Gypsy/Traveller sites - interim site design guide: supplementary material

2. Decanting Residents

The information in this section summarises experiences and learning on different projects. It was gathered at an event held at Tarvit Mill in Fife in September 2023 and through feedback from local authorities and residents as the projects have progressed.

Decanting describes the process for temporarily rehousing residents who live on a site while demolition/construction work takes place or while major work to existing accommodation is carried out. This requires a range of council departments to work together and is likely to be a difficult process for some residents, as they leave their old homes.

Local authorities have taken a range of approaches to decanting residents, depending on site circumstances, the preferences of residents and availability of alternative accommodation. Some residents have moved to temporary accommodation on site while others have moved into mainstream accommodation on a temporary basis. In Fife, the GTAF provided funding for decant pods on site. While approaches have varied, decant has presented challenges for all projects and some themes have emerged.

2.1 Consider the possible options available

Consider the possible options at an early stage and discuss with residents. Make sure you have all of the departments and skills that you need working together from the start. This might include housing, solicitors, welfare rights etc. Bear in mind you may need a mixed approach to meet the needs of different residents or because of available space. Be aware that people’s circumstances may change e.g. due to health or family changes. It is a good idea to take opportunities to build in flexibility if practical and affordable, to be able to react to changing circumstances. Options may vary depending on the work to be undertaken e.g. a complete demolition and rebuild may need to be treated differently to smaller scale improvement works. The decant option may influence the programme and cost of the project and these need to be balanced with the needs of residents.

Some options for decant accommodation are:

• residents make own arrangements e.g. go travelling/stay with family
• decant into mainstream housing on a temporary basis
• decant into temporary accommodation onsite, either all at once or in phases
• relocation to another Gypsy/Traveller site, possibly in a neighbouring authority, depending on resident views
• set up a temporary site elsewhere - there could be a chance to work with neighbouring authorities e.g. to establish a decant site that might be used as a transit site in the longer term
• decant to a caravan site e.g. holiday site

2.2 Decants to a site

Things to consider:

• don’t underestimate the challenge of finding suitable land
• the Minimum Standards for Gypsy/Traveller Sites and fire safety regulations apply to a decant site
• decants on site can have an impact on the length of the programme
• if temporary accommodation/amenity blocks are required for a decant site, what form will it take, how will you source this, how long will it take to arrange
• decant accommodation needs to meet the needs of residents and be culturally appropriate e.g. it is not culturally appropriate for families to share toilets and showers with other families, space/facilities are needed to dry clothes, there may be accessibility requirements
• consider any additional groundworks that may be required to site the temporary units or to create access and the lead time to deliver these
• consider any health and safety implications from construction for any on-site decant e.g. the impact of dust and noise on site, children need a safe area to play, residents need easy access/exit from pitches and the site in general
• a robust traffic management plan should be developed and signed off by a suitably qualified Construction (Design and Management) (CDM) Advisor if residents are to remain on site
• if using a caravan site, it is important to ensure that the facilities are adequate and are culturally appropriate e.g. will residents need provision of a decant caravan/residential - a meeting between the council, site owner and residents prior to the decant may help

2.3 Decants to housing

Things to consider:

• how much mainstream accommodation will you need - size of houses, location e.g. close to school children are attending, proximity to other site residents, any medical issues or adaptations needed, a garden to give access to outdoor space or for pets, access to local services
• housing officers and residents should work together to identify suitable properties, with viewings carried out with residents to assess suitability
• make sure departments in the council are joined up and working together e.g. housing and property/repairs working together so that residents can move to decant properties on time
• what will be supplied with properties e.g. floor and window coverings, furniture, white goods (caravans have fitted white goods, seating etc that cannot be removed) - check if there is a need for financial support to furnish tenancies
• how will a resident manage additional costs they may incur e.g. higher heating costs
• what are the implications for parking if families have a number of vehicles, e.g. work vans
• access to public or school transport for families with children who either don’t have the ability to drive or no access to a vehicle
• some residents may find staying in mainstream accommodation difficult – see section 2.8 below on communication and support

2.4 Decant tenancy agreements

Things to consider:

