Draft guidance for designing Gypsy and Traveller sites - Chapter 3: site design

This chapter details the crucial components of a local authority site which should be considered whenever designing a site. 

Local authorities should consult with community members within their authority area to understand the needs of individual families for mobile home sites. Where there is a proposal to include individuals from different ethnic groups or cultural backgrounds on the same site, local authorities should specifically ask those affected  whether they have any concerns about such an arrangement before progressing plans for new or extending existing sites.

This guidance does not set minimum or maximum pitch numbers for sites. Each site will need to be considered in the context of its own particular circumstances. The size of sites in terms of pitch numbers is best determined by local need, planning permission and through engagement with local communities. However, anecdotal evidence suggests that smaller sites may be easier to manage and are more likely to attract compatible family units.

A local authority may consider it appropriate to have a bigger site in certain circumstances, but this should not adversely affect the well-being of site residents, and should also be subject to consultation and engagement with all those intending to live at the site, and where practicable, the wider community.

A local authority may consider it appropriate to have a higher number of pitches on a site where there are exceptional circumstances and where this would not adversely affect the well-being of residents, but this should be subject to consultation and engagement with all those intending to live at the site, and where practicable, the wider community.

A larger site may be considered appropriate in order to keep a large community together, say if households are being re-located from an unsustainable existing site, or where there is a lack of suitable land or high levels of unmet pitch need within a local authority area.

A number of factors will have to be taken into account when deciding upon the physical layout of the site. These include: the number of families to be accommodated, type and location of facilities or amenities, access issues and the environment and aesthetics of the land to be developed. The ethnic, cultural or family groupings who are resident on the site may also give rise to particular design considerations. For example, where sites are to be shared by different communities a ‘tree branch’ design may be preferable to a ‘circular’ design (see Annex 2). The critical point is that any design should be done in consultation with the proposed residents.

Where possible, the physical layout of the site should take into consideration the specific preferences of site residents or potential site residents. Site orientation should also be considered in order to maximise renewable energy generation and benefit energy efficiency. Consultation with proposed residents can ensure the local authority fully understand current and future needs, for example, by identifying in good time any children who are likely to soon reach an age to need a pitch of their own, or families doubling up on pitches.

Ensuring a degree of privacy and safety on sites is essential for residents. There is a balance to be struck between providing the right level of privacy while ensuring a sense of community is maintained.

Local authorities should consider ways to retain the feeling of community on sites, which is an important part of the culture of living on sites. A circular design may mirror the traditional camp design more closely and would generally suit sites of 12 pitches or less. The circular layout may be impractical for larger sites.

Landscaping sites will help to create an attractive environment in which to live. Where possible, the local authority should seek to provide natural rather than artificial solutions to creating boundaries. For example, local authorities should consider planting native species as screening around site perimeters instead of using high concrete walls.

Providing trees t create a perimeter boundary around the site will keep the site area clearly defined. It will also help keep sites private, as appropriate.

Local authorities should ensure they have analysed findings from the Caravan Count data collection and the GTAA to ascertain any location preferences identified by Gypsy and Traveller community members or any areas of frequent encampments. This analysis and continued ongoing engagement with Gypsy and Traveller community members can be very helpful to support discussions around identifying suitable site locations.

Model Standard 2008 requires a local authority to clearly illustrate the site layout and structures. When identifying locations for a local authority site, the preferences of community members should be considered as part of the local authority assessment process. However, local authorities may not be able to secure sites in any specific locations requested by community members. It is recognised other factors such as availability of land, site sustainability and achievability of planning permission will also have to be considered. Good relationships with community members will help ensure they feel heard and that they are an active part of decision-making processes. Good relationships will also aide understanding and acceptance where local authorities are unable to achieve all the goals of the community.

Gypsies and Travellers may have longstanding connections to a specific area of a local authority and may wish to be accommodated there. Local authorities should take account of these views, especially where these relate to continued registration with local services with experience and expertise of engaging with these communities or when connected to education or work opportunities. However, local authorities should also consider the long-term impact of any concentration of pitches/sites in one particular part of the authority area. It is important the provision of large or multiple sites in one area does not create spatial segregation of these communities. If a location is considered inappropriate for conventional housing use for any reason, it also is also likely to be inappropriate for a local authority site.

