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Cork City Traveller Accommodation Programme TAP 2025-2029
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Cork City Council | Traveller Accommodation Programme 2025-2029
Comhairle Cathrach Chorcaí Cork City Council
This document was prepared on behalf of Cork City Council by HW Planning, in partnership with the Traveller Accommodation Unit (TAU). The TAU liaised directly with the Local Traveller Accommodation Consultative Committee (LTACC) in this regard, with the Traveller Community through their participation in the assessment of need process and with members of the Traveller Advocacy Groups. Cork City Council wish to extend our sincere thanks to all involved, in particular to the many children who participated in the consultation workshops, whose artwork is included throughout this document.
Document Version
Adopted by An Chomhairle and came into effect:
20 th January 2025
Cork City Council | Traveller Accommodation Programme 2025-2029
Table of Contents
Ch.
Topic
Pages
Ch.
Topic
61-69 61 Pages
01 01.1 01.2 01.3 01.4
Introduction Legislative Background Existing Context The Traveller Population in Ireland Cork City Traveller Population
2-10 2 2 2 6
07 07.1
Proposals to Meet Annual Targets Measures Carried Over from the TAP 2019-2024 Annual Targets Specific Implementation Proposals Mid-Term Review Monitoring and Evaluation Recommendations Mechanisms for Implementation Collaboration Housing size and Form Targets Locational Factors Consultation and Support Information Availability Mid-term Review
07.2 07.3 07.4 07.5 08 08.1 08.2 08.3 08.4 08.5 08.6 08.7 08.8
63 64 69 69
02
Current Provision and Review of Tap 2019-2024
11-19
02.1 02.2 02.3
Overview of Current Provision Progress on TAP 2019 – 2024 Deliverables Equality Review
11 15 19
70-72 70 70 71 71 71 71 72 72
03 03.1
Consultation Consultation Process
20-22 20
04 04.1 04.2 04.3 04.4 04.5 04.6 04.7 05 05.1 05.2 05.3 05.4 05.5 06 06.1 06.2 06.3 06.4 06.5
Assessment of Need/Gap Analysis Background and Approach TAP 2019-2024 Needs Assessment Assessment Of Current Need Assessment of Accommodation Preferences Assessment Of Projected Need Gap Analysis Transient Sites Policy Statement Cork City Development Plan Traveller Culture Traveller Accommodation Unit Recognition of Traveller Ethnicity Public Sector Duty Strategy Statement Accommodation Delivery Mechanism Development of Accommodation Proposals Public Awareness and Consultation Management and Maintenance The Future of Halting Sites
23-52 23 23 24 29
Appendix A Traveller Accommodation Unit (TAU) & Traveller Liaison (TLO) Initiatives Appendix B Equality Review Recommendations Appendix C Stakeholders Contacted in Advance of Drafting of the Traveller Accommodation Programme (TAP) 2025-2029
73-83
39 43 51
84-86
87-89
53-57 54 56 57 57 57 58-60 58 58
Appendix D TAP Survey Questionnaire
89-108
Appendix E Engagement with Children Living in Group Housing Schemes, Halting Sites, and Standard Housing Appendix F Traveller-Specific Transitional Housing Initiative
109-112
113-118
58 59 60
01 Introduction 01.1 Legislative Background Under the Housing (Traveller Accommodation) Act, 1998, each Housing Authority must prepare and adopt a 5-year Traveller Accommodation Programme (TAP). The TAP seeks to assess and address the accommodation needs of Travellers within each Local Authority's functional area. This TAP is for the period between 2025 – 2029 and replaces the previous 2019 to 2024 programme, which lapsed in December 2024. This is the sixth successive TAP prepared by Cork City Council. It was approved by Council and came into effect on the 20 th January 2025. In December 2023 the Minister issued ‘ Guidelines for the Preparation, Adoption and Implementation of Local Authority Traveller Accommodation Programmes 2025 – 2029’ , to guide Local Authorities in their efforts to deliver appropriate accommodation for the Traveller Community in Ireland. The Cork City Council TAP has been prepared in full accordance with these Guidelines and also has regard to other expert guidance. 1 01.2 Existing Context The previous TAP 2019-2024 recognised the specific pressures that arise in Cork City, with respect to accommodating a Traveller population that was traditionally rural and largely retains rural accommodation preferences. This pressure has increased in the preparation of TAP 2025-2029, which is now set in the context of a national housing and homelessness challenge, to which sections of the Traveller population are especially vulnerable. The extension of the Cork City boundary in 2019 has presented both opportunities and constraints with regard to the city’s Traveller population. There are challenges incorporating some families with strong rural affiliations into a metropolitan area.
