Review of Gypsy Traveller Site Provision in North Ayrshire
North Ayrshire Council · 3 June 2025
Back to Cabinet — 3 June 2025 and its agenda
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NORTH AYRSHIRE COUNCIL 3 June 2025 Cabinet Title: Review of Gypsy/Traveller Site Provision in North Ayrshire Purpose: To provide Cabinet with a progress update regarding the review of Gypsy/Traveller site provision in North Ayrshire. Recommendation: That Cabinet (i) notes progress to date; and (ii) approves the consideration of the Redburn Grove site for inclusion in the forthcoming Strategic Housing Investment Plan 2026-2031 for prioritisation alongside existing schemes, subject to funding availability. 1. Executive Summary 1.1 The Council’s General Fund currently owns and manages a 16 pitch Gypsy/Traveller site at Redburn Grove in Irvine. Each pitch has its own amenity building providing bathing and kitchen facilities (see photographs at Appendix 1). 1.2 The Scottish Government has prepared design guidance relating to the provision of accommodation for Gypsy/Travellers and the Council has consulted site tenants regarding their aspirations for the Redburn Grove site. 1.3 A draft proposal has been created for the redevelopment of the site which considered options for the site alongside the anticipated costs to the Council and tenants. 1.4 It is proposed that the site is transferred to the Housing Revenue Account (HRA). This can only be completed if there is no financial burden to existing Housing Revenue Account tenants for the works or ongoing costs. 1.5 There is currently an anticipated £3.521m funding deficit to deliver the estimated £4.320m scheme, which would be sought from a Scottish Government grant in the first instance. The Scottish Government has indicated that funding for the reprovision and redevelopment of Gypsy/Traveller sites will be available from 2026/27 through local authorities’ Resource Planning Assumptions and allocated through Strategic Housing Investment Plans. 1.6 It is proposed that Cabinet approves the consideration of the Redburn Grove site for inclusion in the Strategic Housing Investment Plan 2026-2031 for prioritisation alongside existing schemes (subject to funding availability) when new funding guidance is published.
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2. Background 2.1 The Scottish Government published Improving Gypsy/Traveller Sites in 2015 which determined that all sites should meet minimum standards and have tenancy agreements reflecting the core rights and responsibilities by June 2018. It set out landlord responsibilities in relation to: • Essential fabric standards • Energy efficiency • Facilities and amenities • Safety and security • Maintenance and repairs • Fair treatment • Consultation 2.2 The Redburn Grove site has met the quality standards described in the Scottish Government’s ‘Improving Gypsy/Traveller Sites’ since 2018. It is understood that this is a minimum standard, and the Council has continued to improve and upgrade the site in response to requests from site tenants. The Council obtained £0.074m from a £2.00m Scottish Government fund to install new kitchens and doors in amenity units and improve safety and security on each pitch by installing gates, fencing, and resurfacing, completing works in March 2022. 2.3 Housing to 2040 was published in March 2021 and announced the Gypsy/Traveller Accommodation Fund which would provide up to £20m capital funding for local authorities from 2021 to 2026. In December 2024, the Scottish Government notified the Council that the fund had closed for applications. They advised that future funding for Gypsy/Traveller accommodation will be available alongside housing funding in the Affordable Housing Supply Programme from 2026/27 onwards. 2.4 In order to ensure that the minimum standards were not seen as the benchmark, an Interim Site Design Guide for Gypsy/Traveller Sites in Scotland was prepared in December 2021 to set the direction for newly built or refurbished accommodation. 2.5 In October 2022, a Registered Tenants Group was established at Redburn Grove along with Housing Services staff, Minority Ethnic Carers of Older People Project (MECOPP) Gypsy and Traveller Support staff and the tenants of Redburn Grove. This group gives tenants the opportunity to have their say on the current and future development needs of the site and ensure they have a voice within their community. 2.6 The Council’s Local Housing Strategy 2023 – 2028 notes that North Ayrshire’s Gypsy/Traveller population has expressed their preferred housing solution as being within the Council owned site at Redburn Grove, Irvine. 2.7 The government published Improving the Lives of Scotland’s Gypsy/Travellers 2: action plan 2024-2026 in September 2024 which sets out the actions which will be taken to further support Gypsy/Traveller communities. 2.8 The government has indicated that funding for the reprovision and redevelopment of Gypsy/Traveller sites will be available from 2026/27 through local authorities’ Resource Planning Assumptions and allocated through Strategic Housing Investment Plans.