Early engagement with potential residents and with the Welsh Government should take place before plans are too far advanced.

When seeking to identify a suitable location for a site, local authorities should consider the following general themes:

Access

Local authority residential sites should be located with access to public roads and footpaths leading to the site. Although access to public transport would be ideal, it may be unrealistic for any sites in rural settings.

Sustainability and suitability of land: local authorities must consider issues of sustainability when identifying suitable permanent site locations. Any site should be available for use as a local authority site in the long-term (at least 21 years) with an expectation that large scale buildings such as shower blocks would need regular maintenance but not full-scale demolition and reconstruction within that time frame. The local authority must establish whether the site is at risk from flooding by referring to the Environment Agency’s Flood Map. Where there is risk from flooding the local authority must consult the Environment Agency for advice on the likelihood of flooding, the depths and velocities that might be expected, the availability of a warning service and to take appropriate measures.

Sustainability considerations should include the environmental condition of the land, for example discounting land built on flood planes, toxic land or landfill sites. A site survey must be undertaken which will identify possible problems such as drainage, risk of flooding, contaminated land etc. Local authorities should consider whether remediation work to resolve any problems is financially viable. Mobile homes are considered to be highly vulnerable to flooding so sites should not be situated in C2 flood zones. Locations in C1 flood zones should be subject to a justification test.

Local services

The location of a site should also enable, not hinder, access to services such as health and education. Ideally, any site would be located a reasonable distance from education settings, health services and shops. If a site is located, or is going to be located, in a rural area, this may not be achievable in many instances, though mitigation can be considered such as bringing health visitors on site on a regular basis. Local authorities must comply with the Learner Travel (Wales Measure) 2008 (as amended) and associated guidance. For further details please see the Learner Travel guidance.

Environment

The safety of residents, including their children, is the most important priority. Sites should not be located next to potential hazards such as rivers or canals, unless appropriate safeguards can be put in place. Locating sites next to industrial sites or major roads should be carefully considered, and may require monitoring of noise and air quality and resultant design measures to reduce any adverse impact. Mitigating against impacts may be cost prohibitive in the long run, and all necessary environmental assessments should therefore be carried out before deciding where to locate a site.

Utilities

Water, electricity, sewerage, drainage and refuse disposal must be provided on all sites. This may require consultation with utility providers to ensure any essential criteria for new connections on a proposed site are achievable. Local authorities should think about the likely costs to be imposed on residents by of utility providers and, wherever possible, the implications around commercial and residential tariffs.

All sites should have traffic calming measures leading into and through the site.

All roads should have clearly displayed signs requesting cars to slow down for site access. Internal roads should also have signs at regular intervals requesting drivers to slow down and speed-limiting ramps where appropriate.

Good quality roads which are capable of withstanding heavy vehicles should be constructed and maintained by the site owner. New roads must be constructed and laid of suitable bitumen macadem or concrete with a suitable compacted base. Roads should be wide enough to allow mobile homes access on low loader vehicles. Two way roads must not be less than 3.7 metres wide, or if they are designed for and used by one way traffic of 3 metres wide.

The design of roads leading to and through a site must allow clear access for emergency vehicles. No mobile homes must be stationed within 2 metres of any road or communal car park within the site or more than 50 metres from such a road within the site. Cable overhangs must meet the statutory requirements. Roads must not have overhead cables less than 4.5 metres above the ground. Vehicular access and gateways to the site must be a minimum of 3.1 metres wide and have a minimum height clearance of 3.7 metres.