Consistently through all the previous TAPs, the Council has sought to identify measures that would improve the lives of the Traveller Community across Cork City in recognition of the serious and complex challenges they face. The TAP 2025-2029, builds upon the aims and objectives of the previous plans and seeks to address the ever-changing Traveller environment. Travellers are an ethnic minority group within Ireland, that have their own distinct lifestyle, cultural beliefs, language and traditions that have been documented throughout Irish society for centuries. The formal recognition of Travellers as an ethnicity further reflects the distinct and specific needs of this minority group. Cork City Council is committed to promoting the equality and inclusion of Travellers, the Council has an Equality Action Plan and will implement the recommendations of the plan without delay. As such, the TAP 2025-2029 aims to bring together national and local policies to support this important ethnic group in our community. 01.3 The Traveller Population in Ireland Accurate demographic information is the key to successful planning for any population and a TAP is no exception. However, inconsistencies exist between available Census data regarding the Traveller population and the Annual Count of Traveller Families carried out by Local Authorities 2 . Improved communication between the Central Statistics Office (CSO), Local Authority Traveller Accommodation Units and Traveller organisations in the 2022 Census has led to improvements, but discrepancies still exist, making it more difficult to plan effectively and with certainty. In the 2022 Census the Irish Traveller population in the state was recorded as 37,826 3 persons, while the population identifying as “White Irish Traveller”
2 Traveller Accommodation Expert Review Report 2019 and Programme Board Reports. 3 Table F5072 in the 2022 Census.
1 Traveller Accommodation Expert Review Report 2019 and Programme Board Reports.
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Cork City Council | Traveller Accommodation Programme 2025-2029
ethnicity is recorded as 32,949 4 persons. The 2022 Census records 9,448 Irish Traveller private households in the state, compared to the 2022 Annual Count of Traveller Families 5 , where the total number of families is estimated at 12,183. These inconsistencies have ramifications in planning for Traveller future accommodation needs. The census figures indicate that the average Traveller household size across the state is 4 persons per household, higher than the 2.74 figure for the total population, but significantly lower than traditional Traveller family sizes. This trend of reducing household size needs to be taken into consideration in the TAP 2025-2029.
For clarity it should be noted that the Central Statistics Office (CSO) definition of ‘Household’ is:
“ a single person or group of people who regularly reside together in the same accommodation and who share the same catering arrangements. The household members defined in this fashion are not necessarily related by blood or by marriage.”
Figure 1 National Traveller Population Statistics 6
6 2022 figures used for comparative purposes. A review of 2023 Annual Count figures is included within section 04 of this report.
4 Table F5068 in the 2022 Census. 5 Compiled by Local Authorities for the Department of Housing, Local Government and Heritage (DHLG&H).
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Cork City Council | Traveller Accommodation Programme 2025-2029
Age Profile It is evident from both sources that the national Traveller population has increased in recent years with the 2022 Census reporting a 12% population increase and a 22% increase in household numbers nationally since 2011. This growth is also reflected in the Annual Traveller Count figures that show a 5.9% increase in Traveller households between 2021 and 2023. Despite this growth the Traveller population has consistently represented 6.5 persons in every 1,000 persons nationally since 2011. The Irish state population, with falling birth rates and a high life expectancy, is aging faster than anywhere else in Europe. By contrast the Irish Traveller population has a uniquely young demographic profile, with the average age of Irish Travellers being 27 years in 2022, significantly younger than the average age of 39 years for the total population.
In general, as illustrated in Figure 2, the Traveller population has higher fertility rates and lower life expectancies than the total population. In considering Traveller accommodation needs it is also important to note that in the 2022 Census 15% of Travellers reported having a significant, long-lasting medical condition, nearly twice the proportion in the total population.
Figure 2 Age Profile of Irish Travellers Compared to Total Population (based on CSO Table F5064)
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Cork City Council | Traveller Accommodation Programme 2025-2029
Accommodation Of relevance to this TAP is the changing pattern of Traveller accommodation nationally, highlighted in Figure 3 and as evidenced in the Census 2022 data. This illustrates that permanent houses are the predominant form of Traveller accommodation. In addition, apartments now play an increasingly important role in permanent housing provision, while the number of households living in temporary housing, in the form of caravans and mobiles homes, has declined from 12% in 2016 to 7% in 2022. The Annual Traveller Count 7 provides more granular detail in this respect, highlighting that Local Authority Accommodation or Assistance accounted for 66% of Traveller household accommodation in 2022, rising to 68% in 2023. This high figure highlights the importance of the TAP in supporting Traveller families in our community.
A trend, however, is evident in the last 4 years of figures which indicates an increase in the percentage of families living on unauthorised halting sites from 4% to 5%, and a decrease in families living in private rental housing from 19% to 12%. The percentage of households living in shared housing remained relatively constant at 8%, while households accommodated using their own resources fluctuated from 5% to 8% and back to 7% between 2020 and 2023.
Figure 3 Accommodation Type of Traveller Households Nationally 2011 – 2022 (based on CSO Table F5064)
7 Household figures differ in 2022 Annual Count from 2022 Census so percentages are used here.
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Cork City Council | Traveller Accommodation Programme 2025-2029
01.4 Cork City Traveller Population
On the other hand, there may have been an aspect of inadvertent double counting in the Cork City Annual Traveller Count, with different members of the same family unit liaising separately with the Council. In addition, there is an issue in differentiating between household numbers and family numbers, as multi-generational households are more prevalent in Traveller households. This can lead to issues as Census records are based on households, while the Annual Traveller Count records the number of families. Cork City Council have made extensive efforts to address these issues in the 2023 Annual Count data. The various data streams have been rigorously checked and cross-referenced. Upgrades to the Housing Assistance Payment (HAP) recording system have led to a figure revision, with a reduction being recorded in the number of families in the city. At 510 families, this is now more in line with the 2022 Census household data.
