Chapter 8 Allotments
Introduction and definition
8.1
In recent years there has been a revival of national interest in ‘growing your
own’, which has reflected in allotments having lower vacancy rates and longer
waiting lists. Allotments are valuable green spaces and community assets
that can help improve people’s quality of life by promoting healthy food,
exercise and community interaction.
8.2
Allotments are public or private open spaces dedicated to growing produce
and gardening. They should have a primary purpose of growing vegetables,
fruit and flowers, however, some are used for grazing animals. This
assessment has included all forms of allotments whether they are private or
public. They include those in use or disused, but which were last used for
allotment purposes.
8.3
The Department for Communities and Local Government aim ‘to ensure that
all allotments are well managed, are considered as part of the overall green
infrastructure, and only disposed of where there is no demand for them and
established criteria have been met.’
8.4
A survey of allotment waiting lists from the English principal local authorities
was carried out by The National Society of Allotment & Leisure Gardens
Limited (NAG) in January 2010. The survey found that waiting lists had
increased nationally by 23% since 2009, an increase of almost 20,000 places.
They argue that allotments should receive more attention and investment in
the future because:
• “food grown on allotments means fewer food miles and could be an
important part of the new greener low-carbon economy;
• allotment sites often provide a focus for a community, and improve
community cohesion;
• growing one’s own food is an important part of a healthy-eating
programme;
• allotment’s offer a productive activity for the unemployed
• local and national government reports have been promoting the
benefits of allotments for some time;
• local authorities have a statutory duty to provide sufficient
allotments.”
Strategic Context
8.5
Local Policy Framework
The Vision for Leeds 2011-2030 is the Sustainable Community
Strategy for Leeds. The Vision for Leeds has three priorities which
all seek to have a positive impact on the health and well being of
the community. They are:
•
People live longer and healthier lives,
130
•
•
People are supported by high quality services to live full, active
and independent lives; and,
Inequalities in health are reduced e.g. people will not have
poorer health because of where they live, what group they
belong to or how much money they have.
Underneath the Vision for Leeds is the City Priority Plan which sets
out the council’s aims for the next 5 years to assist it in achieving
the vision. This is split up into sections, the most important to this
paper being Health and Wellbeing. The council is focusing on
housing, education, transport, green space, work and poverty and
what we can do to help everyone have the best chance to be
healthy, to improve health and wellbeing across the city.
8.5
Leeds Unitary Development Plan (Review 2006)
The Leeds Unitary Development Plan (UDP) provides the existing planning
policy framework for development across Leeds. The key policy relevant to
allotments is Policy N1A which protects allotments currently in use.
8.6
Parks and Green Space Strategy (2009)
In the Parks and Green Space Strategy, allotments are noted as a way of
providing opportunities for those people who wish to grow their own produce
as part of the long-term promotion of sustainability, health and social
inclusion. Additionally, they are recognised as promoting healthy eating,
recreation, exercise and links with education.
8.7
Consultation – Assessing Local Need
Consultation undertaken as part of the study identified a general satisfaction
with the allotment provision in the district. However, a few issues were
identified as part of the residents survey. Problems identified include
vandalism, litter and the misuse of sites. Points made as part of the Needs
Assessment are as follows:
• Over 90% of people surveyed, either in the street or using the
household survey, do not use allotments;
• over a third of those who responded to the surveys had no opinion
regarding the quantity of allotments, but of those that did the majority
thought there was about enough (24% householder survey, 41% onstreet survey);
• provision of allotment land was felt to be adequate for most though in
the West Inner and the North West Outer areas there were ‘not
enough’ and more allotment spaces were needed;
• over 40% of the population surveyed ‘didn’t know’ about the quality of
allotments and of those that did, the majority were satisfied;
• most people expect to walk to an allotment site;
• stakeholders identified the need to increase provision and distribution
to meet the waiting list and highlighted an insufficient supply in the
East, North West and North of the district;
• the majority of council workers feel that there is ‘not enough’ (39%) or
‘nearly enough’ (39%) allotments regarding the quantity and that the
quality is ‘average’ (28%).