Local authorities may wish to provide only one access point to the site to prevent non-residents using the site as a through road. A speed-ramp near to the entrance to the public road may help to ensure a reduction in vehicular speed once on the site. If the site is a tree / cul-de-sac layout there should be adequate turning space to accommodate large vehicles such as fire engines, ambulances, refuse lorries and, of course, large vehicles used by the residents. The local authority may wish to liaise with the local Police force to ensure the proposed design of any new or extended site aligns with Secured by Design principles. The site should be connected to the local community by means of a footpath where possible. Local authorities should include internal pathways of at least 0.9 metres in width, especially where children may play or on any route to a play area on the site. On sites with a tree layout, alleyways connecting cul-de-sacs should be avoided to ensure the privacy and well-being of residents.

Residents will be aware to be cautious when driving on to and around the site due to the possibility of children playing. However, visitors to the site may not realise the potential danger and therefore warning signs should be placed at the entrance to the site and throughout warning drivers of the presence of children. On sites with a circular layout, a one-way system is recommended for vehicles, which should be marked by one-way signs or painted arrows on the road. This will make traffic flow more predictable and help keep children safe.

Installing a site entrance barrier could be considered, following consultation with site residents. An entrance barrier may make site residents feel safer, but local authorities should also consider how emergency services may access the site if a barrier is put in place, as set out in Welsh Government’s Technical Advice Note 12.

The boundaries of the site from any adjoining land must be clearly marked by a man made or natural feature. Care should be taken to integrate the boundary treatment of the site into the local environment. The aim should be to achieve a balance between securing the boundaries and maintaining a pleasant and more open environment on site.

The health and safety of children should be a priority when considering boundary arrangements. Site boundaries should be constructed in a way which will minimise the risks to children playing. There should be a 3-metre gap within the inside of all site boundaries as a fire prevention measure. See Model standards 2008 for caravan sites in Wales.

The local authority must consult the local fire and rescue authority regarding the planned measures to prevent and detect fire on the proposed site and the planned means to fight the fire before opening a site to any residents. See Section 56(4) of the Mobile Homes (Wales) Act 2013.

It is important to differentiate between public and private spaces on the site and pitch boundaries should be clearly marked, particularly as maintenance responsibilities of site owners and residents differ in relation to pitches and communal areas.

Different materials can be used to define boundaries, such as planting or low walls. Where natural features exist it would be helpful to integrate these into the design of the site. Fences and hedges, where allowed and forming the boundary between neighbouring caravans, must be a maximum of 1 metre high.

Each pitch should have a secure lockable gate. This will enable pitch residents to secure their own pitches. The gates should be of a robust and pleasant design and not be excessively imposing. It is recommended gates are designed to prevent pets or small children escaping from the pitch. Gates should be at least 3.1 metres wide.

The layout of the pitch will depend on the overall site design. However, an important element in the design and size of pitches is the intended capacity. Gypsies and Travellers traditionally have larger families living together than the settled community and so there is likely to be more of a demand for larger well-designed family sized pitches. In addition, adequate space will be needed for vehicles capable of towing caravans. Consideration should also be given as to the practicality of providing sufficient space on the site for large vehicles which may be used by residents for their employment.

As a minimum, each pitch should be capable of accommodating an amenity block, a mobile home, touring caravan and parking for two vehicles. Section 60 of the Mobile Homes (Wales) Act 2013defines a ‘mobile home’ as a structure measuring up to 20 metres in length and 6.8 metres in width. Parking spaces should be a minimum of 2.4 x 4.8 metres each.

It is important to ensure that the orientation of the pitch allows for a degree of privacy for individual residents without inhibiting a sense of community. Providing clear pitch boundaries which are not excessively high will support this. Not placing footpaths directly behind a pitch will also support household privacy and help safeguard residents.

Pitches should provide:

• an amenity block connected to water supply, electricity and other services/facilities
• a hard surfaced level area with drainage falls
• an easily cleaned and maintained surface
• a suitable container for domestic refuse - where communal refuse bins are provided these must be non-combustible and housed within a properly constructed bin store. All refuse disposal must be in accordance with all current legislation and regulations
• electricity hook-up points which allow for the different positioning of mobile homes within the pitch
• a way of securing mobile homes to the pitch during high winds, such as steel rings laid in concrete
• hook up to drains and sewerage systems
• space for drying clothes

Every pitch must stand on a concrete base or hard-standing. The base must extend over the whole area occupied, and must project a sufficient distance outwards from its entrance or entrances to enable residents to enter and leave safely. The hard standings must be constructed to the industry guidance, current at the time of siting, taking into account local conditions.