The 2022 Census reported that there were 1,442 Travellers 8 recorded in 381 private households within the Cork City area. The average number of people per household was c. 3.78, slightly below the national average Traveller household size of 4. The number of households is significantly lower than the 579 Traveller families recorded in the 2022 Annual Count of Traveller Families residing in Cork City. This difference may be attributed to a number of factors. While significant effort went into the 2022 Census to improve the return rate amongst Travellers, it remains likely that the Census figure is an underestimate, with an element of the community remaining ‘hidden’ from official records.
Figure 4 Cork City Traveller Statistics
8 The Census 2022 generally returns a Traveller population figure combined with Cork County of 2376. However, different figures are reported in different CSO Tables for this, ranging from 2089 in FY26B & F5093 to 2975 in F50000072.
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Cork City Council | Traveller Accommodation Programme 2025-2029
The Cork City Annual Traveller Count records show a 9% increase in the number of Traveller families living in Cork City between 2019 and 2022. Notwithstanding the figure correction for 2023, a high Traveller population growth rate has been recorded in Cork City.
Figure 5 Cork City Annual Traveller Count data for Traveller Families in Cork City.
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Cork City Council | Traveller Accommodation Programme 2025-2029
Figure 6 indicates that at 79% the Local Authority Accommodation or Assisted Accommodation category 9 is the predominant form of Traveller accommodation in Cork City and has increased its share of the accommodation provision over the last 4 years. The Annual Traveller Count also provides more detailed data about the subset of Traveller families living in the Local Authority Accommodation or Assisted Accommodation and Unauthorised Site category, broken down by the following types of accommodation:
Local Authority Halting Sites.
▪
Unauthorised Halting Sites.
▪
Standard Local Authority housing.
▪
Traveller Group Housing Schemes.
▪
Private Rental (supported by the Local Authority). Approved Housing Bodies/Voluntary Bodies (supported by the Local Authority).
▪
▪
Figure 6 Cork City Annual Traveller Count – Accommodation Type
9 This figure includes unauthorised halting sites, it would be 78% if these were excluded.
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Cork City Council | Traveller Accommodation Programme 2025-2029
Figure 7 demonstrates that there has been a continued increase in Traveller families being accommodated in standard Local Authority housing and halting sites between 2019 and 2023. At the same time the number of families in group housing schemes has remained stable. Accommodation provided by Approved Housing Bodies and in unauthorised sites has displayed a significant increase in 2023. While Traveller families recorded as living in private rental accommodation assisted by Local Authorities has dropped, this is largely due to improvements in the data recording system.
Cork City Council - Traveller Families in LA and LA Assisted Accommodation and on Unauthorised Halting Sites
400
357
350
333 339
323
2019 300
2020 250
220
211
200
2021 200
191 195
2022
150
110
100
84
75 81 80
50
35 34 34 35 35
20 20 20 22
14
12 12 8 13 6
5 2 3 5 5
0
Standard L.A Housing
Group Housing Scheme
Private Rental Assisted by L.A.
Voluntary Bodies – L.A. Assistance
L.A. Halting Sites
Total Accomm. Provided by L.A. or L.A. Assistance
Unauthorised Sites
Figure 7 Cork City Annual Traveller Count – Local Authority Assisted Accommodation & Unauthorised Halting Sites
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Cork City Council | Traveller Accommodation Programme 2025-2029
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Cork City Council | Traveller Accommodation Programme 2025-2029
02 Current Provision and Review of Tap 2019-2024
An overview of each type of accommodation provided by or with the assistance of the Council. An estimate of the number of families accommodated and details regarding each type of accommodation provided by the Council.