131
Current Provision Quantity
8.8
Within the Leeds district 143 allotment sites were surveyed as part of the
PPG17 audit. Some very small allotment sites were not surveyed as they fall
below the study size threshold (0.2 hectares). These 143 audited sites
covered 145 hectares, ranging in site size from 0.2 hectares (Woodlea
Allotments, Boston Spa) to 6.53 hectares (Burley Mills Allotments, Kirkstall).
These can be split into used and disused sites; of which 129 allotment sites
are in use covering 134 hectares, whilst 14 sites (10%) are currently disused
and cover a total area of 10.55 hectares.
8.9
The majority of allotment sites in the Leeds district are owned by Leeds City
Council. Where there parish or town council is in existence they are the
statutory allotment authority for the area they cover. Many of the city council
sites are leased to local allotment associations who self-administer the day-today management of their sites. Of all the sites identified in the audit, 108 are
in public ownership (the Arms Length Management Organisation’s and Leeds
City Council) and 35 are in private ownership. District wide, there is a waiting
list of 1,183 names for an allotment plot. This figure has already been
discounted by 19% to take account of people adding their names to multiple
allotment sites. The waiting list applies to 54 sites, 50 of which are publicly
owned and 4 are private.
Table 8.1 Allotment Provision in Leeds by Analysis Area
In Use
Allot.
Area
Total
(ha)
Disused
Total
No.
of
sites
Number of
sites in
use
Area of
sites in
use (ha)
Number
of
disused
sites
Analysis
Area
Pop.
2008 mid
year
estimate
East Inner
80,578
11.04
10
7
8.8
0.11
3
2.24
80
78
East Outer
85,392
25.28
23
22
23.04
0.27
1
2.24
80
152
North East
Inner
70,909
10.39
8
7
10.16
0.14
1
0.22
7
232
North East
Outer
62,281
6.69
11
11
6.69
0.11
0
0
0
26
North West
Inner
106,127
23.8
9
8
21.51
0.2
1
2.29
82
273
North West
Outer
87,305
16.99
26
24
16.2
0.19
2
0.79
28
224
South
Inner
74,683
13.08
8
7
12.79
0.17
1
0.29
10
78
South
Outer
90,587
24.02
30
27
22.56
0.25
3
1.46
51
119
Allot. in
use per
1000
Area of
disused
sites (ha)
Potential
full plots
132
Waiting
List
West Inner
50,297
5.3
6
5
4.96
0.1
1
0.34
12
123
West Outer
71,097
8.56
12
11
7.88
0.11
1
0.69
24
163
Leeds
779,256
145.13
143
129
134.58
0.17
14
10.55
374
1468
Waiting List after deducting 19% to take into account duplication between lists
1,183
8.10
Table 8.1 above shows the total amount of allotments in the Leeds district and
the breakdown between disused and in use sites. The East Outer area has
the largest area of allotments covering 25.28 hectares and the largest area in
use at 23.04 hectares. However, in terms of the total number of sites, the area
has 23, which is 7 fewer sites than the 30 sites within the South Outer area.
8.11
Of the sites in use, the East Inner area has the lowest number of sites with
only 5, whilst the West Inner area has the smallest amount of space at 4.96
hectares. The North East Outer area is the only area to have no disused sites.
8.12
District wide there is on average 0.17 hectares of allotments in use per 1,000
population. The highest ratios were for the East Outer area with an average
of 0.27 hectares of allotment land per 1,000 people. The lowest amounts of
allotment land per 1,000 population were in West Inner with 0.09 hectares
followed closely by East Inner, North East Outer and West Outer which all
have 0.10 hectares per 1,000 population.
133
8.13
The key issues arising from the above table and the consultation are:
• the West (Inner and Outer) and East Inner and North East Outer
areas have a low provision of allotment land in use;
• the highest demand for allotments is in the North West (Inner and
Outer) and North East Inner areas;
• only the North East Outer area has no disused sites;
• of those sites in use, there is an average of 0.17 hectares per 1,000
population, ranging from 0.10 to 0.27 across the analysis areas.
8.14
Plan 8.1 shows a wide distribution of sites across the urban area and obvious
gaps in the rural North, Wetherby and central Leeds.