• from a Housing team point of view ‘temporary transfer’ or ‘alternative tenancy’ is a more relevant term, not ‘decant’ - terminology needs to be clear when communicating to all team members and residents
• early engagement with solicitors on the type of tenancy to be provided, local authorities have taken different approaches
• changes in tenancy must be put in writing by mutual consent - it might be necessary to take advice on ending tenancies, depending on the situation
• Fife Council exempted indicators in the Scottish Housing Regulator (SHR) technical guidance for the void property that is being used for decant rather than voiding the tenanted property on the site - this is only of benefit if the tenants are returning to their existing property/pitch, which may not always be the case. Advantages of this approach are:
  • there is no requirement for the tenant to terminate their tenancy to ‘void’ their permanent address when being decanted – this in turn, helps alleviate any concerns that the tenant may not be permitted to return to their tenancy/pitch once works are carried out
  • tenants continue to pay rent for their permanent address/pitch, avoiding any variations in rent charged for differing property sizes
  • it means that the decanted tenant does not have rights at the decanted address which can be an issue with managing decant processes in mainstream tenancies
  • no requirement to change address for benefits entitlements so no delays in receiving benefits that can be encountered with a change of circumstances, otherwise tenants would have to do this twice – once when terminating and moving to the decant property and again when terminating the decant property and moving back to the site

2.5 Key points at the planning stage

Things to consider:

• planning for a decant well in advance is critical, don’t underestimate how long it will take
• joint working throughout consultation and decant process with third sector organisations that have experience of supporting Gypsy/Traveller communities may be beneficial
• to help with continuity and trust, consider keeping the Housing Officer assigned to the site as the Housing Officer for all the residents regardless of where they are staying during the decant, working alongside the Tenant Participation Officer or Gypsy/Traveller Liaison Officer if applicable or appoint a dedicated Tenant Liaison Officer for the project
• make a plan for the accommodation needed well before the decant date - ask all the necessary questions about what residents need, if residents are using their own caravans on a decant site will they also need additional amenity facilities e.g. for washing, toilets, cooking, laundry and storage
• decide your approach to disturbance payments - this should be equitable with what residents in mainstream tenancies would receive in the council area
• plan for the storage needs of residents, belongings and caravans - will this be onsite or offsite, what will the access arrangements be, how will the costs be covered, use an option that minimises the risk of any damage to property
• if addresses need to change, make sure residents are aware of this well in advance - link up with money advice to ensure any claims are processed in time as a change of address may affect benefits
• plan for postal arrangements during the decant with adequate notice of changes e.g. if residents are decanted to a site elsewhere what will the arrangements be for ensuring they receive their post, are there accessibility/collection issues for residents
• plan for the move itself e.g. co-ordination, phasing, provision of removals labour and vehicles if required
• residents need to know the process to be gone through before moving out, this may need explained more than once e.g. residents need clarity about disconnection of utilities and details of reconnection after return with agreed dates
• consider the support needs of residents, including preparation for the move - residents may need the support of a council officer or third sector organisation worker to make the necessary arrangements
• don’t underestimate the time required to change utilities – build time into programme dates so that communication with all parties is transparent
• costs in relation to decants should be discussed/agreed early on in the process
• add a robust programme float in relation to decants as any delays will impact on site works and may result in contractual Loss and Expense damages applications

2.6 During the decant

Things to consider:

• provision of a decant information pack to residents at start of decant so that they have something to refer to if they want information
• if required, simplify tenant handbooks - add photographs/drawings and appropriate contact details to the front page so people know who to contact and when
• factor in face-to-face demonstrations for residents when moving into new/temporary accommodation e.g. how to use heating, change hot water times, etc.
• residents may have concerns about managing bills - consider options for support, e.g. switching to prepayment if this is what they are used to
• ensure children are still able to attend the same school and have appropriate transport, attendance may suffer if decant accommodation is too far away
• how to facilitate good relations with the settled community, provide support to deal with any potential neighbour harassment – work with community safety teams

2.7 Return to site

Things to consider:

