stakeholders were also interviewed and included Cheshire Gypsy and Travellers Voice and
Homespace; Irish Community Care Merseyside; a property developer; and a planning agent. ORS also
invited the Gypsy Council to contribute to the study. Unfortunately, the Gypsy Council declined to take part
in a telephone interview.
6.5 In order to ascertain the views of Travelling Showpeople, ORS promoted and facilitated a forum in
Knutsford on 3 May 20131. ORS advertised the Forum in the World Fair publication and invited Travelling
Showpeople in the North West to come and talk about their accommodation needs. The Forum was well
attended with around 30-40 Travelling Showpeople contributing to the discussion. ORS also met with the
North West representative of the Showmen’s Guild of Great Britain, interviewed five Travelling Showmen
and received a further 10 questionnaires from Travelling Showpeople, all 15 currently live outside of the
Cheshire area.
1 A representative of the North West section of the Showmen’s Guild advised ORS on the appropriateness of the date
and venue which was chosen because of the Bank Holiday fair in Knutsford. The advert also gave Travelling Showpeople who could not attend the forum, the opportunity to contact ORS via email or telephone.
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6.6 As stated in the Planning Policy for Traveller Sites, Local Authorities have a Duty to Cooperate (S.110
Localism Act 2011) on strategic planning issues that cross administrative boundaries. In order to explore
cross-boundary issues, officers from the following six neighbouring Local Authorities took part in the study:
» Flintshire County Council
» Liverpool City Council
» Sefton Metropolitan Borough Council
» St Helens Metropolitan Borough Council
» Wirral Borough Council
» Wrexham County Borough Council.
6.7 Themes covered in the interviews included: the need for additional accommodation provision and facilities;
travelling patterns; the availability of land; accessing services; and work being done to meet the needs of
Gypsies, Travellers and Travelling Showpeople.
6.8 Interviews allowed interested parties to reflect and feedback on the general situation, as well as how
matters relating to Gypsies, Travellers and Travelling Showpeople are currently handled and perceived
within the study and surrounding areas. Qualitative research of this type attempts to gain a deeper
understanding of the issues and is used to supplement the statistical information gathered through
quantitative surveys of the Gypsy, Traveller and Travelling Showpeople communities.
6.9 Importantly, the stakeholder consultation provides an opportunity for the Research Team to speak to
stakeholders who are likely to be in contact with housed Gypsy, Travellers and Travelling Showpeople, with
the aim of including those in the study and identifying accommodation needs resulting from this group.
Stakeholders likely to have these contacts are: representative and community groups, Elected Members
and housing providers.
6.10 At the time of interview all stakeholders were asked if they would be happy to get in touch with this group
on ORS’ behalf. For those who agreed to do this they were provided with an information sheet which
explained the objectives of the study; the importance of their contribution to the study; confidentiality; and
a free phone number they could use to get in touch with the ORS team. Of the 59 interviewed, four
stakeholders (which included a community group) agreed to distribute the information sheet on ORS’
behalf. ORS also attempted to make contact with housed Travellers via an advert on the Facebook page of
Friends, Families and Travellers and in the Travellers Times publication. Unfortunately, no bricks and mortar
contacts were obtained as a result of both efforts.
6.11 The following section is broken down by area and summarises the overall findings from the interviews with
stakeholders. Stakeholders had a lot of common ground but also diverged in considering a wide range of
issues that are reported fully below.
6.12 Due to issues surrounding data protection, and in order to protect the anonymity of those who took part,
this section is a summary of the views expressed by interviewees and few verbatim comments have been
used.
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Cheshire East Council
6.13 The findings from this study will form part of the evidence base used to develop the forthcoming Local Plan,
which is required to include an updated need target. The new Plan will also look to review the current
criteria-based policies, which are based on strategies used prior to Local Government reorganisation in
2009 in the previous districts of Congleton Borough, Crewe and Nantwich Borough and Macclesfield
Borough Councils, to make them more effective in delivering suitable sites.
6.14 Cheshire East has provided eight of the 37-54 additional pitches required by 2016 identified in the 2007
GTAA. Therefore, most stakeholders assumed there to be an undersupply of pitch provision.
6.15 The Council’s approach to past planning applications is viewed to be fair insofar as there is reportedly a
split between those granted permission on the basis of their merits and those that went through an appeals
process.
Accommodation
6.16 Despite not meeting the targets set out in the 2007 GTAA, Council Officers and Elected Members felt that
the current provision of sites in the district is largely sufficient and were of the view that some sites were
under-occupied. However, one officer made the case that despite having a sufficient amount of
accommodation, unsuitable sites were still being granted permission on the basis of the 2007 figures. They
referred to the example of two sites, which were deemed not to be suitable under planning guidance, but
have been granted temporary permission on the grounds that the previous GTAA requirement has not
been met.
6.17 The majority of officers believed that calculating need has become confused due to the following factors:
» A number of Traveller sites are now chalet-type mobile home parks. At one site this
change of use has been undertaken regardless of Council advice to wait until the needs
assessment has been completed. However, it was reported that the site changed
occupancy because there was a lack of demand from the Traveller community.
» In order to gain park home permission, some Gypsy and Travellers are claiming they are
not from the community.
» Others who are clearly not Travellers are claiming they are.
6.18 Officers were aware of drainage issues on one private site.
6.19 There is said to be a large number of housed Travellers in the Middlewich area who have made the decision
to buy a bricks and mortar property but still own a caravan, which they park outside of the house. This
practice is said to be widespread and resulted in the formation of an internet pressure group of non-
Travellers that opposed this practice. Reacting to community tensions, the Council obtained a legal ruling
which found that no planning permission was required to keep a caravan within the boundary of a house,
when the caravan was ancillary to the use of the dwelling.
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6.20 Unauthorised encampments are an issue during July, August and September and regularly occur in the
Middlewich, Sandbach and, more recently, Macclesfield area and specifically occur in the following
locations:
» Alderly Edge by-pass
» Barn Road, Congleton (public highway)
» Congleton Road (playing fields)
» Poaching Way, Middlewich
» Earl Road, Stanley Green, Handforth (old aeroplane storage plane depot with hard-
standing).
6.21 At the time of interview, a Council Partner revealed that they had dealt with 13 encampments ranging from
one to sixteen days and from one to fifteen vehicles. Council Officers referred to around 30 encampments
per annum.
6.22 Cheshire East is seen as a popular stopping place due to the following factors:
» En route to Appleby
» Financial opportunities in the area (building work and drive ways)
» Access to the M6 (access to Yorkshire and Cumbria)
» The A556 to Manchester
» Proximity to Wales.
6.23 In addition, because of the connectedness with local Travellers, Council Officers referred to movement
between Winsford, Ellesmere Port, Middlewich and Congleton. One officer was of the view that those who
have used transit provision in the neighbouring areas will travel through the Cheshire East area.
6.24 Interviewees described the levels of encampments as costly, time-consuming and disruptive for local
businesses and the settled communities. Without a transit site, the Council currently uses possession
proceedings in respect of unauthorised encampments on highways and Council-owned land. Travellers will
then be presented with a notice to quit and given 24-48 hours to vacate the land. Some are said to stay
around five days.
6.25 Council Officers and Elected Members strongly supported the provision of a transit site that is separate
from residential facilities and is Council-run and owned where Travellers could rent a pitch. One officer was
of the opinion that although some transit provision could be provided on some of the larger sites (as they
do in some cases), this could be problematic insofar as some may not want to go onto a site owned by
another Traveller community. Stakeholders believed that a transit site could allow for better management
of unauthorised encampments by the Council and Police, and would help settle community tensions that
arise when unauthorised encampments occur. One officer stressed that even if it is rarely used, it would
still act as a deterrent and reduce the number of encampments.
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Community, Health and Education Issues
Community Cohesion
6.26 Community cohesion issues were reported by some Council Officers who felt that perceptions held by the
settled community were negative and adversely affecting the relationship with the Travelling community.
Perceptions are based on two main assumptions:
» Travellers can get planning permission in the Green Belt
» Travellers do not follow the rule of law (e.g. Car Tax).
6.27 Community development work to challenge these assumptions has been undertaken by the Council and
Police, and stakeholders feel their efforts have decreased tensions somewhat. An officer explained that
future community tensions could be reduced by developing properly managed sites on the periphery of the
settled community rather than in remote areas.
6.28 A small number of stakeholders mentioned cohesion issues which occur within the Traveller community
and referred to violent incidents which erupt as a result of family feuds.
Health
6.29 Stakeholders regarded Travellers’ health needs as a pressing issue and explained that many will have health
conditions that require regular hospital/GP appointments. However, as is the case around the UK,
Travellers will tend to opt for Accident and Emergency as opposed to GP services. This means they fail to
access important vaccinations and preventative medicine.
6.30 Officers stressed that sites should be in close proximity to health facilities and should make use of health
visitors.
Education
6.31 Few stakeholders mentioned specific issues relating to education but some felt that attendance continues
to be an issue and many Travellers are still dropping out of education beyond primary school. Outreach
work is thought to be required and officers referred positively to the use of a camper van which was used
to promote registering for pre-school. This was thought to be an effective engagement tool. Unfortunately,
and similar to the situation elsewhere in the UK, Cheshire East has disbanded the Traveller Education Role.
Cross Boundary Issues
6.32 Transit provision is viewed as a key cross boundary issue and the majority of stakeholders felt that Cheshire
East needs to develop an approach to transit which is in line with neighbouring authorities.
6.33 Officers revealed a different opinion on the extent of cross boundary working, with some feeling that
reasonable attempts have been made to work with their neighbours and referred to the Corporate Working
Group in Cheshire East, and links with the Gypsy and Traveller Liaison officer in Cheshire West. Others were
less positive and felt more should be done including expanding the role of the Traveller Liaison Officer to
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cover the study area. Although one pointed out that the Liaison Officer is already overstretched considering
the geographical extent of their workload.
6.34 One Council Officer suggested that an encampment team should be put in place to deal with encampments
across the wider area, which would ensure a consistent approach.
Consultation Activities
6.35 The majority of stakeholders stressed the importance of community engagement in preventing the ‘us and
them’ scenario which is said to exist between the Traveller and settled communities. It is argued that more
needs to be done to create a better understanding of Traveller communities and also how sites can be
integrated with the settled community.
6.36 Consultation with the Travelling community on future site provision was considered a priority.
Future Site Provision: Criteria, Management and Geographical Location
6.37 In terms of transit site provision, a number of stakeholders referred positively to the site at the Runcorn
transit site in Halton and supported replicating the model.
6.38 In terms of the future provision of a permanent site, those interviewed suggested respecting the following
factors:
» The site should be located in a central location with access to major transport links but
not too close to motorway junctions.
» A distance away from residential properties (to avoid community tensions).
» Running water, toilet facilities and waste disposal should be provided on the site.
» 15-20 pitches (however, best practice guidance suggests a lower figure of 10-15 pitches).
6.39 In terms of the future provision of permanent sites, those interviewed suggested they should be:
» Similar to mobile home sites and should be available to all communities (more acceptable
to the settled community as they are less likely to perceive the Travelling community to
be receiving special treatment).
» Managed by a registered/specialist provider.
» Small and distributed around the area (easier to manage and integrate with the settled
community).
Conclusions and Recommendations
6.40 From the interviews, a number of conclusions and recommendations are presented below:
» There appears to have been a drop in the demand and supply of sites since the previous
GTAA and current provision is perceived to be largely sufficient.
» There has been a surge in park homes developments.
» There is support for a transit site which replicates the model in Halton.
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» A progressive positive campaign promoting the lifestyle and culture of Gypsies and
Travellers may help tackle the negative stereotypes held by the settled community.
» Education around the benefits of accessing preventative medical care (GPs) could help
towards reducing the reliance on Accident and Emergencies and improve uptake of
vaccinations.
Cheshire West and Chester Council
6.41 Similarly to Cheshire East, this work will form the basis of a cohesive Local Plan which will include an
updated need figure.
6.42 The Council has spent the past three years trying to bring forward Council-owned sites to meet the
accommodation need identified in the previous GTAA. The result has been achieving permission for two
sites: one in Winsford (18 pitches) and the other in Ellesmere Port (12 pitches), 30 pitches in total.
6.43 The Council currently does not have an official waiting list. However, an allocations policy is currently in
development and the intention is to give priority to:
» Those who will be displaced when their temporary permission runs out.
» Current residents at the ‘accepted encampment’ at Ellesmere Port.
Accommodation
6.44 Based on the following, it was generally agreed that there is a shortage of suitable accommodation:
» The need identified in the previous GTAA has not been met.
