Gypsy and Traveller Accommodation Needs Assessment (GTAA) - Executive Summary

ES1

In February 2024, the local planning authorities of Adur District Council, Brighton & Hove City Council, Worthing Borough Council, and the South Downs National Park Authority (SDNPA) commissioned RRR Consultancy Ltd to undertake a Gypsy and Traveller Accommodation Assessment (GTAA) for the period 2024 to 2042. 

The primary aim of the GTAA is to assess the accommodation needs of Gypsies, Travellers, and Travelling Showpeople. This will be in the Brighton & Hove, Adur, and Worthing local planning authority areas, the parts of the SDNPA within those local authority administrative areas, as well as in the parts of the National Park not covered by an up-to-date GTAA, specifically the Chichester and Arun districts (the ‘study area’), in compliance with PPTS. 

Additionally, the GTAA incorporates and updates the accommodation needs from previously conducted GTAAs for areas within and outside the South Downs National Park (see Chapters 5, 6 and 7).

ES2

The GTAA acknowledges that there are ‘van dwellers’ residing in the study area. Van dwellers are individuals or households who live in vehicles, such as vans, converted trucks, or motorhomes, as their primary residence. 

Unlike members of the Gypsy, Traveller, or Travelling Showpeople communities, van dwellers typically do not adhere to a nomadic or culturally distinct lifestyle tied to historical traditions. 

Various factors, including economic necessity, lifestyle preferences, or a desire for mobility and flexibility, can drive their choice of living in vehicles. 

Van dwellers often reside on the outskirts of cities, rural areas, or temporary sites and may not be formally recognised within traditional planning or accommodation assessments.

ES3

This assessment focuses specifically on members of the Gypsy and Traveller communities (including ‘New Travellers’) and Travelling Showpeople. Anecdotal evidence from stakeholder consultations indicates that most van dwellers do not fall into these categories and are therefore not included in the main assessment. However, they are considered in the stakeholder consultation discussed in Chapter 4 and are addressed in the recommendations.

ES4

This report identifies the accommodation needs for Gypsy and Traveller pitches (Chapter 5) and Showpeople plots (Chapter 6) within the SDNP local planning authority (LPA) area and provides a breakdown for each council's administrative area, including (commissioning local authorities asterisked):

• Adur*
• Arun
• Brighton and Hove*
• Chichester
• Worthing*
• East Hampshire
• East Sussex (Lewes)
• Horsham
• Mid Sussex
• Winchester

ES5

The accommodation needs for Gypsy and Traveller pitches (Chapter 5) and Travelling Showpeople plots (Chapter 6) are assessed for the commissioning local planning authority areas outside of the SDNP LPA:

• Adur
• Brighton and Hove
• Worthing

ES6

The results will be used as an evidence base for policy development in housing and planning and supersede any previous GTAA (including any levels of accommodation needs calculated prior to this assessment) published for the study local planning authorities. The base date for the report is August 2024.

ES7

The requirement to assess the accommodation needs of Gypsies and Travellers, and Showpeople, is established through national guidance contained in ‘Planning Policy for Traveller Sites’ (PPTS) (Ministry of Housing, Communities and Local Government (MHCLG), December 2024). 

As discussed further in Chapter 2, PPTS 2024 (see paragraphs 2.3 to 2.8) retains the definition of Gypsies and Travellers used in the PPTS 2023 (this change was in response to a Court of Appeal judgment in the case of Smith v SSLUHC & Others (October 2022). 

PPTS 2024 requires local planning authorities to assess the accommodation needs of Gypsy, Traveller, and Travelling Showpeople households who have either a cultural tradition of nomadism or a cultural tradition of living in a caravan.