• prepare for return – when the completion date is approaching visit each resident individually to help prepare and facilitate the move to their new home
• arrange site visit and viewings ahead of the move back where possible
• allow residents to choose own energy provider on return to site and offer support to manage this

2.8 Communication, engagement and support for residents

Things to consider:

• prepare a communication strategy/plan at an early stage that shows when residents should be updated during the project e.g. at critical points pre and post contract award etc - ongoing engagement with residents throughout the entire process is essential
• different engagement methods may be needed depending on whether residents are on or offsite and to meet the needs of residents - literacy needs and digital inclusion should be considered as part of this, if possible use 3D sketches as well as flat plans, photos or symbols can also help
• avoid making assumptions - community members can have similar lifestyles but different cultures and traditions, not all families within one or each community are the same
• use language carefully e.g. make sure you are not talking at cross purposes, break down and explain processes to help residents understand, using plain English
• be upfront with residents about what is possible and the advantages or disadvantages of different options e.g. there may be a decision to be made between a decant off site for a shorter time or a longer programme with onsite decant
• moving into mainstream accommodation even on a temporary basis can be difficult for some people, many community members have never lived in a house/flat, but there may be limited options - be honest about the type of temporary accommodation available, why and how long they are likely to have to stay
• think about what can be done to support residents while in mainstream accommodation - it can be very difficult to get used to living in a house/flat, residents might feel very isolated without their usual support network which can have a negative impact on mental health:
  • if possible, provide a house instead of a flat to give access to outdoor space/ gardens
  • try to house people close together in the same area
  • maintain connections if people are dispersed over a wide area due to lack of available properties – meet ups, visits
  • facilitate/provide facilities and light refreshments for third sector organisations to hold regular informal resident meet ups to help minimise feelings of isolation/lowered levels of mental wellbeing caused by decant
• one to one engagement may be beneficial, the needs of each family will be different – early understanding of those needs will help to inform the approach
• bear in mind the timing of decant in planning engagement on the wider project, e.g. choosing fixtures and fittings - the main concern of residents at the decant stage is likely be the property/area they are being decanted to, how long for, and the safety of their vehicles and belongings in storage
• provide residents with regular updates and information about any change to plans, including reasons, e.g. through regular meetings and newsletters - think about the best format for meetings, have space for people to view drawings
• if there is a delay, be clear about this and provide updates whether there is progress or not, when residents don’t see progress onsite and haven’t been told why this can cause worry - keep everyone informed about what is happening and why
• consistency and stability will help build trust between residents, the council and the project team - during later stages of works and where possible, the Tenant Participation/Liaison Officer should attend site progress meetings to make sure resident concerns or comments are discussed and given due consideration (especially if decants are happening in phases)

2.9 Key points made by residents

Things to consider:

• the length of decants should be minimised - delay decanting for as long as possible, don’t move residents offsite until absolutely necessary and make sure projects are prioritised – delays have led to some very lengthy decants

• changing dates for decants makes it difficult for residents to plan and creates stress - residents recognised that dates may have to change due to unforeseen circumstances but would prefer to be given a later date rather than an unrealistic early date
• some residents have felt unsupported during decants - make it clear what the rights of residents and responsibilities of landlords are during a decant (see section 2.8 on support for residents) and make sure residents know how to raise concerns
• if residents are living on site while works are carried out, clear and regular communication is a must between the council, project manager, site works manager and residents

• residents might want to do removals themselves - think about practical things that might help e.g. provision of towbars where caravans have not been moved before
• have contingency plans for residents who have made their own arrangements during decants in case these plans fall through/change - this is particularly needed if delays mean that the length of the decant extends

• don’t underestimate the importance of arrangements for pets – if decanting on site safe, temporary facilities for pets should be provided e.g. bases for kennels, residents should be able to take pets with them in to mainstream accommodation
• trust takes a long time to build up - if issuing a decant occupancy agreement include a paragraph that states residents will definitely get back on to the site, some residents are fearful that once off site they will not get back on
• access to independent support and help with income maximisation is important – residents might be worried about the increased costs of a bigger home, change of address may impact on benefits
• it is beneficial to have a representative from a third sector organisation at meetings to help support residents if they wish