» There are a number of inappropriate sites on the green belt with temporary permission.
» The existence of an ‘accepted encampment’ at Ellesmere Port.
6.45 The ‘accepted encampment’ was put in place to accommodate a number of families who had moved
around Ellesmere Port for a number of years. In 2008 the Council opened up a disused lorry park with
enough space for six single pitches and one double pitch and the amount of unauthorised encampments
reduced. Currently, the residents sign up to a ‘good neighbour code’ which outlines the rules of the
encampment and Travellers responsibilities.
6.46 In managing the site, the Liaison Team:
» Visit the site 2-3 times per day
» Speak with families to check changes in vehicles (if anyone has moved on/off)
» Sign them up with GPs, dentists and schools.
6.47 Officers felt the ‘accepted encampment’ is an example of the Council’s positive approach to meeting
Traveller needs in the short-term but supported the removal of the ‘accepted encampment’ as they did not
regard it as permanent accommodation.
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6.48 Positively, Council Officers and Elected Members felt that authorised sites in the Borough are meeting the
needs of the residents and did not refer to any issues such as overcrowding. One officer did report that
although they were not overcrowded, some sites fail to comply with the six metre fire safety rule.
6.49 The majority of stakeholders strongly support the provision of the two public sites and referred to the
evidence collated in the previous GTAA which, through consultation with the Travelling community,
concluded that the community required and desired affordable public provision.
6.50 However, interviewees expressed their concern and frustration that Travellers have since said they want
private not public sites. Yet the number of sites currently within the Green Belt suggests that they cannot
afford to buy land that would give them legitimate and permanent provision. Therefore, affordable public
provision continues to be the best fit option.
6.51 The existence of a large number of private sites was a concern to a number of officers who reported that
they have been refused access to some of those sites by the owners, and felt that children on these sites
could be missing out on valuable support services including education. For this reason, stakeholders
involved in delivering educational outcomes supported accommodation which is publically-owned.
6.52 Although Cheshire West and Chester no longer manages housing stock, the Gypsy and Traveller Team
keeps in touch with housed Travellers through Registered Providers and housing support bodies.
Communication is considered vital in providing support to Travellers who are not on sites and is also crucial
in preventing issues including:
» Dual Tenancies – when Travellers live in a house or caravan and sub-let the
accommodation they are registered to other Travellers.
» Abandonment of private rented properties – Travellers have been known to abandon
properties and leave signals (windows open) for other Travellers who will then occupy the
properties.
6.53 Despite the presence of the ‘accepted encampment’ the numbers of unauthorised encampments are said
to be increasing and regularly occur in the Chester, Ellesmere Port and Winsford areas and specifically in
the following locations:
» Bumpers Lane (near Chester football stadium)
» Supermarket and business car parks
» Sealand Road Estate
» Blue Planet Aquarium (Ellesmere Port).
6.54 Cheshire West and Chester is seen as an historic, well-travelled area and remains a popular stopping place
due to the following factors:
» En route to Appleby and Ireland to the North West.
» Links to the large number of housed Travellers in Ellesmere Port who have links with
Liverpool, Preston and Manchester.
» Proximity to: A55; M6 (up to Yorkshire and Cumbria); A56 (from Chester down to
Middlewich and Winsford); M56 (Warrington and Manchester).
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» Proximity to North Wales, specifically the Queensferry site in Flintshire, the Ruthin Road
site in Wrexham and sites in Oswestry.
6.55 Similar to the position in Cheshire East, due to the connectedness with local Travellers, officers referred to
movement between Winsford, Ellesmere Port, Middlewich and Congleton. One officer was of the view that
because neighbouring areas have transit provision, once they are moved off the sites they will travel
through the Cheshire West and Chester area. For instance, some Travellers are said to yo-yo between the
‘accepted encampment’ and the Halton site. The size of the encampments varies between 8 and 12
vehicles.
6.56 On the basis of the regular occurrence of encampments, the majority of Council Officers and Elected
Members were of the opinion that the area would benefit from transit facilities that were separate from
residential facilities. Stakeholders argued that a transit site would allow for better management of
unauthorised encampments by the Council and Police, and would help settle community tensions that arise
when unauthorised encampments occur.
Community, Health and Education Issues
Community Cohesion
6.57 Stakeholders were aware of the following community cohesion issues:
» Tension stemming from areas where there are a number of private sites within the Green
Belt that do not have planning permission and sites which have temporary permission or
are unauthorised. This is particularly the case in Elton.
» In Ellesmere Port, where the ‘accepted encampment’ is located, the community tension is
considered to be particularly deep-rooted and stakeholders referred to the case of the
death of a fifteen year old Irish Traveller in 2003.
» Existing community tensions have been exploited by two local newspapers whose
coverage of issues relating to Travellers is perceived to be consistently negative.
6.58 Most stakeholders believed that cohesion improves once a site has settled in. Stakeholders highlighted a
number of initiatives which have improved cohesion:
» Awareness raising and training sessions with Elected Members
» Work on hate crime
» Commission for Racial Equality educational project
» Various projects within schools.
6.59 Stakeholders supported the role of the Gypsy and Traveller Team and felt they have played an important
role in addressing some of the tensions that existed within the area.
Health
6.60 Stakeholders regarded Travellers’ health needs as a pressing issue and explained that many will have health
conditions that require regular hospital/GP appointments, yet they will opt for using the Accident and
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Emergency service as opposed to the GP. This means the immunisation rates continue to be lower than the
average population figure and they do not access preventative medicine. Many Travellers are also
registered with GPs that are based in Wrexham. The Gypsy and Traveller Team has been able to address
this issue through helping Travellers fill out the GP registration forms.
6.61 The Gypsy and Traveller Team has also set up women’s health groups and has facilitated a number of
health awareness sessions, which have been presented by health professionals from maternity, cancer,
smoking, diet and sexual health. The Team is working towards establishing an adult reading and writing
course and using a health van to target those not accessing services, with the aim of increasing
immunisation.
6.62 Mental health is viewed as a particular issue, along with lifestyle choices including diet, drinking, smoking
and the health risks associated with living at the side of the road.
6.63 Nine women from the community attended a health day for women which was recently organised by the
Gypsy and Traveller Team.
Education
6.64 The Gypsy and Traveller community is recognised as a vulnerable group within the wellbeing section of the
Children and Young People Service. Overall, it is recognised that their attainment remains poor nationally
and within the Authority. To address this recognised under achievement, the Authority employs a Gypsy
Roma Traveller Education Advisor whose role includes:
» Working with schools to raise awareness of Traveller culture and lifestyle. In conjunction
with Chester University, the Team has developed a play which is delivered to schools
(upper primary school aged children) in the area. ‘Michael’s Story’ deals with negative
Traveller stereotypes. From the feedback received, children are learning about the
Traveller culture and are finding it interesting. It has also given Travellers the opportunity
to join in, talk about and feel proud of their culture. The play has since been developed to
suit an adult audience and was presented to Council Members and Local Authority staff in
the summer of 2013.
» Working with Traveller families within (and moving to) the area who need help with:
obtaining school places, appealing for transport and filling in forms for a school place (pre-
school, primary or secondary).
» Tracking and monitoring the progress of children in primary school (not secondary school
due to small amount of pupils).
» Facilitating a Traveller School Forum which meets at half-term.
6.65 A particular issue the Team has recently started to focus on is the progress of sixty home-schooled children.
The Team is trying to find out what, if any, educational activities have taken place and importantly are
trying to encourage parents to consider secondary education. On some occasions, this is said to have been
met with resistance as some parents can become aggressive and agitated when discussing school places.
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Cross Boundary Issues
6.66 An officer referred to the Cheshire Gypsy and Traveller Partnership, which aids cross boundary working and
ensures there is consistency across the area. It was argued, however, that this Partnership could be
developed further if each Local Authority put in the same resource, as currently they do not.
6.67 Stakeholders praised the efforts of the Gypsy and Traveller Team in communicating with neighbouring
areas, including Wrexham and Flintshire. Positively, the Team set up and manage the Gypsy and Traveller
Liaison Officer Group, which covers all of Cheshire, Merseyside and North Wales. It is also a member of the
Merseyside Forum. This is an opportunity to discuss travelling patterns and identify particular families who
are travelling back and forth between areas. This wider strategic approach was considered critical and
enables greater planning based upon knowledge on wider Traveller movements. For instance, a popular
Traveller route is said to exist between Cheshire West and Wrexham. The Team will also contact
neighbouring authorities as and when encampments arise to find out about the families and any needs
they need to be aware of.
6.68 Overall, stakeholders felt it common sense to work with neighbouring areas and recommended that the
results of this GTAA are shared with neighbouring areas to demonstrate they are working together.
6.69 Considering the aforementioned cross boundary movements, some stakeholders supported the provision
of a transit site which serves the Cheshire West, Cheshire East and Warrington areas and others supported
joint transit provision with Flintshire. However, stakeholders expressed frustration that this is unworkable
because Police powers under the Criminal Justice Act state that provision for transit has to be made within
administrative boundaries. Therefore, if the site was located in Cheshire West and Travellers were in
Warrington, the Police would not be able to use their powers to move them to the transit site.
Consultation Activities
6.70 Consultation activities are mostly undertaken by the Gypsy and Traveller Team which works closely with
Travellers in the area and visits the site at Ellesmere Port on a regular basis. The community engagement
work undertaken by the Gypsy and Traveller Team was viewed as exceptional. The Gypsy and Traveller
Team has consulted Travellers on what they would like to see on the site, how many pitches and how they
would like to be managed.
6.71 The Team also has regular contact with representative community groups, including Cheshire Gypsy and
Travellers Voice and Irish Community Care Merseyside which, until recently, facilitated a weekly drop-in
session for Gypsies and Travellers. It was with some disappointment that this drop-in will no longer run as it
was considered important in communicating with the Traveller community.
6.72 The majority of stakeholders stressed the importance of further community engagement work, particularly
around the development of the proposed sites. It has already been suggested that this involves a steering
group which includes local businesses, coupled with a communication and awareness raising plan.
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Future Site Provision: Criteria, Management and Geographical Location
6.73 In terms of the management of the two proposed sites, there is a view that they will be Council-run in the
first 18 months until a best approach is reached. It was argued that there is currently not a great deal of
interest amongst general housing providers in this area.
6.74 A number of stakeholders were of the view that the proposed sites should be run by the Council in much
the same way as the accepted encampment. The site should have running water, toilet facilities, waste
disposal and, as suggested by Travellers who have used the transit site in Halton, an amenities block for
washing and drying clothes.
Conclusions and Recommendations
6.75 From the interviews, a number of conclusions and recommendations are presented below:
» The two sites will meet the needs of Travellers who require access to affordable housing.
» There is support for closing the ‘accepted encampment’.
» There is support for a transit site.
» A progressive positive campaign promoting the lifestyle and culture of Gypsies and
Travellers may help tackle the negative stereotypes held by the settled community.
» Education around the benefits of accessing preventative medical care (GPs) could help
towards reducing the reliance on Accident and Emergencies and improve uptake of
vaccinations.
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Halton Borough Council
6.76 There are 25 permanent pitches on social sites (Council-owned). At the Riverview Residential Caravan Park
in Widnes, there are 23 pitches and a further two permanent pitches (occupied by the site warden)
together with 12 transit pitches at the Warrington Road transit site in Runcorn. The Riverview site in
Widnes was refurbished in 2004 (planning reference: 04/01146/HBCFUL). The Warrington Road transit site
opened in 2009 (planning reference: 07/00924/HBCFUL).
6.77 The remaining provision of permanent pitches is found at two private sites at Windmill Street, Runcorn and
on Warrington Road, Runcorn. Neither of these private sites has a specific Gypsy and Traveller planning
consent nor are the number of pitches/caravans specified. There is a further site with temporary planning
permission for six caravans (expiring in November 2014) at a site in Daresbury, Runcorn. However, we
would note that the Windmill Street site has no recorded occupancy since 2010.
6.78 A new site containing 12 permanent pitches is proposed (planning application reference
13/00267/HBCFUL) and will be fully functional by 2014. Once the site is nearing completion, an advertising
campaign will be undertaken.
6.79 Currently there is no formal waiting list. However, there is a clear structure and guidelines on housing need
and pitch allocation. If a pitch becomes vacant on the Council site, the warden and Travellers are made
aware.
Accommodation
6.80 Overall, of those interviewed, most felt there is a shortage of permanent accommodation for Travellers and
felt that further pitches are required. One officer stressed the importance of looking at the age structure of
the community and was of the opinion that there are a considerable number of young people on the sites
who will be looking to have their own families and pitches.