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Current Site Specification 2.9 The existing 16 pitch site is serviced by a septic tank, two metered electrical supplies and provides tenants with: • Space for two caravans or one caravan and parking for one vehicle • An amenity block comprising: o Galley kitchen o Wet floor shower room o External utility room with space for a washing machine and tumble dryer 2.10 The site also includes a community space and a Council site office. The existing space is wheelchair accessible and provides free wi-fi, as set out within the interim site design guide. 2.11 The Council has reviewed the condition of the site, in consultation with residents, and has created a draft redevelopment proposal. It is also proposed that the site is transferred to the Housing Revenue Account, subject to a value for money assessment. 2.12 The redeveloped site would create 16 new larger pitches which provide tenants with: • Space for two caravans • Parking provision for two vehicles • An external clothes drying area • Individual fenced garden / amenity space • An amenity block comprising: o Open plan kitchen / dining / living room o Double bedroom / second lounge with integrated storage space o Wet floor shower room o Utility room with space for a washing machine and tumble dryer 2.13 The costs for the revised scheme include the provision to connect the site into mains services and create individual electrical supplies for each pitch. Further site investigations including liaison with utility providers will be required to determine whether the existing water, sewerage and electrical utilities to the site can be upgraded. 2.14 To allow the scheme to progress, land acquisition is required to provide space for the additional facilities. The Housing Revenue Account would also have to acquire the existing site from the General Fund. 2.15 A £4.230m project cost estimate (£0.264m per unit) has been prepared for the draft redevelopment proposals, assuming an April 2026 site start with completion by spring 2028 (to allow for the required phasing of works due to space constraints on-site). 2.16 In order to fund the site through the Housing Revenue Account, it would have to be transferred from the General Fund with no financial burden to existing tenants for the works or ongoing costs. The proposed funding streams are noted in Table 1 below with prudential borrowing set at a level which would have a net neutral impact upon the Housing Revenue Account for works or ongoing costs. The contributions from the Affordable Housing Account and Council House Build Account align to Council projects delivered through the Strategic Housing Investment Plan. There is a £3.521m funding deficit to
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deliver the proposed site based on current assumptions. Table 1: Project funding stream assumptions Funding stream Value (£m) Affordable Housing Account £0.112 Council House Build Account £0.072 Scottish Government Grant TBC Prudential Borrowing £0.525 Funding Shortfall £3.521 Total £4.230 2.17 The costs above have been estimated assuming off site construction of the amenity units. A number of these suppliers have recently left the market/went into administration and failure to secure this type of developer for the site may result in increased costs and timescales (as it is proposed that tenants remain on site whilst works are undertaken on a phased basis). 2.18 Officers would seek to address the current funding gap of £3.521m from forthcoming Scottish Government grant provision for Gypsy/Traveller investment as part of the Affordable Housing Supply Programme. The funding gap would require a grant cost per unit significantly above current benchmark levels. Officers will engage with colleagues in Scottish Government to set out this funding challenge in the context of the forthcoming guidance. 2.19 When further clarification is available for the grant funding criteria and levels and following the conclusion of a review of the service delivery model, further engagement will be required with site tenants to discuss the impact of the scheme upon rental levels and other site costs. 3. Proposals 3.1 That Cabinet (i) notes progress to date; and (ii) approves the consideration of the Redburn Grove site for inclusion in the forthcoming Strategic Housing Investment Plan 2026-2031 for prioritisation alongside existing schemes, subject to funding availability. 4. Implications/Socio-economic Duty Financial 4.1 There is an anticipated £3.521m funding deficit to deliver the £4.320m scheme based on the assumptions contained within Table 1. A review of the current service delivery model would be required for the site to consider the proportion of the cost split between the General Fund and Housing Revenue Account and whether any efficiencies can be made in relation to these. It should be noted that the cost associated with the unauthorised encampments portion of the post would have to remain with the General Fund with no income available to offset the cost. Human Resources 4.2 As noted at 4.1 above, a review of the current service delivery model would be required.
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Legal 4.3 As noted at 2.14, land acquisition is required to provide space for the additional facilities. The Housing Revenue Account would also have to acquire the existing site from the General Fund. The Council is also required to conform with Housing Revenue Account guidance in relation to best value. Equality/Socio-economic 4.4 The provision of new housing will increase the facilities available for the resident Gypsy/Traveller community. The benefits of new build housing in relation to health, wellbeing and educational attainment, are well documented. Climate Change and Carbon 4.5 New homes should have a low environmental impact, with the aim of reducing fuel use and associated fuel costs. The project will be delivered in accordance with Building Standards regulations for energy efficiency. It will also be delivered to Section 7, Silver Level, of the 2019 Building Regulations in respect of Energy for Space Heating. New Council homes contribute significantly to the Council’s Sustainability agenda. New housing is more energy efficient, better ventilated, and has higher levels of thermal comfort, which supports improved health and well-being. Key Priorities 4.6 The provision of new affordable housing supports the Council Plan strategic priorities: ‘Wellbeing’; ‘Climate Change’; ‘A Sustainable Council’: and ‘Communities and Local Democracy’. There is also evidence that children and young people can benefit from improved cognitive development and a reduction in behavioural issues through living in a more attractive, warmer, and better ventilated environment and the provision of new affordable housing also supports the Council Plan priority that children and young people experience the best start in life. Community Wealth Building 4.7 The development of the site supports the objectives and associated actions of the Community Wealth Building Strategy. The delivery of the site will contribute to the Progressive Procurement pillar through the inclusion of appropriate community benefit clauses within the construction contract and by considering phasing and programming to support delivery by smaller scale and local contractors where appropriate. 5. Consultation 5.1 Consultation has taken place with Redburn Grove site tenants to seek their aspirations for the site and inform the draft proposals. Recent consultation has highlighted tenants’ collective opinion and views for increased investment in the site. Further consultation will be undertaken with the Redburn Grove Tenants Group, tenants and local residents as the project progresses.
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DAVID W. HAMMOND Executive Director (Communities and Housing) For further information please contact Fiona Ellis, Senior Manager, Housing Strategy and Development, on 01294 324031. Background Papers Strategic Housing Investment Plan 2025-2030
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Appendix 1: Existing Redburn Site, Irvine Existing pitch with amenity block Amenity block kitchen Astro turf to front amenity space