8.15
54 of the sites have a waiting list ranging from 2 to 100 people. The areas
with the highest demand on the waiting list are North West Inner, North West
Outer and North East Inner. These three areas make up 49% of the demand
for the whole district. 52% of allotment sites within these areas have a waiting
list. The five sites with the largest waiting lists are:
• Roundhay Allotment gardens, North East Inner (waiting list of 100);
• Parkside Road Allotments, North East Inner (waiting list of 72);
• Burley Model Allotment, North West Inner (waiting list of 69);
• Hollin Lane Allotments, North West Inner (waiting list of 62);
• Firthfields Allotments, East Outer (waiting list of 54).
8.16
The five most popular sites listed above contribute to approximately a quarter
of the district wide waiting list. In the North East Inner area, the waiting lists
for Roundhay Allotment Gardens and Parkside Road account for almost 75%
of the total number of people waiting for allotments. Since the audit was
conducted, Church Lane Allotments in Kirkstall, a previously disused site
which had a waiting list of 16, is now operational with a waiting list of 22. The
waiting lists and the location of the five most popular sites suggest a localised
demand within the North inner areas.
134
135
8.17
Between January 2010 and January 2011 the overall council waiting list for
allotments increased by 25% (373 names) to 1,841 (1,491 if discounted). On
an area basis, the number of people waiting for an allotment site ranged from
3 to 347. The North East Inner area increased to 347, making it the area of
largest increase, in excess of 100 names and the highest demand of all areas.
Demand fell in East Outer, North East Outer, North West Inner, and South
Inner. District wide, 76 allotment sites had waiting lists, ranging from 1 to 100.
The site with the highest waiting list (100) remained as Roundhay in North
East Inner analysis area.
8.18
Given most allotments are the same size (approximately 250 m²) once the
total area of a disused site is known an estimate can be provided of how
many allotment plots it could accommodate (this figure should be reduced by
10% to take into account supporting facilities such as paths, highways, toilets
etc). This would equate to 36 full plots per hectare. Using this figure if all the
disused sites were brought into use the majority of analysis areas would still
be oversubscribed, as the waiting list outnumbers the potential new plots.
The only area where the potential plots is greater than the waiting list is East
Outer. Unfortunately, as can be seen from Plan 8.1, the disused site is in the
Micklefield area to the East, a considerable distance from the sites that have
waiting lists. The North East Outer area has no disused sites but has a
waiting list of 26 in Boston Spa.
8.19
Plan 8.2 shows that the areas with the largest waiting lists (all with a waiting
list above 200) are concentrated together in the north and north west of the
district. The lowest levels of demand (with waiting lists below 100) are in
North East Outer, East Inner and the South Inner areas.
8.20
The application of the local quantity standard for each area is set out in Table
8.2 below. The table illustrates the application of the standard against the
current provision, and the likely implications of each of the three projected
growth scenarios.
136
137
Table 8.2 Provision of Allotments in Use per 1,000 Population based on the
Three Population Growth Scenarios
Analysis
Areas
East Inner
East Outer
North East
Inner
North East
Outer
North West
Inner
North West
Outer
South Inner
South Outer
West Inner
West Outer
Leeds
Allotments
Area Ha
Current
provision
per 1,000
population
Scenario A
Provision
per 1,000
population
(2026)
Scenario B
Provision
per 1,000
population
(2026)
Scenario C
Provision
per 1,000
population
(2026)
8.8
23.04
0.11
0.27
0.09
0.20
0.09
0.18
0.09
0.22
10.16
0.14
0.14
0.13
0.12
6.69
0.11
0.10
0.10
0.09
21.51
0.20
0.20
0.18
0.17
16.2
12.79
22.56
4.96
7.88
134.58
0.19
0.17
0.25
0.10
0.11
0.17
0.17
0.14
0.23
0.10
0.11
0.16
0.16
0.11
0.21
0.09
0.10
0.14
0.15
0.14
0.20
0.08
0.09
0.14
Explanatory note:
Scenario A – Strategic Housing Market Assessment (SHMA) based on initial employment led population
projection data which realigned population levels from 2001 to 2010 with locally derived data sources
and projected growth based on employment projections. Distribution of future population across the city
is aligned with housing units identified through the Strategic Housing Land Availability Assessment
(SHLAA) and application of selected planning policy constraints identified in the Core Strategy Preferred
Approach. Average household size is derived from the SHMA assumptions.