6.81 A number of stakeholders referred to the rising number of housed Travellers but argued that this is not
necessarily motivated by the desire to live in bricks and mortar and more so because they want to stay in
Halton where there is currently no available site provision. Tenancy support is available to housed
Travellers.
6.82 For the following reasons, Halton is considered to be a popular stopping place:
» Employment opportunities in the area (landscape gardening and rubbish removal)
» A large existing settled Traveller population
» Major route North - South
» Proximity to Liverpool and Holyhead
» Proximity to: M62 (up to Yorkshire and Cumbria); M56 (also known as the North Cheshire
motorway and runs towards Manchester) and M57 (Liverpool outer-ring road).
6.83 Officers gave the following reasons why they felt the transit site has helped to reduce the number of
encampments:
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» Travellers requiring a transit pitch will contact the service in advance and not camp
illegally.
» Police will use Section 62a to direct Travellers to the transit site. If they do not want to
move to the site then they will have to move out of the area and cannot return for a
further three months (according to the legislation).
» Travellers who do not want to use a transit site will camp in an area without a site
(Warrington).
6.84 During the winter months, the transit site is reportedly full with ‘regulars’ who stay at the site for three
months, move on and return after three months. Travellers are said to want to use the site because of the
availability of water, toilets and heat (particularly during the winter months) as well as the ability to tap into
services such as health, welfare and education.
6.85 Despite numbers of encampments decreasing, they still occur in the Blackheath Lane area.
6.86 A Council Officer believed that although the Council site could be considered large, it has been successfully
managed for over 11 years. The transit site requires intensive management.
Community, Health and Education Issues
Community Cohesion
6.87 According to Officers, because of the hard work of the Gypsy Traveller Liaison Officer and the Police, there
are few community tensions. When issues do arise, they are dealt with through liaison work with the
community. Nonetheless, improving community cohesion is considered to be an on-going issue.
Health
6.88 All residents on permanent sites are thought to be registered with the local GP and dental surgery and have
good links with the health centre. Health services are also provided on site at the ‘community cabin’ and
the warden also helps bridge the gap between residents and health services, which has proved particularly
successful when promoting inoculations.
Education
6.89 Children on both permanent and transit sites are assigned a school place by the Gypsy and Traveller Liaison
Officer and are then supported by an Education Welfare Officer who will visit the site twice weekly. The
Officer is accompanied by a youth worker who will encourage youngsters to participate in leisure activities
and ensure they are engaging in activities in the wider community. On the Council sites, an after-school
club takes place most weeks.
6.90 Similarly, to experience around the UK, Traveller children drop out of education once they reach secondary
school age.
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Cross Boundary Issues
6.91 Officers reflected positively on the joint working which takes place within Cheshire and the links with
Merseyside. The work of the Gypsy and Traveller Liaison Officer, particularly information sharing, was
praised and felt to be critical to maintaining a partnership approach to managing Traveller issues. Halton is
considered central to the Cheshire and Merseyside groups and it was argued that more discussions need to
take place around trends, demands, future pressures and how Local Authorities can assist each other.
6.92 Officers supported the development of a centralised approach across the region, which they felt would
create a better system of communication and a more consistent approach so Travellers are treated the
same wherever they travel.
6.93 The lack of provision in Warrington (permanent and transit) is said to have a knock-on effect on Halton and
it is believed that if Warrington provided a transit site, it would reduce the numbers of unauthorised
encampments in both areas and would benefit Travellers, who would be able to move between the two
sites on a three monthly basis, instead of camping illegally. One officer was aware of discussions with
Warrington about the possibility of shared transit services, including site management.
Consultation Activities
6.94 Regular consultation is said to take place by the Gypsy and Traveller Liaison Group where the wardens of
the site meet with members of the Gypsy and Traveller community.
Future Site Provision: Criteria, Management and Geographical Location
6.95 When asked to consider site criteria, officers made the following suggestions:
» Access to major transport links but not too close to motorway junctions
» Proximity to schools, health services and shopping facilities
» Runcorn is considered to be a good location for further permanent provision (there is
already a settled Traveller community)
» Site wardens to provide a point of contact for the residents.
Conclusions and Recommendations
6.96 From the interviews, a number of conclusions and recommendations are presented below:
» There is a shortage of permanent accommodation.
» The transit site has reduced the number of unauthorised encampments.
» The work of the Gypsy and Traveller Liaison Officer and the Police has helped towards
building a cohesive community. Nonetheless, improving community relations and a
progressive positive campaign promoting the lifestyle and culture of Gypsies and
Travellers may help tackle the negative stereotypes held by the settled community.
» Having a ‘community cabin’ and a warden on site has helped Travellers access health
services and allowed consultation with site residents to take place.
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Warrington Borough Council
6.97 The 2006 Unitary Development Plan (UDP) contains a site-specific criteria-based policy. The Council is now
at the examination stage of the Local Plan Core Strategy. The emerging Local Plan Core Strategy was
described as being more proactive. It sets out specific pitch and plot numbers and commits the Council to
prepare a subsequent Local Plan to allocate land to meet those numbers, and provides criteria to guide the
allocation process and respond to any applications that are made.
6.98 The emerging Local Plan Core Strategy commits to finding the 56 pitches identified in the North West
partial review, which is viewed to be a robust and comprehensive study. The outcome of this GTAA is
considered to be a validation of the numbers already known to the Council but in addition will provide a
guide to the phasing of need and planning around the immediate need.
6.99 The Council has allocated £2 million pounds from the Capital Budget to deliver a transit site. A specific Task
and Finish Group, made up of senior local politicians representing the main local political parties, has been
set up to oversee delivery of this site.
Accommodation
6.100 There are a large number of sites with temporary permission and some sites are thought to be
overcrowded. It was estimated that granting permanent permission on existing temporary sites could meet
the need for 16 pitches, although these are in the Green Belt.
6.101 A number of stakeholders referred to housed Travellers but argued that they are housed out of choice
rather than necessity, although in some instances as a result of domestic violence.
6.102 The number of unauthorised encampments is high and in most years reaches at least 50. Encampments
regularly occur in in the following locations:
» Admirals Road (Birchwood, East Warrington)
» Gemini Retail Park (Gemini, West Warrington)
» Omega Boulevard (Lingley Mere, West Warrington)
» Silver Lane (Birchwood/Risley, East Warrington)
» Winwick Quay (Central Warrington).
6.103 Warrington is considered to be a popular stopping place due to the following factors:
» En route to Appleby and Ireland to the North West
» Proximity to Manchester and Liverpool
» Unique position at the hub of the North West regions motorway network
» Proximity to: M62 (up to Yorkshire and Cumbria); M6 (the motorway has major junctions
with the M56 and M62 at Warrington, giving access to Chester, Manchester and
Liverpool) and the M65 (the motorway is in Lancashire and runs just south of Preston
through the major junction of the M6 and M61 motorways).
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6.104 Stakeholders were also of the view that, because Halton has a transit site and Cheshire West and Chester
has an ‘accepted encampment’, once Travellers are moved off the sites they will camp in Warrington.
6.105 The majority of encampments will require a court order, private bailiffs and clean-up costs. The size of the
encampments is said to have reached 25 caravans in some instances. Only two encampments have
occurred in Halton and only for the duration of a few hours. On this basis, a transit site would allow for
better management and reduce the numbers of unauthorised encampments and would also help settle
community tensions that arise when unauthorised encampments occur. There was support for a transit site
that is separate from residential facilities and is Council-owned and managed. Most felt that Warrington
should seek advice from Halton on transit site provision and look to develop a site based on their model.
6.106 One officer stressed the point that even if rarely used, a transit site would still act as a deterrent to
unauthorised encampments.
Community, Health and Education Issues
Community Cohesion
6.107 Although stakeholders reported some community tensions, most felt that once sites are established
community tensions will subside.
6.108 Awareness raising and training sessions with Elected Members and schools were supported and one officer
reflected positively on training that has been delivered by two senior members from south Somerset and
by Gypsies and Travellers.
6.109 It was felt that having a dedicated Gypsy and Traveller Liaison Officer would benefit the area and would
improve community cohesion insofar as they can act as a link between the two communities.
Health
6.110 Many Travellers have health conditions that require regular hospital/GP appointments and the elderly
population tend to have complex health issues as well as restricted mobility and arthritis. Therefore,
improving access to primary care is considered to be a key priority.
6.111 Although access to GPs is said to have improved, there was support for cultural awareness training for GPs
and surgery staff.
6.112 Funding for a health visitor to dedicate one day per week to meeting the needs of all Travellers on
permanent sites, and on the roadside, is said to have helped improve the communication between the
Travelling community, health bodies and the Council.
Education
6.113 Children on sites are supported by an Education Welfare Officer. Similar to other areas of the UK, there is
an on-going problem with children not attending secondary schools. Interestingly, and not reported in
other areas, it appears that attendance sometimes depends upon the type of site, for instance, in larger
sites attendance at school can be influenced by peer pressure within the site rather than by an individual
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family’s preferences. Some sites, particularly public sites, are also more cooperative with the Education
Authority than others. It was argued that having a Local Authority site would make it easier for officials to
target children’s education.
Cross Boundary Issues
6.114 It was accepted the lack of provision in Warrington moves Travellers into other neighbouring areas.
6.115 The lack of a Gypsy and Traveller Liaison Officer is said to hamper the ability to work with neighbours, as
there is a lack of a lead to take this forward. One officer commented that the Cheshire Partnership Gypsy
and Traveller Coordinator is extremely helpful but stressed that the role covers such a large area that the
time given to Warrington is less than required. Currently the role is paid for by all three authorities.
Warrington and Cheshire East pay for one day each and Cheshire West and Chester pay for the remaining
three days.
6.116 An Elected Member urged Social Services departments, Education and Health to link up with neighbouring
authorities.
Consultation Activities
6.117 There was support for the employment of a Gypsy and Traveller Liaison Officer who can lead regular
consultation and communicate with the community as currently, this is thought to be insufficient.
Future Site Provision: Criteria, Management and Geographical Location
6.118 When asked to consider what criteria are important for locating any future sites, officers considered access
to major transport links to be essential but not too close to motorway junctions.
6.119 Much discussion focused on the future provision of a transit site and it was felt that because occupants of
this type of site would be there on a temporary basis, it would be more appealing to local residents if the
site is located away from the settled community.
Conclusions and Recommendations
6.120 From the interviews, a number of conclusions and recommendations are presented below:
» The Council should seek to resolve the future of the 16 pitches with temporary
permission.
» The number of unauthorised encampments is high and in most years reaches at least 50;
there is much support for a transit site.
» Although much work has already been done to improve community cohesion, a
progressive positive campaign promoting the lifestyle and culture of Gypsies and
Travellers may help tackle the negative stereotypes held by the settled community.
» It was felt that having a dedicated Gypsy and Traveller Liaison Officer would benefit the
area and would improve community cohesion insofar as they can act as a link between
the two communities.
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» Education around the benefits of accessing preventative medical care (GPs) could help
towards reducing the reliance on Accident and Emergencies and improve uptake of
vaccinations.
Views of Wider Stakeholders
6.121 Representatives of the community and representative groups were critical of the progress made across
Cheshire in meeting the required need identified in the previous GTAA, although Cheshire West and
Chester Council is considered to have been more proactive in meeting its targets.
Accommodation
6.122 Of the three wider stakeholders, two were of the opinion that the required number of pitches to meet
current need is considerable and based their assumptions on the following points:
» There is doubling-up of pitches and overcrowding on many of the private sites (of which
councils are apparently unaware).
» A large number of unauthorised sites (of which councils are apparently unaware).
» A large number of sites which have temporary planning permission.
» Housed Travellers who would prefer site accommodation (one stakeholder knew of
around 15 housed Travellers in the Winsford area but did not provide any further
contacts).
6.123 When referring to housed Travellers, stakeholders noted that some had chosen bricks and mortar
accommodation because they:
» Want their children to access education
» Desire a more settled way of life
» No longer want to travel.
6.124 Stakeholders suggested that the Local Authorities take the following actions to improve Traveller
accommodation:
» Provide additional social provision
» Source appropriate land for private sites
» Introduce better regulation of private sites including fire and safety hazards and families
being overcharged for electricity.
6.125 The other wider stakeholder from a planning background, presented a very different view. They explained
that, based on experience of planning applications, as more and more Travellers opt to live in bricks and
mortar accommodation, the demand for site provision is in decline. The stakeholder gave two examples to
illustrate this point:
» A Traveller site owner who has recently changed its use to a park homes site.