ES8

To achieve the study aims, the research drew on several data sources including:

• review of secondary information:
  • a review of national and local planning policies and recently undertaken GTAAs, and analysis of secondary data - this included analysis of the most recently published (January 2024) Ministry of Housing, Communities and Local Government (MHCLG) Traveller Caravan Count to determine trends in the population of Gypsies, Travellers, and Travelling Showpeople
• an online survey, and interviews with key stakeholders providing qualitative data regarding the accommodation needs of Gypsies, Travellers, and Travelling Showpeople
• extensive surveys of Gypsies and Travellers, and Travelling Showpeople covering a range of issues related to accommodation needs concerning accommodation needs within SDNP LPA in:
  • Adur
  • Arun
  • Brighton and Hove
  • Chichester
  • Worthing
• analysis of existing GTAAs for remaining local authorities covered by the SDNPLPA:
  • East Hampshire
  • East Sussex (Lewes)
  • Horsham
  • Mid Sussex
  • Winchester
• Comprehensive surveys of Gypsies, Travellers, and Travelling Showpeople addressing various accommodation needs in the commissioning local planning authority areas outside the SDNP LPA in:
  • Adur
  • Brighton and Hove
  • Worthing

ES9

The above provided an extensive range of quantitative and qualitative data enabling a robust and reliable assessment of accommodation needs.

ES10

On 12 December 2024, the government announced changes to Planning Policy for Traveller Sites (PPTS), previously updated in December 2023. Like the 2023 update, the 2024 version will be read with the National Planning Policy Framework (2024).

ES11

Whilst it is clear that PPTS 2024 determines the need to assess the accommodation needs of households who have ceased to travel temporarily or permanently due to their family’s or dependants’:

• educational or health needs
• old age
• ceasing travel
• tradition of living in a caravan

It does not explicitly state how the new definition should be interpreted concerning other factors such as whether families travel for economic or work purposes.

ES12

Given differences in defining Gypsies and Travellers, this GTAA provides two accommodation needs figures: 

• first - based on the ethnic identity definition
• second - based on the PPTS 2024 definition

The two accommodation needs definitions are discussed in more detail in Chapter 2

ES13

In March 2016, the Department of Communities and Local Government (DCLG) published its Review of housing needs for caravans and houseboats: draft guidance to local housing authorities on the periodical review of housing needs for caravans and houseboats. 

It states that, when considering the need for caravans and houseboats, local authorities must include the needs of a variety of residents in differing circumstances including, for example, caravan and houseboat dwelling households and households residing in bricks and mortar dwelling households. 

It should be noted that this GTAA does not consider the accommodation needs of houseboats. 

ES14

According to the NPPF (2024) and related planning practice guidance, a sound local plan seeks, as a minimum, to meet the area’s objectively assessed needs, and address the needs of groups with specific housing requirements. 

The NPPF (2024) refers to the need to both assess and then address the accommodation needs of those who are ethnically recognised Gypsies and Travellers (as in line with the Equality Act 2010), both of whom are covered by the definition of the PPTS 2024, and those outside of the definition.

ES15

The 2021 Census suggests there were 1,405 people recorded as Gypsies and Travellers residing in the West Sussex and Brighton & Hove area. This represents around 0.12% of the usual resident population. This is slightly above the average for England of 0.11%. 

A fifth (20%) of Gypsy and Traveller households who completed the 2021 Census reside in a caravan or mobile home, with the remaining four-fifths (80%) residing in bricks and mortar accommodation.

ES16

There were 553 caravans recorded in West Sussex and Brighton & Hove by the January 2024 Caravan Count. The 553 caravans recorded in January 2024 included:

• 260 (47%) on private pitches
• 175 (32%) on social rented pitches
• 118 (21%) on unauthorised pitches

In relation to density, Crawley and Worthing did not record any caravans as part of the Government’s January 2024 Traveller Caravan Count. Brighton & Hove recorded 10 caravans per 100,000 population. Mid Sussex 21, Arun 22, Adur 25, Horsham 111, and Chichester 224.

ES17

On average, over half (53%) of authorised caravans recorded in West Sussex and Brighton & Hove from July 2021 to January 2024 were in Chichester, a quarter (25%) in Horsham, and a tenth (10%) in Arun. Smaller proportions were recorded in Mid Sussex (8%), Brighton & Hove (7%), Adur (4%), and Worthing (0%).

ES18

West Sussex County Council and Brighton & Hove City Council keep detailed records of unauthorised encampments. 

There were 151 unauthorised encampments recorded between Quater 1 (April to June) 2021 to 2022 and Quater 4 (January to March) 2023 to 2024. 

On average, 13 unauthorised encampments per quarter were recorded in the study area, with a minimum of no unauthorised encampments taking place in Quater 3 2021 to 2022 and Quater 4 2022 to 2023, peaking at 38 unauthorised encampments recorded in Quater 1 2021 to 2022.