▪
02.1 Overview of Current Provision Cork City Council’s Traveller Accommodation Unit (TAU) has responsibility for liaising with, and providing accommodation support services to, the Traveller Community in Cork City. The TAU currently has a staff of 6 personnel including an Administrative Officer, Traveller Liaison Officer (TLO), Traveller Engagement Officer, an Assistant Staff Officer and two Clerical Officers who work and engage directly with the Traveller Community. The TAU responds to the daily and ongoing accommodation needs of the Traveller Community. The TAU has dedicated clinics to address Traveller accommodation needs and the TLO alone has dealt with over 6,000 engagements/contacts to date (over an 18 month period) and conducted 50 site visits in that period. In line with the TAU’s commitment to meaningful engagement, the TLO has developed two key initiatives over the past 12 months: the Traveller Participation and Engagement Initiative and the Child and Youth Participation Initiative. Details of both of these initiatives are provided in Appendix A. The unit is supported in its work by the Local Traveller Accommodation Consultative Committee (LTACC) whose members are drawn from housing officials, public representatives and representatives of the Traveller community. A dedicated Traveller Liaison Officer and Traveller Engagement Officer work with Cork City Council and support Travellers seeking accommodation as required. As outlined in Section 1, Cork City Council provides a range of housing options for members of the Traveller Community. In the 2022 Annual Traveller Count, it is estimated that there were 1,442 Travellers living within Cork City. This section of the TAP will provide:
▪
Standard Social Housing Cork City Council owns properties in housing estates and apartment blocks across the city. Available properties are listed on the Council's Choice Based Letting (CBL) system, where housing applicants can express interest in available units. The Council also operates a dedicated public counter to assist applicants with the CBL system, particularly those who may face difficulties accessing it. A staff member is available to help applicants log in and submit expressions of interest. This service is available from 10 am to 4 pm, Monday to Friday. A dedicated Traveller Liaison Officer and Traveller Engagement Officer work with Cork City Council and supports Travellers with CBL applications as required. Private Rented Housing There are two types of supports available to eligible members of the public in the private rental market, which includes the Traveller Community. These options are listed below. Again, a dedicated Traveller Liaison Officer works with Cork City Council and supports Travellers with CBL applications as required. Rental Accommodation Scheme (RAS): The Rental Accommodation Scheme (RAS) is a social housing initiative designed to address the housing needs of individuals and families receiving long-term rent supplement. To qualify, applicants typically must have been on rent supplement for at least 18 months and be assessed as having a long-
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Cork City Council | Traveller Accommodation Programme 2025-2029
term housing requirement. Through RAS, private rental properties offer an additional supply of quality housing for those who meet the eligibility criteria. Housing Assistance Payment (HAP): The Housing Assistance Payment (HAP) is a social housing support offered by all Local Authorities. Through HAP, authorities provide housing assistance to households with a long-term housing need, including those who qualify for long- term Rent Supplement. HAP streamlines the existing social housing system and allows participants who secure full-time employment to remain in the scheme. Once approved, the Local Authority makes monthly rent payments to the landlord on behalf of the tenant, subject to specific rent limits and conditions. In return, tenants contribute towards their rent based on household income, calculated similarly to rents charged for local authority-owned housing.
and welfare amenities such as water, sanitation and electricity. Living conditions within these unauthorised sites are challenging for residents and pose significant health and safety risks. There are two unauthorised halting sites in Cork City, namely at Corkeran’s Quay and Nash’s Boreen . Caravan Loan Scheme Cork City Council has been part of the National Caravan Loans Scheme since 2021 and has administered 32 loans to members of the Traveller Community. These loans are for the purchase of a residential mobile/trailer for Travellers residing in halting sites in Cork City Council’s administrative area. The scheme has been beneficial in giving families an option of purchasing their own mobile home on a preferential loan basis.
Traveller Specific Housing Traveller Group Housing Schemes
A Group Housing Scheme generally involves a housing development tailored for members of the Traveller Community. These schemes often accommodate families from the same family or those deemed compatible for communal living. At present, the Council currently oversees three group housing schemes: St. Anthony's Park in Hollyhill, Meelagh in Mahon and Hazelwood Grove on the Kinsale Road. Halting Sites A Halting Site is a facility specifically designed with designated bays to house mobile homes or caravans permanently. Each bay includes an individual or shared welfare unit offering cooking and washing amenities. The Council currently operates two halting sites: Carrigrohane Road Halting Site and Spring Lane Halting Site. Unauthorised Halting Sites An unauthorised halting site is a location where Travellers set up temporary and/or semi- permanent accommodation without the necessary permissions from a Local Authority. These sites typically lack access to basic services
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Cork City Council | Traveller Accommodation Programme 2025-2029
Figure 8 Distribution of Traveller Specific Accommodation in Cork City
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Cork City Council | Traveller Accommodation Programme 2025-2029
Current Accommodation Provision: A summary of the existing Traveller accommodation provided for by the Council is included in the table below:
Table 1 Current Accommodation Provision
Category
Current Sites
No. Existing Units
Standard Social Housing
Numerous
61 houses (2019 – 2024)
−
−
Private Rented Housing - Rental Accommodation Scheme (RAS)
Numerous
−
−
Private Rented Housing Assistance Payment (HAP)
Numerous
−
−
Group Housing Scheme (GHS)
Meelagh GHS
9 houses 3 bays 7 houses 9 bays 7 houses 3 bays
− −
− − −
St. Anthony’s Park (GHS) Hazelwood Grove GHS
−
Halting Sites
Carrigrohane Road Spring Lane
12 bays 29 bays
−
− −
−
Unauthorised Halting Sites
Nash’s Boreen Corkeran’s Quay
5
− −
− −
6 Caravans/mobile homes
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Cork City Council | Traveller Accommodation Programme 2025-2029
02.2 Progress on TAP 2019 – 2024 Deliverables The Cork City TAP 2019-2024 outlined measures to be implemented during its term. These measures varied from active engagement with the Traveller community to developing and providing group housing schemes via the Part VIII planning process. The following table evaluates Cork City Co uncil’s progress on each specific action outlined within the previous TAP’s implementation programme. The Council have delivered on the majority of the actions identified in the TAP 2019. This was achieved against the backdrop of the Covid-19 global pandemic, a national housing and homelessness challenge.