» Travellers who have moved into bricks and mortar, two miles away from a site which had
vacant pitches.
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6.126 Nonetheless, the stakeholder argued that demand could still increase as families grow and as new families
move into the area and want their own sites, rather than move onto existing sites.
6.127 Although Gypsies and Travellers are said to be travelling less, stakeholders called upon the Local Authorities
to make provision for members of the community who continue to travel. When asked their views on
managing encampments, one stakeholder preferred a policy of toleration and opposed the provision of a
formal transit site on the grounds that:
» The initial development and running costs are high
» It is not cost effective when empty
» There is a risk it will turn into a permanent site
» There is a risk that Police will have the power to forcibly move Traveller families 30-40
miles away.
6.128 Alternatively, another stakeholder supported a transit site for the western side of Cheshire and felt it would
be welcomed by those Travellers who move around and through Wigan, Liverpool, Sefton and Cheshire.
Community, Health and Education Issues
Community Cohesion
6.129 Prejudice towards the Traveller community was of concern to wider stakeholders, who explained that many
Travellers continue to be judged and stereotyped and are reluctant to identify themselves as members of
the Travelling community.
6.130 Thinking about ways to improve community cohesion, one wider stakeholder felt that community cohesion
could be improved by employing local tradespersons to build Traveller sites.
6.131 One stakeholder felt strongly that when providing community activities and groups, it is important to invite
community members from both the settled and Traveller communities, and gave the example of a youth
club in the area which is attended by children from both communities.
Health
6.132 Access to health services was thought to be hindered by the lack of a mailing address on the majority of
sites in the area.
6.133 One stakeholder expressed concern that there has been little attempt by the councils to engage with the
community on health issues, and was not aware of any funding that is addressing health needs within the
community, despite data showing large numbers of people with coronary vascular disease, cancer, diabetes
and mental health issues.
Education
6.134 There is said to be a number of children within the community who have attention deficit hyperactivity
disorder (ADHD) and other underlying educational needs including dyslexia. A stakeholder supported the
following actions:
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» Encourage children to stay in secondary education
» Offer vocational qualifications (e.g. hair and beauty) - look at examples in Liverpool
» Mandatory cultural training for headteachers
» Provide literature about Travellers in every school not just schools where Travellers
attend.
Cross Boundary Issues
6.135 Stakeholders were critical of the progress made in surrounding areas in meeting accommodation needs, in
particular, North Wales and Lancashire.
6.136 Developing cross boundary channels of communication was strongly felt by stakeholders who argued that
there are links between Cheshire families and families in surrounding areas (Wolverhampton and Stoke)
and it was suggested that the findings of this GTAA be shared with neighbouring authorities.
Consultation and Community Engagement
6.137 Wider stakeholders referred to the following bodies who engage with the Travelling community:
» Cheshire Gypsy and Travellers Voice is funded by Cheshire West and Chester Council and
holds a weekly drop-in session in Winsford, which is open twice a week.
» Irish Community Care Merseyside is funded by the Irish Government, Liverpool City
Council and Wirral Borough Council but held a drop-in session half a day per week at the
Council offices in Ellesmere Port. However, the session could not be sustained due to a
lack of funding and ceased in April 2013. It continues to hold drop-in sessions in the Wirral
and Liverpool and Travellers from Ellesmere Port attend this session.
6.138 Drop-in sessions are supported by stakeholders who believe that Travellers are more comfortable speaking
with members of their own community. Other benefits of drop-in sessions include:
» The provision of a ‘care of address’ ─ service users sign up and have one monthly contact
and mail will be held for people.
» Support Services ─ maximisation of benefits including filling in forms, advising on
entitlements and accompanying on interviews.
» Multi-agency working ─ the Ellesmere Port drop-in sessions were co-located with the
Housing Team and the Gypsy and Traveller Team.
6.139 One stakeholder was of the view that Councils across the study area do not consult or engage with the
community in a timely and effective manner and suggested that more effective consultation, particularly on
the development of sites, with the settled and Traveller communities would reduce community tensions.
Future Site Provision: Criteria, Management and Geographical Location
6.140 When asked to consider what criteria are important for locating any future sites, one stakeholder referred
to the Ellesmere Port families who apparently strongly oppose the provision of a site which is managed by
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Travellers and explained that when members of the community manage sites, it often leads to an
inequitable management system because family loyalties will take precedence over any other factor.
Registered Providers, because of their housing management expertise, were considered best placed to
manage sites.
Travelling Showpeople
6.141 In order to ascertain the views of Travelling Showpeople, ORS recruited and facilitated a Forum in Knutsford
on 3 May 20132. ORS advertised the Forum in the World Fair publication and invited members of the
community in the North West area to come and talk about their accommodation needs. The Forum was
well-attended with around 30-40 participants contributing to the discussion. ORS also met with the North
West representative of the Showmen’s Guild of Great Britain.
6.142 Overall, the group was of the view that there is a large number of Travelling Showpeople in the North West
who require a permanent residence, particularly as sites in Bolton and Manchester are thought to be full.
Participants felt strongly that all Local Authorities should set land aside for sites. Travelling Showpeople also
had a lengthy discussion surrounding the definition of need; they explained that many members of the
community have been forced to move out of an area because of a lack of accommodation, yet their need or
want to return to the area is classed as an aspiration, even when they have business links with an area.
Many Travelling Showpeople relayed past and present examples of buying seemingly suitable land and
having their planning application turned down across the North West area.
6.143 Participants had the following concerns:
» It is considered a gamble buying land ─ “none of us want a place for free, we just want to
be sure that if we buy something, we can actually live there”.
» Finding land that will fulfil the established site criteria is impossible.
» Local Authorities use a list of excuses not to grant planning permission to Travelling
Showpeople.
» Without a permanent address it is difficult to access healthcare and ensure children
receive consistent education.
» District by district surveys are not robust enough – there is a national shortage of
accommodation for Travelling Showpeople, therefore addressing need should be a joined-
up national or regional response.
» Travelling Showpeople are covered by the same planning policy as Gypsies and Travellers,
yet they are very different communities with different accommodation needs.
6.144 Participants suggested the following solutions:
» Local Authorities should set aside land for Travelling Showpeople.
2 The date and venue was recommended by the representative of the North West section of the Showmen’s Guild
who felt that Travelling Showpeople from the North West would be in the area because of the Bank Holiday fair in Knutsford. The advert also gave Travelling Showpeople, who could not attend the Forum, the opportunity to contact ORS via email or telephone.
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» Site criteria should reflect what Travelling Showpeople actually want and, on that basis,
sites do not need to be close to shops, schools, facilities and the local community.
» Allow residential sites near their area of business – to cut down the travel costs.
6.145 As a result of the Forum at Knutsford and the advertisement in the World’s Fair publication, ORS was
contacted by six Travelling Showpeople, representing larger groups, who are interested in or have
purchased land across the Cheshire area. Their circumstances are documented in Chapter 7.
6.146 Officers and wider stakeholders within each of the study areas also gave an assessment of needs of
Travelling Showpeople in their respective areas as documented below:
Cheshire East Council
» Officers reported that there are two Travelling Showpeople sites in the area and that they
are not aware of any current or forthcoming planning applications. One officer was of the
opinion that provision for Traveling Showpeople is not adequate.
» One officer felt that Travelling Showpeople needed to be more involved with the planning
authority before they purchase land and advised that they should approach their local
planning authority for pre-application guidance about issues and constraints, and should
seek advice on suitable locations. A small fee will be charged for this service depending on
the volume of work the planning authority will be required to do.
Cheshire West and Chester Council
» Cheshire, particularly Winsford, is considered to be a popular historical base for
Showpeople. Showmen are responsible for many events in Winsford, as there are said to
be no alternative leisure provision such as cinemas or bowling alleys.
» Officers reported a site on Council-owned land which is leased to a Showperson family
and currently has capacity for 12 pitches. An Elected Member viewed this to be a stop gap
for families who lost their plots in Northwich.
» It was strongly felt by both Council Officers and Elected Members that there is currently a
chronic shortage of provision for Traveling Showpeople. They consider the required need
for 10 plots identified in 2007 be a conservative estimate. An Elected Member called for
the provision of 20 plots over the next 15 years.
Halton Borough Council
» Officers were not aware of any Travelling Showpeople sites in the area and felt that there
was little demand for provision in the area. When Travelling Showpeople pass through the
area, they have not taken up the offer of space on the transit site.
Warrington Borough Council
» Officers reported two Travelling Showpeople sites. One site is well established, the other,
however, located near the town centre, was not considered an appropriate site by
stakeholders owing to overcrowding and the lack of appropriate facilities including
washing and access to clean running water. Positively, the Council has secured a capital
budget of around £440,000 to find an alternative site to accommodate the families.
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» An officer was of the view that the Council is not inundated with planning applications or
enquiries from Showmen but referred to enquiries from Travelling Showpeople based in
the Greater Manchester area. It was suggested that Travelling Showpeople approach the
Council prior to purchasing land to receive advice.
» The emerging Local Plan Core Strategy is committed to finding an additional 15 plots for
Showmen. It was assumed that this would meet the need – and more.
6.147 Interestingly, ORS spoke to an established property developer who owns a piece of land in Warrington and
is looking to provide affordable homes for Showmen, enough for 30 homes (which was previously a park
homes site). It is proposed that the site would contain homes that have central heating, double glazing and
be landscaped to include driveways and individual garden areas. The site will not provide space for storage
of equipment and will potentially be ideal accommodation for retired Showmen or those without
equipment. Indeed, it was reported that a Showman on an unauthorised site in the area has already been
offered a place on the site, should it go ahead. The property developer and family would also live on the
site and would play an active role in managing the site.
6.148 The developer was critical of the planning process and, in particular, felt it to be unjust that even when
developing the aforementioned site, it still has to be classed as a site for Showmen, even though no
equipment would be stored there.
6.149 It was argued that developing the site would not be at the expense of Warrington Council and would be
distinct from anything else provided around the country.
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Neighbouring Authorities
6.150 As stated in the Planning Policy for Traveller Sites, Local Authorities have a duty to cooperate on planning
issues that cross administrative boundaries. Therefore, as part of the stakeholder consultation, ORS
conducted seven interviews with officers representing the following neighbouring authorities:
» Flintshire County Council
» Liverpool City Council
» Sefton Metropolitan Borough Council
» St Helens Metropolitan Borough Council
» Wirral Borough Council
» Wrexham County Borough Council.
6.151 Manchester City Council was also contacted, but was not able to provide anyone who felt that they could
be interviewed for the study.
Main Policy Tools
6.152 Stakeholders from neighbouring authorities referenced a number of local and national policies and
guidance in relation to Gypsy and Traveller issues, including the National Planning Policy Framework and
the Planning Policy for Traveller Sites, various Local Plans (which included site allocations Development Plan
Documents [DPDs] and criteria-based policies which, in most cases, were still under preparation), although
Sefton and Flintshire Councils both reported not currently having a stand-alone Gypsy and Traveller Policy.
Accommodation Needs: Site Provision and Unauthorised Encampments
6.153 The accommodation situations of the authorities surrounding the study areas (as reported by their
respective stakeholders) is summarised below:
Flintshire County Council
» There are currently five authorised sites for Gypsies and Travellers in Flintshire. There is
one Local Authority-owned site at Queensferry which has 20 pitches and is currently
managed by the Gypsy community in partnership with the Council. The Council is
currently exploring the extension of the Riverside site onto underutilised land in its
ownership adjacent to the current site. (This site has the potential to provide up to 20
residential pitches).
» There are four privately-owned sites that have planning consent. These are two long-
standing sites at Sandycroft which have a capacity of 22 pitches and a site at Gwespyr
which has a capacity of 20 pitches. There are also two smaller private sites in Flintshire
which have been the subject of recent planning applications and subsequent appeals.
These sites are at Dollar Park, Greenfield, where a temporary permission exists up to
2016. The second recent private site is at Gwern Lane, Hope, where a permanent consent
was granted on appeal in May 2011 for four caravans.
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» Flintshire has been part of the North Wales GTAA (counties of Conwy, Denbighshire,
Gwynedd and Ynys Môn). The study found there to be a shortfall of 62 pitches up to 2016,
36 of which were required in Flintshire. Annually, there are around 55 encampments in
the North Wales area. The study recommended the provision of three or four transit sites
in the study area, each with capacity for up to seven caravans. Within North Wales,
Flintshire and Wrexham currently provide 95% of the legal sites.