Scenario B – Strategic Housing Market Assessment based on ONS population estimates 2001 to 2010
and ONS projections to 2026. Distribution of future population aligned with housing units identified
through the SHLAA with limited planning policy constraints applied to site selection.
Scenario C – 22% increase in population of 169,700 between 2008 and 2026 using ONS population
projections evenly distributed between the analysis areas.
8.21
The table shows three scenarios based on different population growth. It
demonstrates that future provision of allotments available to the public would
reduce, reaching as low as 0.14 hectares per 1,000 population, if the city
experiences very high population growth. It should be noted that these
scenarios are applied to only those identified allotment sites that are currently
in use, and take no account of the existing waiting lists or disused sites.
Setting the Standard Quantity
8.22
It is recommended that the quantity standard for allotments should be derived
from the local needs assessment and existing provision. Current provision
was viewed as “about right” from the residents surveyed. However, the
allotment demand is currently 1,183 (discounted) people on waiting lists for
sites, and the potential number of full plots available are 396, which leaves an
outstanding demand for 787 plots assuming the disused sites could be
returned to use.
138
8.23
The majority of demand from the waiting lists are for sites in the North West
Outer, North West Inner/Outer and the North East Inner areas with the latter
having only 7 potential plots and 232 (discounted to 198) interested people
already on the waiting list.
8.24
Whilst Leeds currently has no quantity standard for allotments, current city
wide provision is at a level of 0.17 hectares of allotment land (in use) per
1,000 population or 0.19 hectares when also including disused sites, has a
waiting list of 1,183 (discounted) and an unknown latent demand. As a
minimum, the latent demand should be calculated using a projected increase
of 11%. This is based on the amount of extra land required to satisfy the
2010 waiting list in the East Outer analysis area. This area requires the
lowest proportional increase (11%) to its existing amount of in use allotment
land increase to satisfy demand arising from the names on the waiting list.
This is the lowest proportional increase of all the analysis areas and is in
addition to demand identified on the waiting lists.
Existing level of provision = 0.19 Hectare per 1,000 population
Proposed level of provision = 0.24 Hectare per 1,000 population
8.25
The recommended local quantity standard is 0.24 hectares of allotment land
per 1,000 population. As shown in table 8.2, East Outer and South Outer
areas meet the recommended quantity standard of 0.24 hectares per 1,000
population at present. However, without an increase in provision, none of the
areas will meet this standard by 2026 when compared to the three growth
scenarios.
Current Provision Quality
8.26
The amended Green Flag criteria was used to assess the quality of sites
during the audit process. The average score for allotment sites is 5.1 out of a
potential 10 points. In general the quality of sites throughout Leeds was
considered to be good/average. Through the consultation process, residents
suggested that quality standards should consider the following essential
facilities:
• Clean and litter free environment
• Toilet provision
• Litter bins
• Good site access
• Free from dogs
8.27
All the points above were assessed in the site audit, with marks being given
for categories including good and safe access, litter and waste management,
and grounds maintenance. When auditing allotment sites the provision of
particular facilities were considered as beneficial, including an information
sign containing the name of the site and a contact number, the quality of
paths and boundaries between the plots and building or infrastructure
maintenance (this included water supply and communal structures).
139
8.28
Table 8.3 below presents the results of the quality assessment for allotment
sites in use. It is expected that these are better maintained and kept to a
higher standard than those that are currently disused. Disused allotment sites
are often overgrown and require substantial improvements to facilitate further
allotment use. The disused allotment sites scored on average 3.24 out of 10
and were considered to be of poor quality. The score ranged from 0 for St
Barts Allotments to 5.5 for Club Lane Allotments. Over two thirds of disused
allotment sites score less than 4 (considered to be of a poor or very poor
standard).