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Cork City Council | Traveller Accommodation Programme 2025-2029
Table 2 TAP 2019-2024 Implementation Programme Progress Update
Name of Scheme / TAP 2019 Objective
2024 Progress
Spring Lane Halting Site Submit proposal for the development of Ellis’s Yard as a Group Housing Scheme to include Part VIII planning process. Submit application to DHPLG for funding to construct a Group Housing Scheme. This proposal is subject to approval of funding. Meaningful engagement with families, key stakeholders, and detailed design, construction of the group housing scheme.
Completed – Part VIII planning application approved in May 2024.
Completed – Stage 1 approved on 4th August 2023 and Stage 2 funding approved on 29th January 2024.
Completed and Ongoing - Cork City Council engaged Stakeholder Engagement Specialists to work on a family-by-family basis. The Stakeholder Engagements have been Contracted by CCC since 2021 and this service will continue until this development is delivered.
Meelagh Group Housing Scheme Refurbishment of Scheme - subject to approval of funding application
Completed - Funding was secured in the amount of €127,455 approved in August 2019.
Proposal to be prepared for lands adjacent to the site. Part VIII process and funding application submitted to the Department of Housing, Planning & Local Government. This proposal is subject to approval of funding application
Not progressed - This has not been progressed to date. This will be carried forward to the TAP 2025 – 2029.
Not progressed - This should be carried forward to the TAP 2025 - 2029 - This will be carried forward to the TAP 2025 - 2029
Discussions with families, detailed design, construction, etc.
St. Anthony's Park Submit a proposal for funding to DHPLG for families identified as suitable for an extension.
Ongoing - Ongoing engagement with identified families has been undertaken. Once concluded, a design brief will be prepared and forwarded to the Architect ’ s Department for preparation of a design.
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Cork City Council | Traveller Accommodation Programme 2025-2029
St. Anthony's Park Submit a proposal for funding to DHPLG for families identified as suitable for an extension.
Ongoing - Ongoing engagement with identified families has been undertaken. Once concluded, a design brief will be prepared and forwarded to the Architect ’ s Department for preparation of a design.
A funding application will be sought from the DHLG&H upon receipt of an approved design
A funding application will be sought from the DHPLG upon receipt of a project design and costing from the City Architects Department.
Carrigrohane Road Halting Site Site to be identified.
Ongoing - Various options have been considered which have been determined to be unsuitable. CENA (an AHB) have been engaged to carry out a feasibility study with the families living on site to determine each family’s preference and type of accommodation. The City Council will work in partnership with CENA and with the Residents on this site to meet the future accommodation needs of the Residents on this site over the lifetime of this TAP. Ongoing - The majority of the site's residents have shown a clear preference of accommodation after engaging with Cena. A plan will be implemented to meet the accommodation needs of the families involved. This plan will include collaboration between CCC, Cena, and the residents to provide the identified type of housing.
Proposal to be put forward for funding to include Part VIII process. Subject to approval of funding application, consultation with residents, Design
and Construction. If approved, construction to commence.
Nash's Boreen
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Cork City Council | Traveller Accommodation Programme 2025-2029
Nash's Boreen Identify suitable site for a small group housing scheme - 4 Houses.
Completed – Site identified for 4 modular type homes and 4 welfare units with bays to allow for future need.
Submit Proposal for Funding to include Part VIII Planning Process.
Ongoing – Pending feedback from the Residents of this site on design layout provided.
Subject to approval of funding, discussions with families, design, and commence works.
Ongoing - Design of proposal drafted. Awaiting feedback from Residents. Once approval is received, design will be amended to take any comments on board, funding application will then be
submitted and once approval is received, Part VIII process will commence.
Transient Site To be reviewed during the lifetime of this programme.
Not Progressed - Based on TAP survey results this service was not something the Traveller Families expressed a keen interest in, the survey completed in 2024 indicated similar results. At this time there does not seem to be a demand for a transient site from the Traveller Community.
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Cork City Council | Traveller Accommodation Programme 2025-2029
02.3 Equality Review Cork City Council were invited to undertake an Equality Review of the TAP 2019-2024 in June 2019 by the Irish Human Rights and Equality Commission (IHREC). The review process examined the equality of opportunity and potential discrimination concerning Traveller-specific accommodation within Cork City Council's jurisdiction. The review focused on auditing the Council's practices and procedures in allocating Traveller-specific accommodation and the associated capital funding utilisation. This inquiry aligns w ith the Council’s obligations under the Equality Status Acts (ESA). The preparation of this TAP has considered the findings and recommendations of both the Council’s Equality Review, and the Commission’s assessment of same (ref Appendix B). Key improvements incorporated during the preparation of the TAP 2025-2029 include:
Engaging a suitably qualified urban planning consultancy to prepare this TAP. The consultancy is a full-service planning and regeneration consultancy with expertise in socio-demographic and geographic information analysis. This TAP has outlined specific housing targets for each year of the programme. These targets have been informed by detailed analysis and consultation phases. Improved survey methodologies have resulted in the highest response and engagement rate to date. Extensive collaboration has been undertaken with the Housing Directorate.