» As a result of the North Wales GTAA findings, the county is looking to provide 15-17 more
pitches in the next 5 years.
» There are a large number of unauthorised encampments per annum, typically around 40-
46. Some are 2-3 days duration while others can last for 2-3 months; these usually occur
on commercial or industrial estates. Interestingly, the representative noted that there has
been a recent decrease in the amount of unauthorised encampments. Nonetheless, the
County are looking to provide a local authority-run transit site and expand their
community liaison resource.
Liverpool City Council
» Liverpool has one Local Authority-owned site which has 14 pitches. There are no private
sites in the area. Apparently there are a number of housed Travellers in the area who
would prefer site accommodation and there is an active waiting list.
» Since 2007, a number of Travellers have moved into bricks and mortar or have moved out
of the area and, as a result, the number of unauthorised encampments has reduced.
Those who do move through the area are said to come from Knowsley and the Wirral who
are said to have a tougher enforcement protocol.
Sefton Metropolitan Borough Council
» Sefton currently has a Council-run permanent site which has 16 pitches. There is currently
a grant application to the HCA to expand this to 20 pitches. There is also a private site
located in close proximity to the public site. It is believed that the additional provision will
meet the needs of the population.
» The numbers of encampments which occur per year has fallen recently as a result of
increased efforts to protect at risk areas. The numbers have fallen from approximately
eight to two encampments per year.
St Helens Metropolitan Borough Council
» There is one Local Authority-owned site with 20 pitches and several private sites. There is
no waiting list for the public site.
» In the past 5 years there has been a reduction in the number of encampments.
Wirral Borough Council
» There are no sites in the area.
» The number of unauthorised encampments is rising. The majority of these occur in the
north east side where there is a ferry terminal with regular crossings to Belfast.
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Wrexham County Borough Council
» There is one local authority site at Ruthin Road and two known private sites. The number
of available pitches in the area has reduced in recent years since the closure of the 19
pitch site at Croes Newydd and the replacement of the 10 pitches at Ruthin Road. It was
reported that most of the previous tenants have moved out of the area.
» Similar to Liverpool, Wrexham has seen a decrease in the numbers of unauthorised
encampments in recent years.
6.154 Overall, aside from the Wirral, officers from neighbouring authorities reported a reduction in unauthorised
encampments.
Cross Boundary Issues
6.155 A number of travelling routes were identified:
Cross-border routes
» Flintshire – North Wales Coast to Ireland (A55)
» Liverpool - Mersey Tunnel and Runcorn Bridge
» Sefton – Crosby to Southport.
6.156 As reported by officers, there appears to be much cross boundary communication and representatives from
neighbouring areas attend a number of cross boundary groups, including the Merseyside group run by Irish
Community Care Merseyside and the Gypsy and Traveller Strategic Partnership across the four Cheshire
authorities, which has been in existence since 2004.
6.157 Flintshire, Liverpool, Sefton and St Helens officers reflected positively on their relationship with officers and
the Gypsy and Traveller Liaison Officer in Cheshire West and Halton who they have regular contact with.
6.158 North Wales is a popular location to “stop over” for Gypsies and Travellers, as a principle travelling route
passes through all of the local authority areas in North Wales. That said, Gypsies and Travellers in North
East Wales are constrained in their choice of where they can stay by the pattern of provision of sites, which
is skewed predominately to Flintshire and Wrexham, and also by the lack of any authorised provision in
Conwy or Denbighshire.
6.159 An officer representing Sefton argued for the provision of a transit site serving Merseyside.
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7. Future Pitch Provision Pitch Provision
7.1 This section focuses on the extra pitch provision which is required by the Cheshire Authorities currently and
over the next 15 years, to 2028, in 5 year segments. This includes both current unmet needs and needs
which are likely to arise in the future. This time period allows for robust forecasts of the requirements for
extra provision, based upon the evidence contained within this survey and also secondary data sources.
7.2 We would note that this section is based upon a combination of the on-site survey, planning records and
site preference list information. In many cases, the survey data are not used in isolation, but instead are
used to validate information from planning records or other sources.
7.3 This section concentrates not only upon the total extra provision which is required in the area, but whether
there is a need for any transit sites and/or emergency stopping place provision. The calculation will be
firstly provided for Gypsies and Travellers, before being repeated for Travelling Showpeople.
7.4 Before commencing on the identification of future needs, ORS would wish to note some key points. In
2010 the Coalition Government announced the planned abolition of all Regional Spatial Strategies and the
advent of the Localism Act 2011, National Planning Policy Framework 2012 and Planning Policy for Traveller
Sites 2012. The North West of England Regional Spatial Strategies was revoked on 20 May 2013 and so is
not used in the determination of planning applications.
7.5 It is also the case that ORS has not considered provision made in the period 2006-2013 and instead ORS is
taking April 2013 as a baseline position for its estimates. While there is a case to argue that authorities
who failed to meet their needs in the period 2006-2013 should be expected to meet these in the future,
there is no clear mechanism in place for this to occur. Instead ORS has modelled on any current needs in
each authority being a backlog which has derived over time and then allowed for additional future needs as
they are likely to arise.
7.6 ORS would also note the location for future provision is a key issue within studies such as this one. The
estimates for Local Authorities within this study are based upon the location where needs will arise. This is
not necessarily the same Local Authority as where need should be met. For example, it is difficult for
households to express a desire to live on a public site in an area which currently has no provision. Gypsies,
Travellers and Travelling Showpeople are not constrained by Local Authority boundaries and potentially the
requirement for one Local Authority could be met in a neighbouring area. However, for this to occur,
cooperation is required from both planning authorities. Therefore, ORS has not made explicit assumptions
about the allocation of needs arising in one area being met in another area, but ORS would recommend
that consideration is given within strategic planning documents that an equitable allocation of provision is
made between the authorities.
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7.7 To identify future need, 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, in October 2007 CLG produced ‘Gypsy and Traveller Accommodation Needs
Assessments: Guidance’. This document is due to be revised imminently at the time of writing, but this
assessment follows the principals set out in guidance. 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
7.8 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.
» Pitches vacated by people moving to housing.
» Pitches vacated by people moving out of the study area – this will be identified as set out
above.
» Pitches vacated due to the dissolution of households (normally through the death of a
single person household).
Current Need
7.9 There are four key components of current need. Total current need (which is not necessarily need for
additional pitches because they may be able to be addressed by space available in the study area) is simply:
» Households on unauthorised developments (i.e. unauthorised pitches on land owned by the
Travellers themselves) for which planning permission is not expected.
» Concealed households.
» Households in brick and mortar wishing to move to sites.
Future Need
7.10 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.
» Migration to sites from outside the study area.
7.11 ORS will firstly provide the model as set out above for Gypsies and Travellers within the whole of Cheshire
and then for needs which arise within each planning area contained within it. ORS will then separately
analyse the possible need for additional transit provision in the study area before repeating the calculation
for Travelling Showpeople.
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Current Gypsy and Traveller Site Provision
7.12 Planning records indicate that there are approximately 266 pitches across Cheshire, plus further space
available for households in transit through the area. The household survey and waiting list records also
highlight a small number of concealed households and households in bricks and mortar who have
expressed a clear need for a permanent pitch on a site. The table below shows the number of households
on-site and in bricks and mortar while wishing to move to sites by authority.
Figure 15 Number of Households by Local Authority
Local Authority Permanent permission and developed
Temporary permission
Concealed households
Bricks and mortar
Tolerated sites
Unauthorised sites
Total
Cheshire East 98 9 3 2 0 3 115
Cheshire West and Chester
65 25 2 0 0 7 99
Halton 30 3 4 1 0 0 38
Warrington 4 16 1 0 0 6 27
Total 197 53 10 3 0 16 279
7.13 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 is through:
» Current empty pitches
» New sites or site extensions which have already been granted permission, or are likely to
gain planning permission in the foreseeable future, or sites which are likely to come back
into use following refurbishment
7.14 Currently, all authorised public site pitches are occupied, so there is no available space. For private sites,
many are for one family and have no available space on them, while others have a private renting
population where turnover is higher. A site in Cheshire East at Briar Pool Farm Caravan Site, Middlewich
has permission for eight pitches, but is no longer in use and the owners are seeking to convert the site to
park homes. Therefore, it has not been counted as supply in this assessment. In Cheshire West, planning
permission was granted for 30 additional pitches across two public sites. Therefore, we have counted these
30 permanent pitches as being part of the future supply alongside a private site that is in the process of
being developed with two pitches.
Figure 16 Future Supply of Pitches with Planning Permission by Local Authority
Local Authority Number of Pitches
Cheshire East 0
Cheshire West and Chester 32
Halton 0
Warrington 0
TOTAL 32
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Additional Pitch Provision: Current Need
7.15 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.
» Households in bricks and mortar wishing to move to sites.
Current Unauthorised Developments
7.16 Recent caravan counts have shown around 25 caravans on unauthorised sites across Cheshire. The
household survey interviewed 14 households on unauthorised sites. A problem with many Gypsy and
Traveller Accommodation Assessments is that they have counted all caravans on unauthorised sites as
requiring a pitch in the area when in practice many are simply visiting. In order to remedy this, ORS’
approach is to treat need as only those households on unauthorised sites already in the planning system
(i.e. sites/pitches for which a planning application has been made), those otherwise known to the Local
Authorities as being resident in the area or those identified through the household survey as requiring
pitches.
7.17 For unauthorised sites, evidence from the Local Authorities and the household survey indicates that there
are three households in Cheshire East and six households in Warrington who are seeking to stay in the area.
7.18 We would note that these figures also include another seven long-standing pitches in Cheshire West which
do not have planning permission and are expected to be dissolved when new public sites are provided.
Figure 17 Unauthorised Pitches by Local Authority
Local Authority Number of Pitches
Cheshire East 3
Cheshire West and Chester 7
Halton 0
Warrington 6
Total 16
Concealed Households
7.19 The household survey also sought to identify concealed households that require a pitch immediately. A
concealed household is one who is living within another household and would wish to form their own
separate family unit, but is unable to do so because of a lack of space on public or private sites.
Stakeholders indicated that there are a number of concealed households on private sites in Cheshire, but
these were not identified during the household survey which used a questionnaire which has identified
many concealed households elsewhere. There are a small number of cases in Cheshire of three generations
of families living together on pitches. However, in all cases this appears to be voluntary, with no
dissatisfaction or desire to move so they have not been counted as being concealed. There were also a
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small number of households visiting family in the area and temporarily overcrowding sites. However, these
households stated that they had permanent addresses elsewhere.
7.20 However, eight of the households on the transit site at Halton stated that they had no permanent address.
Of these three said they travelled permanently and were not seeking a permanent base, while one wanted
a permanent base in North Wales. However, four were seeking a permanent base in Cheshire. These are
concealed households, but Halton Council confirm that these households are also on the site preference
list.
7.21 However, ORS acknowledges that not all households in the study area were interviewed as part of the
study and have therefore added a 2.5% concealed household rate for all authorities except for Halton. ORS
wishes to emphasise that this figures should be considered as provision based upon possible concealed
households who were not identified in the household survey.
Figure 18 Concealed Households by Local Authority
Local Authority Number of Pitches
Cheshire East 3
Cheshire West and Chester 2
Halton 4
Warrington 1
Total 10
Bricks and Mortar
7.22 Identifying households in bricks and mortar has been frequently highlighted as an issue with Gypsy and
Traveller Accommodation Assessments. The 2011 UK Census of Population identified a population of 633
Gypsy and Traveller persons in the whole of Cheshire. Given that there are over 400 caravans on site in the
area, the vast majority of the population are likely to be living on sites. The figure of 633 persons is likely to
be an under-estimate of the total population due to some Gypsies and Travellers not declaring their ethnic
status or completing the Census at all, but it does still indicate a relatively low population in bricks and
mortar.
7.23 As noted earlier, ORS worked with stakeholders, the Local Authorities and on-site interviewees to identify
households in bricks and mortar and this process yielded three interviews. ORS would note that
households who are seeking to move from housing to public sites can express a desire to do so through
registering on the site preference list for public sites and a small number of households have done this.
7.24 ORS would also note that in a number of recent studies undertaken, ORS has worked with national Gypsy
and Traveller representatives to identify households in brick and mortar. For a number of recent studies the
representatives reported over 100 known households in housing and they 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 households per area, and not all wished to move back to sites. Therefore, while there is
anecdotal evidence of many Gypsies and Travellers in housing, most appear to be content to remain there
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and when provided with the opportunity by national representatives to register an interest in returning to
sites, few choose to do so.