Local authorities will be responsible for repairing the hardstanding if it becomes damaged in future, so it is important this is considered when first building this. Where possible, some soft landscaping is also recommended for each pitch.

Each pitch must have an amenity block which must be constructed or refurbished to meet the requirements of current building regulations, regulations and standards made by the Institution of Engineering and Technology, and the requirements of the relevant water company. Detached or semi-detached designs should be used where possible. A residential appearance is likely to enhance the look of the pitch and the general aesthetic of the overall site. Local authorities will be responsible for any repairs on the amenity blocks.

Amenity blocks should include a separate WC with a sink unit for hand washing which is accessible through a lobbied room. Baths with overhead showers are also recommended. The block should also include a storeroom, a kitchen and food preparation area and a small dining area for the family. The diagram at Annex 3 provides an example illustration of how this could be designed. The minimum recommended floor space of an amenity block is 23m2.

Local authorities should consult with the prospective residents of the site before finalising amenity block plans. Residents may prefer showers to baths or to have slightly differently sized rooms. Local authorities will also be aware of their duties to make reasonable adjustments for residents with a disability under the Equality Act 2010. In particular, where a physical feature of a site puts a disabled person at a substantial disadvantage in comparison with persons who are not disabled, the local authority must take reasonable steps to avoid the disadvantage to the disabled person. In order to future-proof sites, it is recommended that amenity blocks are designed in such a way that will allow for adaptations to be made to accommodate any future residents with a disability or with any other particulars needs where possible.

The construction and layout of the amenity block should take into account that adaptations may be required for some residents, for example those using a walking aid or wheelchair. All new blocks should have access ramps rather than steps (or both). Further adaptations may be required to amenity blocks which are to be allocated to residents with a disability.

Local authorities should consider replacing any steps on amenity blocks with small ramps on existing sites. Internal walls in bathrooms and WCs should be capable of holding support aids. Basic aids can also be fitted to allow flexibility of use. Local authorities may wish to apply for the Disabled Facilities Grant to fund required adaptations.

To accommodate wheelchairs, prams and walking frames, main entrances, doorways and passageways should have a minimum width of 0.8 metres, 0.75 metres and 0.9 metres respectively.

Blocks should have adequate water supply including hot water which can be thermostatically controlled. Bathrooms should be well screened and walls should be tiled where there are showers or baths. Plumbing for a washing machine/dryer should be installed and electrical points for a cooker/washing machine/drier. Additional electrical sockets should be provided throughout the block. The block should be connected to a sewer or other suitable drainage disposal system.

The food preparation/cooking area should have adequate storage space for food stuffs and other household items. A sink and drainer should also be fitted. There should be room for additional appliances such as microwaves. The internal design should allow as much natural light in as possible as the residents may spend a considerable amount of time in the dining area. The storeroom should be lockable to ensure cleaning products or other hazards can be kept out of reach of children.

Local authorities should explore cost effective energy efficiency systems for amenity blocks. Solar panels could be provided on amenity blocks to provide photo-voltaic heating. Environmentally-friendly waste systems and rainwater harvesting could also be considered. To ensure the blocks are energy efficient, water tanks and pipes should be insulated to retain heat and prevent frost damage. Each room should have an economical heating system which allows for temperature control.

All precautions should be taken to ensure electrical sockets and other fittings and fixtures are child proofed, such as rounded work surfaces. All fixtures and fittings should be robust, durable and hardwearing but domestic in nature. The intention should be to create a safe but comfortable environment. Local authorities should also consider compliance with Secured by Design principles when designing new amenity blocks.

A gap of 3 metres must be maintained between a mobile home and any site boundary. The measurement should be taken from the mobile home wall. Each individual mobile home must be spaced at a distance of no less than 6 metres from any other mobile home for fire safety reasons and to ensure privacy from neighbouring households.