▪
▪
▪
▪
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Cork City Council | Traveller Accommodation Programme 2025-2029
03 Consultation
The Traveller Visibility Group (TVG ) This submission made a number of comments and raised issues in relation to the TAP 2019. Full regard has been had to these in the TAP 2025- 2029. National Traveller MABS. This submission highlighted the need for fuel efficient, affordable, culturally appropriate accommodation. It recommended the need to increase the amount of the Caravan Loan Scheme to allow Travellers to purchase insulated, energy efficient residential standard trailer accommodation (in line with BS 3632). It asked that the TAP 2025-2029 signpost all potential applicants to MABS for financial advice in this regard. In addition, it suggests that a Caravan Rental Scheme should be proposed for families not in a position to purchase a unit.
03.1 Consultation Process An extensive programme of consultation has been undertaken by the TAU to ensure the completion of a robust and comprehensive programme for Traveller Accommodation across Cork City for this five-year period. Notice Local Authorities are required, under Section 8 of the Housing (Traveller Accommodation) Act, 1998 (the Act) to give notice in writing to relevant stakeholders of their intention to prepare a Traveller Accommodation Programme (TAP) prior to doing so. Relevant stakeholders may include any relevant Approved Housing Body (AHB), the HSE, the Local Traveller Accommodation Consultative Committee (LTACC) along with any other relevant local community bodies 10 . Cork City Council contacted the various stakeholders listed in Appendix C by a letter issued on the 26 th February 2024 advising them that a draft TAP was being prepared, and inviting pre-drafting submissions.
Local Traveller Accommodation Consultative Committee
Local Traveller Accommodation Consultative Committees (LTACC) were established under the Act to facilitate consultation between Housing Authorities and Travellers, to advise on any aspect of accommodation for Travellers and on the preparation and implementation of any accommodation programme. The membership of the Cork City LTACC comprises housing officials, public representatives and representatives of the Traveller community. The LTACC have been consulted throughout the TAP process. Preparation of Survey The Act also emphasises the importance of meaningful consultation with all relevant stakeholders during the preparation of a TAP. As part of the consultation process for Cork City Council’s TAP 2025-2029, a TAP Survey was conducted with members of the Traveller community in Cork City to determine their accommodation needs and preferences. The
Three submissions were received in response to the notice from:
CENA – an AHB working with and for Travellers. This submission sought to establish a more structured working relationship between CENA and Cork City Council in relation to Traveller accommodation. It identified a number of opportunities where this could be achieved, including CENA ’s future involvement in accommodation needs assessment, accommodation design, addressing homelessness and working in partnership with other AHB to address Traveller specific accommodation provision 11 .
11 The Council subsequently engaged Cena to undertake a feasibility study with the Residents of Carrigrohane Road Halting Site and Corkeran’s Quay unauthorised halting site.
10 A list of all stakeholders written to as part of the consultation process is included within Appendix D.
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Cork City Council | Traveller Accommodation Programme 2025-2029
Council engaged closely with relevant parties in finalising the format of the survey questionnaire.
themes explored in these workshops included what kind of environment they would like to grow up in or live in the future and what aspects of their home environment were important. A summary of the TAU’s findings from these sessions is included as Appendix E. Survey Process The TAU made follow-up appointments with the 158 families initially contacted who expressed an interest in partaking in the survey. This resulted in a total of 104 surveys being undertaken, a response rate of 66%. The TAU undertook the survey, taking the time to go through the questionnaire with each individual respondent. This ensured the accuracy of the completed questionnaires as respondents received clarification on any part of the survey
The design of the questionnaire was carefully considered to ensure clarity for all participants. Visuals were used throughout, to assist in maximising accessibility (ref Appendix D – TAP Survey Questionnaire). The final survey consisted of ten sections covering a wide range of themes and issues that relate to the provision of Traveller accommodation. These reflected the requirements of the Act. Stakeholder Engagement The TVG building, along with other community locations across Cork City, were used as venues for conducting the survey. In total, ten separate site visits were undertaken by the Traveller Accommodation Unit to facilitate the completion of the survey. For the TAP Survey, in order to capture an accurate representation of the needs and preferences of the Traveller community in Cork City, the TAU (Traveller Accommodation Unit) identified Traveller families who had been in contact with the Council regarding accommodation who they considered may have an accommodation need themselves or within their household. The accommodation needs of those families already housed in Local Authority housing were considered to have been met and they were not included in the TAP Survey. The 158 selected families 12 were contacted, with letters issued to 153 Traveller households across a range of accommodation types to inform them of the survey. This included households residing in standard accommodation such as those provided through AHBs or through HAP, halting sites, Traveller Group Housing Schemes, but also adult children of Travellers living in Local Authority housing. A further 5 households residing in homeless services were also surveyed
where needed, as well as ensuring that respondents with literacy issues were not excluded from the consultation process.