7.25 It should be remembered that movement between housing and sites runs in both directions. However, the
on-site survey contained no interviews with households who wished to move from sites to bricks and
mortar. Therefore the net movement between sites and bricks and mortar is three households.
Figure 19 Movements between Sites and bricks and Mortar by Local Authority
Local Authority Movement from sites to bricks and mortar Movement from bricks and mortar to sites
Cheshire East 0 2
Cheshire West and Chester 0 0
Halton 0 1
Warrington 0 0
Total 0 3
Additional Pitch Provision: Future Need
7.26 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:
» Households living on sites with temporary planning permissions.
» New household formation expected during the study period.
» Migration to sites from outside the study area.
Temporary Planning Permissions
7.27 Cheshire currently has 53 Gypsy and Traveller pitches with temporary planning permissions. In all cases,
the permissions will expire within the next 5 years and no-one interviewed on any of these sites wishes to
leave. They have therefore been counted as need within this assessment, but not as supply of pitches.
Figure 20 Temporary Planning Permissions by Local Authority
Local Authority Number of pitches
Cheshire East 9
Cheshire West and Chester 25
Halton 3
Warrington 16
Total 53
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New Household Formation
7.28 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) North West 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. Unfortunately, no figures are available for Gypsy and Traveller households. However, UK Census of
Population 2011 and ORS own national survey data both indicate the population of Gypsies and Travellers
grows at a rate which could be as low as 1.5% per annum. Evidence for this is covered in the technical
appendix to this report.
7.29 While previous studies have used a net growth figure of 3%, ORS firmly believes that any evidence base,
including the present study, should use the most accurate information available, rather than simply relying
on precedent. The Gypsy and Traveller Accommodation Needs Assessments: Practice Guidance October
2007 notes on Page 25, footnote 5 states that:
The 3% family formation growth rate is used here as an example only. The appropriate rate for individual
assessments will depend on the details identified in the local survey, information from agencies working
directly with local Gypsy and Traveller communities, and trends identified from figures previously given for
the caravan count.
7.30 The household survey for Cheshire indicates an age profile for the population which is very typical of those
obtained elsewhere by ORS. Given that the age demographic of Cheshire’s Gypsy and Traveller community
appears to be roughly representative of the wider Gypsy and Traveller population, ORS considers it
appropriate to allow for future projected household growth to occur in line with the long-term national
trends identified above. Therefore, an annual growth rate of 2.5% has been used in this assessment. Given
that the evidence for population is as low as 1.5% per annum, ORS considers that this relatively high rate
will provide enough pitches to accommodate all newly-forming households in Cheshire and will also allow
for some concealed households and those living in bricks and mortar, who may not have been identified in
the survey.
7.31 When including the impact of compound growth, a 2.5% growth per annum provides for 13% growth over 5
years, 28% growth over 10 years and 45% growth over 15 years. Over the same time period, using ONS
2011 based population projections and extrapolating to 2028, the total population of the whole of Cheshire
is projected to grow by around 7%, with natural change providing for only a 3% growth and migration a
further 4%. Nationally, the growth rate projected over the next 15 years for the whole population is
around 10% for natural change and 20% when migration is included.
7.32 In terms of the total number of household formations per district, the table below set out the baseline
position for population and the growth rate based upon 45% over 15 years. It is assumed that each forming
household requires a pitch of its own.
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Figure 21 Number of Household Formations in the Period 2013-2028
Local Authority Households on site including those on the waiting list Household growth based upon 45% over 15 years
Cheshire East 115 52
Cheshire West and Chester 99 44
Halton 38 17
Warrington 27 12
Total 279 125
In-migration from Other Sources
7.33 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 the Cheshire area
from anywhere in the country. The number of households seeking to move to Cheshire 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.
7.34 Overall the level of in-migration to Cheshire is a very difficult issue to predict. As noted in Chapter 3, over
50% of residents have lived in Cheshire for over 5 years. However, over 28% of respondents to the
household survey had lived at their current site for less than a year. While a number of these were only
visitors, there is some movement within existing permanent sites. The household survey indicates that
seven households are currently seeking to move, with one wishing to move outside of Cheshire to
Wrexham. The remainder are looking for permanent or better sites within Cheshire and most are happy to
consider anywhere in the area. Therefore, there is little evidence that households are seeking to leave
Cheshire. While it would be possible to extrapolate migration trend from within the household survey ORS
would suggest that with only one household seeking to leave the area this would not be a robust position
to adopt.
7.35 ORS would note that movement to the public sites is covered by pitch allocation polices and therefore does
not need to be included within the model again. ORS do allowed for a balanced level of migration on to
existing private sites. The advantage of allowing for net migration to sum to 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. An assumption of net nil
migration implies that the net pitch requirement is driven by locally identifiable need. This is also
consistent with the findings from the stakeholder consultation on the Duty to Cooperate, where
neighbouring Local Authorities identified that they were seeking to address their own needs, but were not
making provision for more than this figure. ORS has also assumed a net nil migration between Local
Authorities in Cheshire, but as noted above many Gypsies and Travellers would be happy to consider
alternative locations within the study area and therefore migration across boundaries may occur.
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7.36 Beyond this, rather than assess in-migrant households seeking to develop new sites in the area, ORS would
propose that each case is assessed as a desire to live in the area and that site criteria rules are followed for
each new site. It is important for the authorities to have clear criteria-based planning policies in place for
any new potential sites which do arise.
Overall Needs for Cheshire
7.37 The estimated extra site provision that is required now and in the near future for the four authorities will
be 175 pitches to address the needs of all identifiable households. This includes the existing households on
unauthorised sites, those on the waiting list for a public site, those currently seeking to develop a private
site and growth in household numbers due to household formation.
Figure 22 Extra Pitches which are Required in the Cheshire Partnership area from 2013-2028
Reason for Requirement/Vacancy Gross Requirement
Supply Net Requirement
Supply of Pitches
Additional supply from empty pitches - -
Additional supply new sites - 32
Total Supply 32
Current Need
Current unauthorised developments or encampments and seeking to stay in the area
16 -
Concealed households 10 -
Movement from bricks and mortar 3 -
Total Current Need 29
Future Needs
Currently on sites with temporary planning permission 53 -
Net migration 0 -
Net new household formation 125 -
Total Future Needs 178 -
Total 207 32 175
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Overall Needs for Each Planning Authority
7.38 To provide estimates for each Local Authority, ORS has apportioned the needs outlined above by Local
Authority on the basis of where the need currently arises, or where future household growth will arise
from. As discussed earlier, this process inevitably places a low amount of need in areas which currently
have low populations, while placing higher needs in authorities with larger populations. Therefore,
potentially the requirement being generated in one Local Authority could be met in a neighbouring area.
7.39 The Regional Spatial Strategy process sought to allocate provision across the entire region, and had the
potential to allocate sites to areas with a low current population, to help to relieve potential pressures on
those with little available building land or who had provided a high number of pitches already. Planning
Policy for Traveller sites encourages Local Authorities to produce joint plans for Gypsy and Traveller needs,
but there is now no formal process for allocating needs arising in one authority as provision in another
authority. Feedback from the CLG indicates that the Duty to Cooperate is not a Duty to Agree and
therefore it will require the Local Authorities to plan strategically across boundaries if needs are not to be
met where they arise.
Cheshire East
Figure 23 Extra Pitches which are Required in Cheshire East from 2013-2028
Reason for Requirement/Vacancy Gross Requirement
Supply Net Requirement
Supply of Pitches
Additional supply from empty pitches - -
Additional supply new sites - -
Total Supply 0
Current Need
Current unauthorised developments or encampments and seeking to stay in the area
3 -
Concealed households 3 -
Movement from bricks and mortar 2 -
Total Current Need 8 -
Future Needs
Currently on sites with temporary planning permission 9 -
Net migration 0 -
Net new household formation 52 -
Total Future Needs 61 -
Total 69 0 69
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Cheshire West and Chester
Figure 24 Extra Pitches which are Required in Cheshire West and Chester from 2013-2028
Reason for Requirement/Vacancy Gross Requirement
Supply Net Requirement
Supply of Pitches
Additional supply from empty pitches - -
Additional supply new sites - 32
Total Supply - 32
Current Need
Current unauthorised developments or encampments and seeking to stay in the area
7* -
Concealed households 2 -
Movement from bricks and mortar 0 -
Total Current Need 9
Future Needs
Currently on sites with temporary planning permission 25 -
Net migration 0 -
Net new household formation 44 -
Total Future Needs 69 -
Total 78 32 46
*Seven pitches on a site near the National Waterways Museum in Ellesmere Port that have been tolerated
by the council, but on the basis that the site will be dissolved once authorised pitches are provided.
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Halton
Figure 25 Extra Pitches which are Required in Halton from 2013-2028
Reason for Requirement/Vacancy Gross Requirement
Supply Net Requirement
Supply of Pitches
Additional supply from empty pitches -
Additional supply new sites -
Total Supply 0
Current Need
Current unauthorised developments or encampments and seeking to stay in the area
0 -
Concealed households 4 -
Movement from bricks and mortar 1 -
Total Current Need 5
Future Needs
Currently on sites with temporary planning permission 3 -
Net migration 0 -
Net new household formation 17 -
Total Future Needs 20 -
Total 25 0 25
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Warrington
Figure 26 Extra Pitches which are Required in Warrington Borough from 2013-2028
Reason for Requirement/Vacancy Gross Requirement
Supply Net Requirement
Supply of Pitches
Additional supply from empty pitches - -
Additional supply new sites - -
Total Supply - 0
Current Need
Current unauthorised developments or encampments and seeking to stay in the area
6 -
Concealed households 1 -
Movement from bricks and mortar 0 -
Total Current Need 7
Future Needs
Currently on sites with temporary planning permission 16 -
Net migration 0 -
Net new household formation 12 -
Total Future Needs 28 -
Total 35 0 35
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Split by Local Authority to 2028 in 5 year Time Period
7.40 In terms of providing results by 5 year time periods, ORS has assumed that all unauthorised sites, concealed
households, movements from bricks and mortar and sites with temporary planning permissions are
addressed in the first 5 years. Any supply from undeveloped sites is assumed to be developed in the first 5
years. Household formation is apportioned over time.
7.41 In summary, Figure 27 sets out the net requirement for new pitch provision by Local Authority until 2028.
Any current need is included in the initial period 2013-2018, along with any need arising from new
household formation during that time. Any supply of pitches has also been taken into account in the first 5
year period.
Figure 27 Extra Pitch Provision in the Cheshire Partnership Area by Local Authority in 5 Year Periods
Planning Authority 2013-2018 2018-2023 2023-2028 Total
Cheshire East 32 17 20 69
Cheshire West and Chester 15 15 16 46
Halton 12 6 7 25
Warrington 26 4 5 35
Total 85 42 48 175
Transit/Emergency Stopping Site Provision
7.42 Transit sites serve a specific function of meeting the needs of Gypsy and Traveller households who are
visiting an area or who are passing through. A transit site typically has a restriction on the length of stay of
around 13 weeks and has a range of facilities such as water supply, electricity and amenity blocks. The
existing transit site in Halton contains contain shared gender specific amenity blocks with a separate block
for people with disabilities. They do not have a function in meeting local need which must be addressed on
permanent sites.
7.43 An alternative to a transit site is an emergency stopping place. This type of site also has restrictions on the
length of time for which a Traveller can stay on it, but has much more limited facilities with typically only a
source of water and chemical toilets provided. Some authorities also operate an accepted encampment
policy where households are provided with access to lighting, drinking water, refuse collection and hiring of
portable toilets at a cost to the Travellers.
7.44 The Criminal Justice and Public Order Act 1994 is particularly important with regard to the issue of Gypsy
and Traveller transit site provision. Section 62A of the Criminal Justice and Public Order Act allows the
Police to direct trespassers to remove themselves, their vehicles and their property from any land where a
suitable pitch on a relevant caravan site is available within the same Local Authority area (or within the
county in two-tier Local Authority areas).
7.45 A suitable pitch on a relevant caravan site is one which is situated in the same Local Authority area as the
land on which the trespass has occurred, and which is managed by a Local Authority, Registered Provider or
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other person or body as specified by order by the Secretary of State. In two-tier authority areas, where a
District Council is situated within a wider County Council area, the relevant caravan site may be anywhere
within the county council area. Case law has confirmed that a suitable pitch must be somewhere where the
household can occupy their caravan and bricks and mortar housing is not a suitable alternative to a pitch.