Table 8.3 Quality of Allotments in Use by Analysis Areas
Analysis
Area
Average
Quality
Score
5.87
Range
of
Scores
2.11 5.23
2.40 7.09
1.63 8.16
5.03
0.00 7.60
4.79
2.45 6.00
East Inner
3.73
East Outer
North East
Inner
4.78
North East
Outer
North
West Inner
North
West
Outer
South
Inner
South
Outer
West Inner
West
Outer
Leeds
8.29
5.01
0.90 7.83
3.66 7.41
1.42 7.16
5.74
3.54 7.58
5.32
5.69
5.44
1.77 7.50
5.10
0.00 8.16
Lowest
Quality Site
Red Road
Allotments
Bank Row
Allotments
Bandstand
Allotments
Deanswood
Drive
Allotments
Woodhouse
Moor
Allotments
Gallows Lane
Allotments
Shafton Lane
Allotments
Daisyvale
Terrace
Stanningley
Road
Allotments
Ring Road
Lower Wortley
Allotments
Deanswood
Drive
Allotments
Highest Quality Site
Fearnville Allotments
Byelaw men's Field
Allotments
Meanwood Valley
Urban Farm
Number
of Sites
7
22
7
Woodlea (Primrose
Lane) Allotments
11
St Anne's Road
Allotments
8
Willow Green
Allotments
Lady Pit Land
Allotments
Haigh Road
Allotments
24
7
27
Hayley's Field
Allotments
Priesthorpe Lane
Allotments/ Calverly
(Gatescroft)
Allotments
11
Meanwood Valley
Urban Farm
129
5
As shown in table 8.3 above, all areas scored an average of less than 6 with
the average Leeds score being 5.10. In total, 11% of sites (15 out of 128)
scored over 7 and are considered a good standard, over half ( 59%) scored
140
more than 5. It would be reasonable to expect deliverable improvements to
improve the majority of sites to a score of 7 or above.
8.30
As demonstrated in table 8.3, East Inner and East Outer score 3.73 and 4.78
respectively with North West Inner scoring 4.79. These are the only areas
that possess an average score below 5. The highest area average score is
North East Inner with a score of 5.87.
Setting the Standard – Quality
8.31
The Green Flag award is assessed in two key ways, firstly by reviewing a site
management plan, and secondly a field assessment based primarily on
observation during a site visit. Each category is given a score out of 10, with
a maximum of 30 points for the desk assessment and 70 points for the field
assessment. To achieve the standard a minimum of 15 on the desk
assessment and 42 on the field assessment is needed, however, an award
can only be given if the overall score is greater than 65. The council’s Parks
and Countryside Service operate a rolling programme of assessing 150 of the
city’s most popular parks and green spaces against an amended Green Flag
standard. This exercise is known as Leeds Quality Parks (LQP) and
assesses 50 sites every year, or 150 sites over 3 years.
8.32
In assessing sites for LQP, the Green Flag desk assessment is not carried out
as most sites do not have a management plan. Thus, only the field based
assessment is conducted, and as explained above, the score required to
reach the standard is in effect 48. On average, each category must,
therefore, achieve 7 out of 10 to reach the standard, although there is no
minimum score for each category.
8.33
As the PPG17 audit considered on-site quality using a field based
assessment, the proposal is that the Green Flag quality standard, for the field
assessment, is extended to all allotment sites. To account for the absence of
the desk assessment and retain the disproportionate Green Flag emphasis on
an overall pass mark, it is proposed to set the quality standard at 7 out of 10,
or 70%. This is consistent with the council’s existing LQP standard.
Existing Quality average is 5.55
Proposed Quality Standard is 7 out of 10 (70%)
8.34
The overall perception of allotment sites within the study is average or good.
The audit scores also reflect this and based on the current scores most sites
are achieving or would be able to achieve a 7 with a few improvements.
Accessibility
8.35
The needs assessment surveys identify that most people expect to walk to
allotments and on average most people would expect to walk 15 or 20
minutes to an allotment site.
141
8.36
60% of Leeds households live within 720 metres (15 minute walk time) of an
allotment site currently in use and larger than 0.2 hectares. The only analysis
area significantly below this level of access is North East Outer area with only
32.23% of households within 720 metres of an allotment site. The average
distance to an allotment site is 766 metres.
8.37
Plan 8.3 identifies areas of Leeds which are further than 15 minutes from an
in use allotment site. These areas include Middleton, central Leeds,
Cookridge, and Wetherby, reinforcing the areas of deficit identified in the
quantity analysis.
142
143
Setting the Standard - Accessibility
8.38
Accessibility is important to all allotment sites to maximise the number the
potential users. The survey found that the majority of people expect to walk
between 10 (480 metres) and 15 minutes (720 metres) to an allotment site.
The average distance to an allotment site is 766 metres.