These in-depth surveys undertaken by the TAU have resulted in the collection of an extensive body or quantitative and qualitative ‘soft’ information in relation to the distinct needs of the Traveller community of Cork City. Residents of Spring Lane Separately, Cork City Council has been engaged in an intensive family-specific consultation process with Spring Lane residents over the last two years. A Stakeholder Engagement Specialist has been engaged to work directly with the Travellers of Spring Lane to identify their specific accommodation needs and to deliver collaborative solutions for a site-specific development plan for Spring Lane and Ellis Yard. With plans already at an advanced stage to address the accommodation needs of many of the residents, only those residents of Spring Lane who
A series of art workshops were also held by the TAU with approximately 20 Traveller Children. The
12 Identified by the TAU as potentially having an accommodation need.
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Cork City Council | Traveller Accommodation Programme 2025-2029
have ongoing open housing applications with the Council were included in the TAP Survey.
The Chief Executive’s report in relation to the submissions, together with the draft TAP were then submitted to the Council members for consideration and adoption, with modifications that the Chief Executive considered appropriate, subject to other overriding statutory requirements in relation to the preparation and contents of programmes.
Public Consultation In accordance with the Act the draft TAP 2025- 2029 was made available for public inspection with interested individuals or groups invited to make submissions about their views and comments on the content within a 2 month period. At the end of this period Cork City Council made amendments to the draft TAP where required to take account of submissions made.
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Cork City Council | Traveller Accommodation Programme 2025-2029
04 Assessment of Need/Gap Analysis
planned and proposed developments outlined in Section 2.
04.1 Background and Approach Section 4 of the TAP Guidelines notes that the Housing Authority, in making an assessment of the existing accommodation needs of Travellers and the projected need that will arise during the period of the programmes, will have regard to:
Building on this baseline ‘snapshot’ of the existing and planned situation, the TAP Survey explored the respondents’ assessment of the standard and suitability of current provision. The TAP Survey also focused on evolving Traveller demographic trends and future accommodation requirements and preferences. Key to this element of the overall assessment is the qualitative assessment of the ‘soft’ information contained within the Traveller Accommodation Needs Assessment. The identification of additional factors that influence the attractiveness of accommodation to Travellers was sought, including such factors as locations that have a traditional resonance, proximity to family, supports and services, tenure and management issues, or ancillary factors such as availability of facilities for horses, dogs, hardstanding areas for caravans and mobile homes. Arising from this, an analysis of gaps or deficits in current and planned city-wide provision was undertaken. This included consideration of the quantity of accommodation required, its distribution, type and quality and the deliverability of various sites. Emerging changes to accommodation requirements and preferences as noted in the TAP Survey are also taken into consideration.
The estimate of the number of Travellers for whom accommodation will be required during the course of the programme. The summary of social housing assessments prepared under section 21 (c) of the Housing (Miscellaneous Provisions) Act 2009 as it relates to Travellers (including Traveller Household Preferred Housing Options i.e. standard local authority and AHB housing, Traveller-specific accommodation (group housing schemes and halting sites) and private rented accommodation.
▪
▪
The need for transient sites.
▪
Consideration by the housing authority of the views of the LTACC 13 .’
▪
In assessing the existing and future accommodation needs of the Cork City Traveller population, existing TAU accommodation information, (included in Section 2 of this report), in conjunction with feedback from the TAP Survey have been used to establish a baseline in relation to the capacity, type and quality of the existing supply. This baseline assessment includes consideration of pipeline developments, as outlined in Section 2, such as the €18 million redevelopment of Spring Lane and Ellis Yard halting site to include 27 no. Traveller specific residential units as well as a further 23 no. Traveller Specific Units in design stage and other
04.2 Tap 2019-2024 Needs Assessment
The TAP 2019-2024 ‘Assessment of Needs’ was based on the feedback of the 47 respondent families living in halting sites and group housing schemes. Significantly increased ‘survey effort’ has gone into the preparation of the TAP 2025- 2029 in which 158 families were canvased across the full spectrum of Traveller accommodation
13 Local Traveller Consultative Committees (LTACCs)
23
Cork City Council | Traveller Accommodation Programme 2025-2029
types. Ultimately 104 families responded to the TAP Survey; a response rate of 66%.
As noted in Section 1.4 to address legacy issues of inadvertent double counting in the Cork City Annual Traveller Count, in the 2023 Annual Count data Cork City Council rigorously checked and cross-referenced data from different data streams. Upgrades to the HAP recording system have led to a reduction being recorded in the number of families in the city, while an increase was noted in the families in AHB and Homeless Services accommodation.
04.3 Assessment Of Current Need Cork City Traveller Accommodation Trends At the outset the published Annual Traveller Count data was examined to establish trends over time in relation to the Traveller Community living in Cork City. Specific attention was given to the subset identified in the Annual Count as living in Local Authority Accommodation or Local Authority Assisted Accommodation and Unauthorised Halting Sites (Table 3).