7.46 There is currently one operational public transit site in the study area located in Halton. However, due to
each Council being a unitary authority, this site cannot be shared with any others in Cheshire. ORS would
also 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.
7.47 Therefore, a public transit site both provides a place for households in transit to an area and also a
mechanism for greater enforcement action against inappropriate unauthorised encampments. However,
ORS has spoken to a number of Local Authorities and County Councils across the country such as those in
Herefordshire, Worcestershire, Buckinghamshire, Wiltshire and Hertfordshire, with many indicating that
publicly-provided transit sites are poorly used and in some cases, have fallen out of use. This is part is due
to the location away from major travelling routes.
7.48 Evidence provided by stakeholders and the Local Authorities indicates that a significant number of
encampments occur each year which a transit site may help to address. In particular, the number of
unauthorised encampments has fallen sharply in Halton since a public transit site was provided, saving
significantly on legal and clean-up costs. Meanwhile, the remaining Authorities see much higher rates of
unauthorised encampments. The table below shows the number of encampments by authority since 2005.
Please note Cheshire East and Cheshire West and Chester were formed in 2009, and the figures from earlier
periods are drawn from the Local Authorities who formed parts of these areas.
Figure 28 Unauthorised Encampments in the Cheshire Partnership Area by Local Authority 2005-2013
Year Cheshire East
Cheshire West and Chester
Halton Warrington
2005 45 45 83 54
2006 51 69 66 63
2007 58 50 21 58
2008 38 23 10 17
2009 24 23 4 24
2010 28 17 6 17
2011 30 17 7 28
2012 38 25 7 59
2013 55 21 2 45
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7.49 Therefore, to accommodate visiting households and to provide a more powerful mechanism for addressing
unauthorised encampments, ORS recommends that Cheshire East, Cheshire West and Chester and
Warrington each provide a suitably located, publicly-provided transit site of between five and 10 pitches.
This is generally considered to be the minimum size of site necessary to be effective for addressing
unauthorised encampments and should be able to cope with typical levels of travelling.
Needs for Plots for Travelling Showpeople
7.50 Planning records indicate that there are 16 plots with planning permission across Cheshire for Travelling
Showpeople, plus a small number of concealed households and unauthorised yards. The table below shows
the number of households by authority. Figure 29 Number of Households by Local Authority
Local Authority Permanent permission and developed
Temporary permission
Concealed households
Bricks and mortar
Tolerated yards
Unauthorised yards
Total
Cheshire East 1 0 0 0 0 1 2
Cheshire West and Chester
13 0 3 0 0 0 16
Halton 0 0 0 0 0 0 0
Warrington 2 0 0 0 0 2 4
Total 16 0 3 0 0 3 22
7.51 The next stage of the process is to assess how much space is, or will become, available on existing yards.
The main ways of finding this is through:
» Current empty plots.
» New yards or yard extensions which have already been granted permission or are likely to
gain planning permission in the foreseeable future or yards which are likely to come back
into use following refurbishment.
7.52 Currently, all authorised plots are occupied, so there is no available space and no additional plots have
been granted planning permission.
Figure 30 Future Supply of Plots with Planning Permission by Local Authority
Local Authority Number of Plots
Cheshire East 0
Cheshire West and Chester 0
Halton 0
Warrington 0
TOTAL 0
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Additional Plot Provision: Current Need
7.53 The next stage of the process is to assess how many households are currently seeking plots in the area.
Groups of people who are likely to be seeking plots will include those:
» Households on unauthorised developments for which planning permission is not expected.
» Concealed households.
» Households in bricks and mortar wishing to move to yards.
Current Unauthorised Developments
7.54 There is a single yard in Warrington containing two unauthorised plots. These households wish to move to
a new yard. There is one unauthorised yard in Cheshire East.
Figure 31 Unauthorised Plots by Local Authority
Local Authority Number of Plots
Cheshire East 1
Cheshire West and Chester 0
Halton 0
Warrington 2
Total 3
Concealed Households
7.55 The on-site survey indicated that there are three Travelling Showperson households who are concealed
households in Cheshire at Winsford.
Figure 32 Concealed Households by Local Authority
Local Authority Number of Plots
Cheshire East 0
Cheshire West and Chester 3
Halton 0
Warrington 0
Total 3
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Bricks and Mortar
7.56 No households were identified in bricks and mortar who wished to move to yards, or households on yards
who wished to move to housing.
Figure 33 Movements between Yards and Bricks and Mortar by Local Authority
Local Authority Movement from yards to bricks and mortar Movement from bricks and mortar to yards
Cheshire East 0 0
Cheshire West and Chester 0 0
Halton 0 0
Warrington 0 0
Total 0 0
Additional Plot Provision: Future Need
7.57 The next stage of the process is to assess how many households are likely to be seeking plots in the area in
the future. Groups of people who are likely to be seeking plots will include:
» Households living on yards with temporary planning permissions.
» New household formation expected during the study period.
» Migration to yards from outside the study area.
Temporary Planning Permissions
7.58 Cheshire currently has no Travelling Showpeople yards with temporary planning permissions.
Figure 34 Temporary Planning Permissions by Local Authority
Local Authority Number of plots
Cheshire East 0
Cheshire West and Chester 0
Halton 0
Warrington 0
Total 0
In-migration from Other Sources
7.59 Unlike the situation with Gypsies and Travellers in Cheshire, there is clear evidence of Travelling
Showpeople seeking to move to Cheshire. The evidence for this is documented in the table overleaf.
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Figure 35 Travelling Showpeople Households Seeking to Move to Cheshire
Showperson Household Interview
Summary of Findings Minimum number of Plots required
1
7.60 Lives in the Midlands on a 15 plot yard with his two grown-up children. They and 14 others own this yard but they have outgrown it and there is no room to extend it. They were brought up in Cheshire and travel for work in Winsford and Warrington. Living in Cheshire would make it easier for their business. They, along with other families, would like to buy land in the area to provide at least 10 plots.
10
2 Currently based in Bolton and is the part-owner of a yard of 10
chalets/10 transit plots. The yard is at capacity with equipment parked on street. They have been looking for new yard for 20 years. Looking to develop a yard in Warrington where they work frequently. They want three acres to accommodate two sisters and some friends.
5
3
7.61 Currently based in Newcastle-Under-Lyme on a yard which is full. They have some of their equipment in Thurrock in Essex. A new yard would allow children to stay in the same school (currently in a school in Kidsgrove). They are looking for between one and four plots in East Cheshire, ideally close to the border with Staffordshire.
1
4
7.62 They previously lived in Bolton and are now in Loughborough, not through choice but necessity, and can no longer live near family. They would like a yard in Warrington for one plot.
1
5
7.63 Currently living in Manchester. They would like four plots on a yard in Warrington/Chester.
4
6
7.64 Own land in Cheshire East and are seeking to develop it to provide nine plots.
9
Total Net Migration Need 30
7.65 While there is no clear reason why any of the above groups or households’ needs must be met in Cheshire,
there is also no reason they must be met anywhere else and they have identified the area they want to
have them met as being Cheshire. ORS would also acknowledge that there is a potential for double-
counting with the households seeking to live Cheshire. Potentially they may have been counted as need in
other areas where they currently reside, but there is no system in place which allows for a joined-up
consideration of needs across a region or nationally.
7.66 For Gypsies and Travellers, ORS has counted any household who are on unauthorised sites and wish to
remain there as being part of the needs of that area. In this case, none of the Travelling Showpeople have
chosen to move on to the yard they own and instead all wish to work with the respective Local Authorities
to find a solution to their problems. ORS would consider it a very perverse incentive within such
calculations to count households who buy land and move on to it, but not those who seek to work through
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the planning process in a legitimate way, by seeking planning permission before moving on to their land. It
would simply represent an encouragement for any household seeking to develop a yard to buy land and
occupy it, which runs counter to Government policy.
7.67 Planning Policy for Traveller Sites, when read in conjunction with the National Planning Policy Framework,
is clear that Local Authorities must deal with anticipated in-migration and cannot reject yards because of a
lack of local connections. Therefore, following the principles adopted for Gypsies and Travellers that needs
are met where they arise, ORS has counted their needs as being met in Cheshire.
7.68 ORS notes that Planning Policy for Traveller Sites paragraph 25 states that:
» If a local planning authority cannot demonstrate an up-to-date 5 year supply of
deliverable sites, this should be a significant material consideration in any subsequent
planning decision when considering applications for the grant of temporary planning
permission.
7.69 It is therefore clear that responsibility for identifying land to address needs lies with the Local Authority and
not potential applicants for yards.
7.70 In terms of Local Authorities, where a specific area was identified, the need has been allocated to it. For 14
of the plots, the identified area was either Warrington or Cheshire West and therefore the need has been
split between these two Authorities for these plots.
Figure 36 In-migration by Local Authority
Local Authority Number of plots
Cheshire East 10
Cheshire West and Chester 7
Halton 0
Warrington 13
Total 30
New Household Formation
7.71 For household growth, the typical growth rate for the Travelling Showpeople population is lower than for
Gypsies and Travellers with estimates normally being from 1%-1.5%. Given that many of the in-migrant
households are moving to effectively form and release overcrowding, ORS has used the 1% rate. A growth
rate of 1% provides for total net growth of 16% over 15 years. Given that including in-migration, there are
approximately 50 households on site this equates to eight additional households by 2028.
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Figure 37 Number of Household Formations in the Period 2013-2028
Local Authority Households on site Household growth based upon 16% over 15 years
Cheshire East 11 2
Cheshire West and Chester 21 3
Halton 0 0
Warrington 17 3
Total 49 8
Overall Needs for Cheshire for Travelling Showpeople
7.72 The estimated extra plot provision that is required now and in the near future for the four authorities will
be 44 plots to address the needs of all identifiable households. This includes the existing households on
unauthorised plots, concealed households, in-migrants and growth in household numbers due to
household formation.
Figure 38 Extra Plots which are Required for Travelling Showpeople in Cheshire from 2013-2028
Reason for Requirement/Vacancy Gross Requirement
Supply Net Requirement
Supply of Plots
Additional supply from empty plots - 0
Additional supply new yards - 0
Total Supply 0
Current Need
Current unauthorised developments or encampments and seeking to stay in the area
3 -
Concealed households 3 -
Movement from bricks and mortar 0 -
Total Current Need 6
Future Needs
Currently on yards with temporary planning permission 0 -
Net migration 30 --
Net new household formation 8 -
Total Future Needs 38 -
Total 44 0 44
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Overall Needs for Each Planning Authority for Travelling Showpeople
Cheshire East
Figure 39 Extra Plots which are Required in Cheshire East from 2013-2028
Reason for Requirement/Vacancy Gross Requirement
Supply Net Requirement
Supply of Plots
Additional supply from empty plots - -
Additional supply new yards - -
Total Supply 0
Current Need
Current unauthorised developments or encampments and seeking to stay in the area
1 -
Concealed households 0 -
Movement from bricks and mortar 0 -
Total Current Need 1 -
Future Needs
Currently on yards with temporary planning permission 0 -
Net migration 10 -
Net new household formation 2 -
Total Future Needs 12 -
Total 13 0 13
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Cheshire West and Chester
Figure 40 Extra Plots which are Required in Cheshire West and Chester from 2013-2028
Reason for Requirement/Vacancy Gross Requirement
Supply Net Requirement
Supply of Plots
Additional supply from empty plots - -
Additional supply new yards - -
Total Supply - 0
Current Need
Current unauthorised developments or encampments and seeking to stay in the area
0 -
Concealed households 3 -
Movement from bricks and mortar 0 -
Total Current Need 3
Future Needs
Currently on yards with temporary planning permission 0 -
Net migration 7 -
Net new household formation 3 -
Total Future Needs 10 -
Total 13 0 13
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Halton
Figure 41 Extra Plots which are Required in Halton from 2013-2028
Reason for Requirement/Vacancy Gross Requirement
Supply Net Requirement
Supply of Plots
Additional supply from empty plots -
Additional supply new yards -
Total Supply 0
Current Need
Current unauthorised developments or encampments and seeking to stay in the area
0 -
Concealed households 0 -
Movement from bricks and mortar 0 -
Total Current Need 0
Future Needs
Currently on yards with temporary planning permission 0 -
Net migration 0 -
Net new household formation 0 -
Total Future Needs 0 -
Total 0 0 0
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Warrington
Figure 42 Extra Plots which are Required in Warrington from 2013-2028
Reason for Requirement/Vacancy Gross Requirement
Supply Net Requirement
Supply of Plots
Additional supply from empty plots - -
Additional supply new yards - -
Total Supply - 0
Current Need
Current unauthorised developments or encampments and seeking to stay in the area
2 -
Concealed households 0 -
Movement from bricks and mortar 0 -
Total Current Need 2
Future Needs
Currently on yards with temporary planning permission 0 -
Net migration 13 -
Net new household formation 3 -
Total Future Needs 16 -
Total 18 0 18
Split by Local Authority to 2028 for Travelling Showpeople
7.73 In terms of providing results by 5 year time periods, ORS has assumed that all unauthorised yards,
concealed households and in-migration are addressed in the first 5 years. Household formation is
apportioned over time.