ES19

The number of unauthorised encampments recorded in the study area declined between Quater 1 2021 to 2022 and Quater 4 2023 to 2024. 

On average, each unauthorised lasted 5 days and consisted of 8 vehicles. Just under a third (30%) of unauthorised encampments took place in Brighton & Hove, around a quarter (26%) in Chichester, an eighth (13%) in Arun, a tenth (10%) in Horsham, and smaller proportions in Worthing (9%), Adur (7%), and (4%) in Mid Sussex.

ES20

Consultations using an online survey with a range of stakeholders were conducted to provide qualitative information about the accommodation needs of Gypsies, Travellers, and Travelling Showpeople.

ES21

The primary accommodation challenges for Gypsies, Travellers, and Travelling Showpeople in the local area stem from a significant shortage of available sites, both permanent and temporary, which hampers families' ability to establish a stable living environment. 

As more residents express a desire to transition from nomadic traditions to a settled lifestyle, the difficulty of securing plots on local authority sites becomes increasingly evident due to high demand and limited provisions. 

ES22

Internal family growth and external pressure drive the demand for new accommodations. Natural expansion within households creates a growing need for additional pitches, which current supplies cannot meet. 

Family cohesion is culturally vital, with young families traditionally setting up homes near their parents. This practice requires new pitches or larger plots to accommodate growth within localities, facilitating better access to essential services like education and healthcare.

ES23

Tables ES1 to ES4 summarise the permanent accommodation needs for Gypsy and Traveller pitches from 2024 to 2042. Tables ES5 and ES6 cover the accommodation needs for Travelling Showpeople.

It is important to note that the figures in these tables include all identified needs as of 2024, including those from previous GTAAs that have not yet been met by the time of this assessment. 

The ethnic need refers to all members of the Gypsy and Traveller communities, with the PPTS need being a subset that includes only those who meet the PPTS definition within the ethnic group.

ES24

Gypsies and Travellers: within the SDNP LPA

Table ES.1 - Gypsy and Traveller permanent accommodation needs (per local authority) based on ethnic status

Table ES.2 - Gypsy and Traveller permanent accommodation needs (per planning authority) based on PPTS definition

ES25

Gypsies and Travellers: outside the SDNP LPA Table 

ES.3 - Gypsy and Traveller permanent accommodation needs (per local planning authority) based on ethnic status

Table ES.4 - Gypsy and Traveller permanent accommodation needs (per local planning authority) based on PPTS definition

ES26

Travelling Showpeople within SDNP LPA

Table ES.5: Travelling Showpeople permanent accommodation needs (plots)

ES27

Travelling Showpeople outside the SDNP LPA

Table ES.6 - Travelling Showpeople permanent accommodation needs (plots)

ES28

Whilst recognising the existing transit provision within the study area, it is recommended that the local planning authorities adopt a negotiated stopping policy.

This involves caravans being sited on suitable specific pieces of ground for an agreed and limited period, with the provision of limited services such as water, waste disposal and toilets. 

The advantages of this approach are set out in detail in Chapter 7.

ES29

There is an overall accommodation need in the study area over the period 2024 to 2042 as follows

Table ES.7 - Gypsy and Traveller accommodation need for permanent pitches within SDNP

ES30

Gypsy and Traveller pitches within commissioning authorities outside of SDNP

Table ES.8 - Gypsy and Traveller permanent accommodation needs (per local planning authority) based on ethnic status

Table ES.9 - Gypsy and Traveller permanent accommodation needs (per local planning authority) based on PPTS definition

Table ES.10 - Travelling Showpeople accommodation need for permanent plots within SDNP

Table ES.11 - Travelling Showpeople plots within commissioning authorities outside of SDNP

ES31

This GTAA recommends adopting the ‘ethnic’ definition accommodation needs figures, i.e meeting the accommodation needs of all households who ethnically identify as Gypsies and Travellers. 

This will not only demonstrate knowledge of the overall accommodation need of all Gypsies and Travellers, but also how the accommodation needs in relation to households not meeting the PPTS definition are being addressed.

ES32

It is also recommended that the local planning authorities consider the accommodation needs that might materialise over the plan period from households (Gypsies, Travellers and Travelling Showpeople), i.e. following the publication of this assessment. 