Recommended Accessibility Standard
8.39
The recommended local accessibility standard for allotments is a 15 minute
walk time.
15 minute walk time
Applying the Standards of quantity, quality and accessibility
Recommended Allotment Standards
Quantity =
0.24 hectares per 1,000 population
Quality =
7 out of 10 (70%)
Accessibility =
15 minute walk time
8.40
The application of the recommended quantity, quality and accessibility
standards is essential to understand the existing distribution of allotments and
identify areas of deficiency. Whilst it is important to consider the application of
each standard in isolation, in reality they should be considered in the context
of other green space typologies.
8.41
The application of the local quantity standard for each area is set out in Table
8.4. The table illustrates the application of the standard against the current
provision, and the likely implications of three projected growth scenarios. The
figures represent the difference in hectares between the area of land required
to meet the standard and the current provision.
144
Table 8.4 Application of Quantity Standard for Allotments to show Deficits and
Surplus by Analysis Areas
Analysis
Area
East Inner
East Outer
North East
Inner
North East
Outer
North West
Inner
North West
Outer
South Inner
South Outer
West Inner
West Outer
Leeds
Current
position
(0.24
hectares per
1,000
population)
Future
balanced
against local
standard Scenario A
(0.24 hectares
per 1,000
population)
Future
balanced
against local
standard Scenario B
(0.24 hectares
per 1,000
population)
Future
balanced
against local
standard –
Scenario C
(0.24 hectares
per 1,000
population)
-10.54
2.55
-13.68
-4.26
-15.71
-6.94
-14.75
-1.92
-6.86
-7.25
-7.92
-10.56
-8.26
-8.80
-9.46
-11.51
-3.96
-4.75
-6.75
-9.51
-4.75
-5.13
0.82
-7.11
-9.18
-52.44
-6.59
-9.86
-0.62
-7.51
-10.07
-73.38
-8.11
-15.69
-3.30
-8.28
-11.00
-93.18
-9.32
-9.04
-3.92
-9.74
-12.90
-93.17
Explanatory note:
Scenario A – Strategic Housing Market Assessment (SHMA) based on initial employment led
population projection data which realigned population levels from 2001 to 2010 with locally
derived data sources and projected growth based on employment projections. Distribution of
future population across the city is aligned with housing units identified through the Strategic
Housing Land Availability Assessment (SHLAA) and application of selected planning policy
constraints identified in the Core Strategy Preferred Approach. Average household size is
derived from the SHMA assumptions.
Scenario B – Strategic Housing Market Assessment based on ONS population estimates 2001 to
2010 and ONS projections to 2026. Distribution of future population aligned with housing units
identified through the SHLAA with limited planning policy constraints applied to site selection.
Scenario C – 22% increase in population of 169,700 between 2008 and 2026 using ONS
population projections evenly distributed between the analysis areas.
8.42
Table 8.4 demonstrates that there is insufficient provision of allotment space
in Leeds to meet current and future demand following application of the
proposed quantity standard. Also, the two areas in surplus at present (East
Outer and South Outer) fail to meet the standard for any of the population
growth scenarios.
Summary
8.43
Allotments are used by a small proportion of the population. However, interest
in managing a plot is increasing as evidenced by the growing waiting list.
145
8.44
Existing demand can be measured using plot take up and the size of waiting
lists. Assumptions have been made regarding the latent demand and it is
clear the number of available allotment plots will have to increase to meet the
growing demand. This study has also assumed the provision and take up of
whole allotment plots (measuring 250 metres squared) but half plots and
quarter plots have increasingly become a common management approach to
increase provision on existing sites and this also meets the needs of some
newer tenants who require smaller plot sizes than traditional full plots. It
should also be noted that some allotment sites are currently used for grazing
animals and if managed as growing plots could help to meet the increasing
demand.
8.45
The key issues for allotments can be summarised as:
• used by a small proportion of the population, however, the waiting list
has increased by 25% between 2010 and 2011;
• increased provision of new sites and plots will be required to meet the
standard and satisfy waiting list demand;
• increase future provision using alterative plot sizes such as half plots
and quarter plots;
• parish and town council’s need to be more active in the locations where
they are the statutory allotment authority;
• some allotment sites are currently used for extensive animal grazing and
could be more intensively and efficiently used for growing food.
146