Table 3 Cork City Annual Traveller Count – LA Supported Housing Disaggregated
Cork City Council
National
Cork City Council
2020
2021
2022
2023
% of 2023 Total
% Change 2020 - 2023
% of 2023 Total
% Change 2020 - 2023
Standard Local Authority Housing
195
200
211
220
55%
13%
56%
17%
Local Authority Group Housing
34
34
35
35
9%
3%
10%
1%
Private Houses Assisted by LA
20
20
22
5
1%
-75%
6%
17%
Approved Housing Bodies – Voluntary Bodies
3
5
5
14
3%
367%
10%
64%
Local Authority Halting Sites
81
80
84
110
27%
36%
12%
6%
Homeless Services
-
-
-
12
3%
Total L.A. / L.A. Assisted Accommodation
333
339
357
396
99%
15%
94%
17%
Unauthorised Sites (US)
12
8
13
6
1%
-50%
6%
23%
Accommodated by or with Assistance of L.A. and US
345
347
370
402
100%
17%
100%
18%
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Cork City Council | Traveller Accommodation Programme 2025-2029
Rationale Behind Target Population Assumptions
The following trends are evident in Table 3:
55% of this subset of Travellers reside in standard Local Authority housing, this is in line with the national average (56%). However, the national rate of increase in this figure between 2020 and 2023 at 17% is higher than the Cork City rate of 13%. 9% of Cork City families in this subset live in Group Housing Schemes, just slightly below the national average of 10%. The proportion of this subset of Traveller families in Cork City living in private housing assisted by the Local Authority, at 1% is significantly below 6% national figure. It is notable that only 3% of this subset of Cork City Traveller families reside in housing provided by Approved Housing Bodies. This is considerably lower than the national figure of 10%, however, there has been substantial growth in the provision by this sector since 2022. Local Authority Halting Sites accommodate 27% of Cork City Traveller families in this category compared to only 12% nationally. This difference is underscored by the fact that the number
▪
The Cork City Traveller Annual Count in 2023 returned a figure of 510 families living in the City. As indicated in Table 3, of these 402 were living in housing with some form of Local Authority support or unauthorised halting sites. The remainder consisted of:
12 families living on their own resources,
▪
▪
26 families living in private rental housing with no Local Authority assistance,
▪
70 families living in shared housing with no Local Authority assistance.
▪
▪
It is considered that the majority of these 108 families, having not sought Local Authority assistance are therefore not by definition in need of accommodation support. Of the remaining 402 families, it was assumed that the 220 families already residing in standard Local Authority housing could largely be excluded from having a housing need 14 . It should be noted that this does not include the families living in Homeless Services or HAP/RAS accommodation who are reported separately in Table 03. The remaining 182 families, includes families living in Traveller Group Housing Schemes, Private Housing with Local Authority assistance and AHB with Local Authority assistance as well as Local Authority and unauthorised Halting Sites. This figure provides a general indication of the maximum number of Traveller families who could potentially be experiencing some form of housing need. It is assumed that this number is an over- estimate and significantly in excess of the actual number of families with a housing need as a proportion of these would be satisfied with their current housing provision. This view is supported and correlates well with the more refined figure arrived at in a separate exercise by the TAU in Cork City Council, discussed in Section 3. Based on local knowledge
▪
▪
has increased by 36% in Cork City between 2020 – 2023, whereas nationally the increase was 6%.
Conversely, only 1% of Cork City families in this category live in unauthorised halting sites, this figure having decreased by 50% since 2020. Nationally 6% of this category of Traveller families live in unauthorised sites and this has increased by 23% since 2020.
▪
14 With the exception of Traveller children living in standard housing reaching adulthood and forming new households.
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Cork City Council | Traveller Accommodation Programme 2025-2029
the TAU identified 158 families with a potential housing need. This is based on the 153 families in Cork City who had been in contact with the Unit with regard to housing support or had an open housing application and included:
44 Traveller families in Council housing, or Council supported private rental,
▪
109 Traveller families in Group Housing Schemes or Halting Sites,
▪
It also includes a further 5 Traveller families identified by the Council Homeless Services.
However, a conservative approach has been adopted in the TAP 2025 – 2029 with all calculations based on the larger Target Population of 182 indicating the maximum theoretical number of families with a potential current housing need. As outlined in Section 3, the 158 families specifically identified by the TAU were contacted in relation to the TAP Survey, representing 87% of the Target Population. Based on responses, follow-up surveys were carried out with 104 families. This equates to a survey response rate of 66% 15 and 57% of the total Target Population.
Table 4 TAP Survey Respondents Current Accommodation Type
Accommodation Type
No. Respondent Families
%
Halting Site
56
54%
Standard Housing (Council Tenancy /HAP/Homeless Services)
30
29%
Traveller Group Housing / Halting Site Mix 16
10
10%
Traveller Group Housing
8
8%
15 In the context of the wider Traveller population is equates to 27% of the Census 2023 household figure or 20% of the families in the 2023 Annual Traveller Count family.
16 Some survey respondents stated that their current accommodation was a combination of a Traveller Group Housing (TGH) Scheme and a Halting Site.
26
Cork City Council | Traveller Accommodation Programme 2025-2029
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