7.74 In summary, Figure 43 sets out the net requirement for new plot provision by Local Authority until 2028.
Figure 43 Extra Plot Provision for travelling Showpeople in the Cheshire Partnership Area by Local Authority in 5 Year Periods 2013-2028
Planning Authority 2013-2018 2018-2023 2023-2028 Total
Cheshire East 11 1 1 13
Cheshire West and Chester 11 1 1 13
Halton 0 0 0 0
Warrington 16 1 1 18
Total 38 3 3 44
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8. Conclusions Introduction
8.1 This chapter brings together the evidence presented earlier in the report to provide some key policy
conclusions for Cheshire. It focuses upon the key issues of future site provision for Gypsies and Travellers
and also Travelling Showpeople.
Gypsy and Traveller Future Pitch Provision
8.2 Based upon the evidence presented in Chapter 7, the estimated extra pitch provision required for Gypsies
and Travellers to 2028 in Cheshire is 175 pitches. These figures should be seen as the projected amount of
provision which is necessary to meet the statutory obligations towards identifiable needs of the population
arising in the area.
8.3 The table below shows the provision required by type of site in 5 year time periods. This is based upon
addressing any current backlog of need where it arises in the next 5 years and then projecting forward
household growth based upon the size of the existing on-site population.
Figure 44 Extra Pitch Provision in the Cheshire Partnership Area by Local Authority in 5 Year Periods
Planning Authority 2013-2018 2018-2023 2023-2028 Total
Cheshire East 32 17 20 69
Cheshire West and Chester 15 15 16 46
Halton Borough 12 6 7 25
Warrington Borough 26 4 5 35
Total 85 42 48 175
Transit Sites
8.4 There is currently one operational public transit sites in the study area located in Halton. However, due to
each Council being a unitary authority, this site cannot be shared with any others in Cheshire. We would
also 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.
8.5 Evidence provided by stakeholders and the Local Authorities indicates that a significant number of
encampments occur each year which a transit site may help to address. In particular the number of
unauthorised encampments has fallen sharply in Halton since a public transit site was provided, saving
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significantly on legal and clean-up costs. Meanwhile, the remaining Authorities see much higher rates of
unauthorised encampments.
8.6 Therefore, to accommodate visiting households and to provide a more powerful mechanism for addressing
unauthorised encampments ORS recommends that Cheshire East, Cheshire West and Chester and
Warrington each provide a suitably located, publicly-provided transit site of between 5 and 10 pitches. This
is generally considered to be the minimum size of site necessary to be effective for addressing
unauthorised developments and should be able to cope with typical levels of travelling.
Travelling Showperson Requirements
8.7 There are four sources of requirements for the Showperson population in Cheshire, namely concealed
households, those on an unauthorised yard, groups of Travelling Showpeople who are seeking
accommodation in the area and the growth in the population over time. In total, the area requires 44 extra
plots to 2028.
8.8 In summary, the table below sets out the net requirement for new plot provision by Local Authority until
2028.
Figure 45 Extra Plot Provision for Travelling Showpeople in the Cheshire Partnership Area by Local Authority in 5 Year Periods 2013-2028
Planning Authority 2013-2018 2018-2023 2023-2028 Total
Cheshire East 11 1 1 13
Cheshire West and Chester 11 1 1 13
Halton 0 0 0 0
Warrington 16 1 1 18
Total 38 3 3 44
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Appendices
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Appendix A: Gypsy and Traveller Sites in Cheshire (April 2013)
Gypsy and Traveller Sites in Cheshire East Site Number of Pitches
Local Authority Sites
Astbury Marsh, Congleton 18
TOTAL PITCHES ON LOCAL AUTHORITY SITES 18
Private Sites with Permanent Permission
Flat Lane, Sandbach, CW11 4BD 2
Booth Lane, Middlewich, CW11 3PU 16
Cledford Lane, Middlewich, CW10 0JS 3
Cledford Lane, Middlewich, CW10 0JT 3
Newcastle Road, Betchton, Sandbach, CW11 2WE 25
Tetton Bridge, Cottage Yard, off Booth Lane, Moston Middlewich, CW10 0HF 3
3 East Tetton Cottages, Booth Lane, Middlewich 1
1 East Tetton Cottages, Booth Lane, Middlewich 1
Horseshoe Farm, Warmingham Lane, Sandbach 3
Nantwich Road, Wrenbury, Nantwich, CW5 8ED 16
Stapeley, Cheshire, CW5 7JP 3
Railway Bridge Cottages, Nantwich 4
TOTAL PITCHES ON PRIVATE SITES WITH PERMANENT PERMISSION 80
Private Sites with Temporary Permission
Thimswarra Farm, Moston 1
New Start Park, Nantwich 8
TOTAL PITCHES ON PRIVATE SITES WITH TEMPORARY PERMISSION 9
Tolerated Sites – Long-term without planning permission
- -
TOTAL PITCHES ON LONG-TERM TOLERATED PRIVATE SITES 0
Unauthorised Developments
Spinks Lane, Knutsford 3
TOTAL PITCHES ON UNAUTHORISED DEVELOPMENTS 3
TOTAL PITCHES 110
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Gypsy and Traveller Sites in Cheshire West and Chester Site Number of Pitches
Local Authority Sites
- -
TOTAL PITCHES ON LOCAL AUTHORITY SITES 0
Private Sites with Permanent Permission
Maryburgh Caravan Park, Hapsford 25
Land at Junction with Grass Road and A5117, Elton 5
Country Meadow Field, Dunham on the Hill 3
Land at Travellers Rest, Winsford 16*
The Old Pumping Station, Frodsham 13**
Land at Old Hall Lane, Elton 1
Land at Junction of Davenham Bypass and London Road, Northwich 2
TOTAL PITCHES ON PRIVATE SITES WITH PERMANENT PERMISSION 65
Private Sites with Temporary Permission
Prevan Place, Elton 2
Green Acres, Childer Thornton 3
Little Meadow Park, Elton 4
The Paddocks, Dunham on the Hill 1
Whitegate Stables, Mickle Trafford 7
Green Meadows Chalet Park, Alvaney 4
Land Adjacent to Hillcrest, Dunham on the Hill 3
The Nursery, Frodsham 1
TOTAL PITCHES ON PRIVATE SITES WITH TEMPORARY PERMISSION 25
Tolerated Sites – Long-term without planning permission
TOTAL PITCHES ON LONG-TERM TOLERATED PRIVATE SITES 0
Unauthorised Developments
Land Adjacent National Waterways Museum, Ellesmere Port 7
TOTAL PITCHES ON UNAUTHORISED DEVELOPMENTS 7
TOTAL PITCHES 97
*While planning permission for this site specifies 16 caravans, the on-site survey indicates that there are in
fact 16 pitches at the site, with more than 16 caravans.
**Likewise, while planning permission for this site specifies 13 caravans, rather than pitches, the
indications from the on-site survey indicate 13 pitches, with more than 13 caravans.
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Gypsy and Traveller Sites in Halton Site Number of Pitches
Local Authority Sites
Riverview, Widnes 23
Runcorn Transit Site, Runcorn 2 (+10 transit)
TOTAL PITCHES ON LOCAL AUTHORITY SITES 25
Private Sites with Permanent Permission
Bigfield Lodge, Runcorn 5
TOTAL PITCHES ON PRIVATE SITES WITH PERMANENT PERMISSION 5
Private Sites with Temporary Permission
Chester Road, Daresbury 3
TOTAL PITCHES ON PRIVATE SITES WITH TEMPORARY PERMISSION 3
Tolerated Sites – Long-term without planning permission
- -
TOTAL PITCHES ON LONG-TERM TOLERATED PRIVATE SITES 0
Unauthorised Developments
- -
TOTAL PITCHES ON UNAUTHORISED DEVELOPMENTS -
TOTAL PITCHES 33
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Gypsy and Traveller Sites in Warrington Site Number of Pitches
Local Authority Sites
- -
TOTAL PITCHES ON LOCAL AUTHORITY SITES 0
Private Sites with Permanent Permission
Land Adjacent to 57 Gorsey Lane, Warrington 2
Smithfield Caravan Park, Glazebury 2
TOTAL PITCHES ON PRIVATE SITES WITH PERMANENT PERMISSION 4
Private Sites with Temporary Permission
Two Acre Caravan Park, Higher Walton 15
Woodend Farm, Rixton 1
TOTAL PITCHES ON PRIVATE SITES WITH TEMPORARY PERMISSION 16
Tolerated Sites – Long-term without planning permission
- -
TOTAL PITCHES ON LONG-TERM TOLERATED PRIVATE SITES 0
Unauthorised Developments
Grappenhall Lodge, Grappenhall 6
TOTAL PITCHES ON UNAUTHORISED DEVELOPMENTS 6
TOTAL PITCHES 26
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Appendix B: Travelling Showpeople Yards in Cheshire (April 2013)
Travelling Showpeople Yards in Cheshire East Site Number of Plots
Local Authority Yards
TOTAL PLOTS ON LOCAL AUTHORITY SITES
Private Yards with Permanent Permission
The Whites Showman’s site, Newcastle Road, Brereton 1
TOTAL PLOTS ON PRIVATE SITES WITH PERMANENT PERMISSION 1
Private Yards with Temporary Permission
TOTAL PLOTS ON PRIVATE SITES WITH TEMPORARY PERMISSION 0
Tolerated Yards – Long-term without planning permission
- -
TOTAL PLOTS ON LONG-TERM TOLERATED PRIVATE SITES -
Unauthorised Developments
Booth Lane, Sandbach, CW11 3PU 1
TOTAL PLOTS ON UNAUTHORISED DEVELOPMENTS 1
TOTAL PLOTS 2
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Travelling Showpeople Yards in Cheshire West and Chester Site Number of Plots
Local Authority Yards
TOTAL PLOTS ON LOCAL AUTHORITY SITES
Private Yards with Permanent Permission
Bradford Road, Winsford 13
TOTAL PLOTS ON PRIVATE SITES WITH PERMANENT PERMISSION 13
Private Yards with Temporary Permission
TOTAL PLOTS ON PRIVATE SITES WITH TEMPORARY PERMISSION 0
Tolerated Yards – Long-term without planning permission
- -
TOTAL PLOTS ON LONG-TERM TOLERATED PRIVATE SITES 0
Unauthorised Developments
TOTAL PLOTS ON UNAUTHORISED DEVELOPMENTS 0
TOTAL PLOTS 13
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Travelling Showpeople Yards in Halton Site Number of Plots
Local Authority Yards
TOTAL PLOTS ON LOCAL AUTHORITY SITES 0
Private Yards with Permanent Permission
TOTAL PLOTS ON PRIVATE SITES WITH PERMANENT PERMISSION 0
Private Yards with Temporary Permission
TOTAL PLOTS ON PRIVATE SITES WITH TEMPORARY PERMISSION 0
Tolerated Yards – Long-term without planning permission
- -
TOTAL PLOTS ON LONG-TERM TOLERATED PRIVATE SITES 0
Unauthorised Developments
TOTAL PLOTS ON UNAUTHORISED DEVELOPMENTS 0
TOTAL PLOTS 0
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Travelling Showpeople Yards in Warrington Site Number of Plots
Local Authority Yards
TOTAL PLOTS ON LOCAL AUTHORITY SITES
Private Yards with Permanent Permission
Liverpool Road, Warrington, WA5 1RD 2
TOTAL PLOTS ON PRIVATE SITES WITH PERMANENT PERMISSION 2
Private Yards with Temporary Permission
TOTAL PLOTS ON PRIVATE SITES WITH TEMPORARY PERMISSION 0
Tolerated Yards – Long-term without planning permission
- -
TOTAL PLOTS ON LONG-TERM TOLERATED PRIVATE SITES 0
Unauthorised Developments
Foundry Street, Warrington, WA2 7NB 2
TOTAL PLOTS ON UNAUTHORISED DEVELOPMENTS 2
TOTAL PLOTS 4