This could include households residing on unauthorised developments, unauthorised encampments, new households due to in-migration, and those residing in bricks and mortar accommodation and van dwellers. 

This accommodation need should be considered separate to the need identified below and could be met through windfall applications.

ES33

In addition to the above in order to meet the specific accommodation need of the different community groups, the report recommends the following:

• in relation to the different community groups, it is recommended that the local planning authorities work closely with the families to determine how their accommodation need can best be met
• also, for the local planning authorities to provide pre-planning application advise to households who have identified land to help determine if it is suitable to address accommodation need
• it is recommended that the local planning authorities review the planning of unauthorised developments and consider granting permanent status

ES34

As well as quantifying accommodation need, the study also makes recommendations on other key issues for the respective councils to individually and collectively to consider, including:

• in relation to Gypsies and Travellers and Travelling Showpeople it is recommended that the local planning authorities work closely with the families and individuals to determine how their accommodation need can best be met
• also, for the local planning authorities to provide pre-planning application advice to households who have identified land to help determine if it is suitable to address accommodation need
• in order to meet the accommodation needs of Showpeople, it is also recommended that the local planning authorities work closely with households on the unauthorised developments to address their current and future accommodation needs
• it is recommended that the local planning authorities review the planning of unauthorised developments and consider granting permanent status
• to identify a range of specific sites in sustainable locations of up to 15 to 20 pitches or plots in size to be developed only for Gypsy and Traveller and Travelling Showpeople
• to consider how the accommodation needs can be met by expanding existing provision and/or providing new sites or yards
• to consider alternative options for developing new sites and yards such as developing them on a cooperative basis for example, community land trust, shared ownership, or small sites owned by a local authority but rented to families for their own use
• to consider alternative site funding mechanisms such as:
  • site acquisition funds
  • loans for private site provision through Community Development Financial Institutions
  • joint ventures with members of the Gypsy and Traveller, and Showpeople communities
• prior to action being taken against sites or yards being used without planning permission, the local planning authorities, in partnership with landowners, occupants and relevant agencies (for example Showmen’s Guild and National Federation of Gypsy Liaison Groups), to review its current, historic and potential planning status, and review the most effective way forward
• to consider safeguarding Gypsy and Traveller site and Travelling Showpeople yards with permanent planning permission for their current use unless it can be demonstrated that they are no longer needed to meet identified need
• to review the planning and license status of sites not occupied by Gypsies and Travellers and determine if it is better to change their status to residential or reuse them for Gypsies and Travellers - implement a corporate policy to provide negotiated stopping arrangements to address unauthorised encampments for set periods of time at agreed locations
• to liaise with owners of the sites and yards to determine how they could expand the number of pitches to meet the family’s accommodation needs
• housing organisations need to consider the type of housing allocated to Gypsies and Travellers residing in bricks and mortar to minimise psychological aversion and feelings of isolation
• to respond to the needs of van dwellers by adopting policies implemented by other local authorities such as:
  • implementing a "Vehicle Dweller" policy, dividing encampments into high and low-impact categories
  • creating temporary stopping places with access to basic amenities, such as toilets and waste disposal, that would provide van dwellers with essential services while helping to regulate where they can stay
  • establishing designated parking zones for van dwellers, especially in areas where there are fewer complaints from residents
  • conducting regular welfare assessments to identify van dwellers' needs, especially those facing homelessness or health issues
  • developing clear guidance and policies specific to van dwellers, similar to the more established frameworks for Gypsies and Travellers
• develop a holistic vision for their work on Gypsies, Travellers, and Showpeople communities (including van dwellers) and embed it in Community and Homelessness Strategies, Local Plans and planning and reporting obligations under the Equality Act 2010
• provide training and workshop sessions with local authority and service provider employees (and elected members) to help them to further understand issues relating to the Gypsy and Traveller, Travelling Showpeople communities and van dwellers
• in liaison with relevant enforcement agencies such as the police to develop a common approach to dealing with unauthorised encampments
• encourage local housing authorities to include Gypsy and Traveller categories on ethnic monitoring forms to improve data on population numbers, particularly in housing
• better sharing of information between agencies in relation to Gypsy, Traveller, and Travelling Showpeople communities (including van dwellers)
• the population size and demographics of the Gypsy, Traveller, and Showpeople communities can change - as such, their accommodation needs should be reviewed every 5 to 7 years