3 11/539 PERTH AND KINROSS COUNCIL
Housing and Health Committee – 2 November 2011
PERTH AND KINROSS LOCAL HOUSING STRATEGY 2011-2016
Report by Executive Director (Housing & Community Care)
ABSTRACT The purpose of this report is to seek approval for Perth and Kinross Local Housing Strategy 2011-16.
1. RECOMMENDATION(S)
It is recommended that Committee:
1.1 Approve the Perth and Kinross Local Housing Strategy (LHS) 2011-16 (Appendix 1) and its submission to the Scottish Government.
2. BACKGROUND
2.1 The Housing (Scotland) Act 2001 requires local authorities to undertake a comprehensive assessment of housing needs and conditions, and to produce local housing strategies to tackle the housing problems in their areas. The Housing and Health Committee approved an ‘interim’ LHS 2009-2012 on 3 February 2010 (Report 10/57).
2.2 Under section 89 of the Housing (Scotland) 2001 Act, local authorities are required to submit their LHS to the Scottish Government for assessment and it should meet Scottish Government guidance on the preparation of local housing strategies.
2.3 Scottish Government Planning Guidance complements the guidance on LHS and indicates the requirement for clear linkages between the LHS and the preparation of the Strategic Development Plan (SDP). The Scottish Government has indicated that it expects the LHS to be submitted to Scottish Ministers following the consultation phase of the SDP Main Issues report and prior to the publication of the proposed SDP. Therefore a full five year LHS is now required by the Scottish Government.
3. PROPOSALS
3.1 It is proposed that Committee approve the Perth and Kinross LHS 2011-16 (Appendix 1) and its submission to the Scottish Government.
3.2 The Perth and Kinross LHS 20011-16:
• Provides an overview of the housing system in Perth and Kinross.
1 • Provides the strategic framework for the future development of the local housing system, through which housing providers and investors can operate, so that needs and demands can be met more effectively with available resources.
• Establishes a shared understanding of the issues and priorities where some form of intervention is required and sets out actions on how these issues and priorities will be addressed by the Council and its partners.
• Sets objectives and targets, and shows how progress will be monitored and impact evaluated.
• Identifies how the Strategy contributes to the achievement of the national housing priorities and the wider social objectives as identified in the Community Plan and Single Outcome Agreement.
3.3 The Strategy sets out four main investment priority themes. These are:
• Addressing Housing Requirements to enable housing supply in the size and type people need, in the areas they want to live, and that they can afford.
• Developing appropriate housing and related services to Promote Sustainable and Mixed Communities.
• Improving Stock Conditions and Energy Efficiency helping to reduce fuel poverty.
• Assisting People With Particular Needs to ensure there is a range of house sizes and types available with appropriate support to meet the needs of people with particular needs.
4. CONSULTATION
4.1 A significant amount of consultation has taken place which helped to inform the development of the LHS. Stakeholders consulted include:
• Elected Members of Perth and Kinross Council. • LHS Steering Group. • Other Council services. • Perth and Kinross Community Health Partnership. • Registered Social Landlords (RSLs). • Scottish Government. • Council staff. • Perth and Kinross Housing Forum. • Homes For Scotland. • Private landowners, developers and landlords. • Registered Tenant and Resident Organisations. • Residents of Perth and Kinross.
2 • Community Councils. • Neighbouring local authorities. • National Park Authorities. • Equalities groups.
4.2 A summary of the main issues identified is shown in section 1.5 of Appendix 1.
4.3 The development of the Strategy has been overseen by a multi-agency Steering Group with representation from key Services within the Council, Scottish Government, Perth and Kinross Community Health Partnership and RSLs.
4.4 The Perth and Kinross Tenants’ and Residents’ Federation were also consulted about this report.
5. RESOURCE IMPLICATIONS
5.1 Direct resource implications arising directly from this report emanate from the proposed local authority new build housing programme, use of land currently in Council ownership and use of the second home Council Tax fund for affordable housing. Whilst building new council housing to increase the supply of affordable housing is a clear priority for this Council, continuing and increased financial support from the Scottish Government is required for us to meet our strategic objectives.
5.2 Detailed resource implications will be reported to respective Council committees. The Strategy sets out for 2011/12 budgets already confirmed. Budgets for future years are highlighted as notional and are subject to future budget decisions by Council.
6. COUNCIL CORPORATE PLAN OBJECTIVES 2009-2012
The Council’s Corporate Plan 20011-2016 lays out five Objectives which provide clear strategic direction, inform decisions at a corporate and service level and shape resources allocation. These are reflected in the LHS and are as follows:
(i) A Safe, Secure and Welcoming Environment. (ii) Healthy, Caring Communities. (iii) A Prosperous, Sustainable and Inclusive Economy. (iv) Educated, Responsible and Informed Citizens. (v) Confident, Active and Inclusive Communities.
7. EQUALITIES IMPACT ASSESSMENT (EqIA)
7.1 The Council’s Corporate Equalities Assessment Framework requires an equality impact assessment of functions, policies, procedures or strategies in relation to race, gender and disability and other relevant protected characteristics. This supports the Council’s legal requirement to comply with the duty to assess and consult on relevant new and existing policies.
3
7.2 The function, policy, procedure or strategy presented in this report was considered under the Corporate Equalities Impact Assessment process (EqIA) with the following outcome:
• Assessed as relevant and the following positive outcomes expected following implementation:
⇒ Promotion of equality of opportunities for minority groups.
⇒ Meeting the needs of our service users who may be a member of a minority group.
7.3 The LHS reflects Perth and Kinross Council’s Housing and Community Care Services Equalities Action Plan.
8. STRATEGIC ENVIRONMENTAL ASSESSMENT
8.1 Strategic Environmental Assessment (SEA) is a legal requirement under the Environmental Assessment (Scotland) Act 2005 that applies to all qualifying plans, programmes and strategies, including policies (PPS).
8.2 The matters presented in this report were considered under the Environmental Assessment (Scotland) Act 2005 and pre-screening has identified that the PPS will have no or minimal environmental effects, it is therefore exempt and the SEA Gateway has been notified. The reason for concluding that the PPS will have no or minimal environmental effects is that after consideration of the analysis provided to the SEA Gateway by the Council, the Council has received confirmation from the SEA authorities that the Local Housing Strategy is not likely to have significant environmental effects. Therefore Council proceeds to make a ‘screening determination’ and submits this to the Scottish Government. This will then be publicised including a notice being placed on the Council website.
9. CONCLUSION
The purpose of this report is to seek approval for the Perth and Kinross Local Housing Strategy 20011-16.
David Burke Executive Director (Housing and Community Care Services)
Note: The following background papers, as defined by Section 50D of the Local Government (Scotland) Act 1973 (and not containing confidential or exempt information) were relied on to a material extent in preparing the above report. Guidance on Preparing Local Housing Strategies, Scottish Government, Edinburgh, 2008
4 Contact Officer: Stephen Rankin, Planning and Commissioning Manager, Housing and Community Care Email: [email protected] Ext 761174
Address of Service: Housing and Community Care, 5 Whitefriars Crescent, Perth, PH2 0PA
Date: 12 October 20011
(Stephen Rankin)
5
6
PERTH AND KINROSS
LOCAL HOUSING STRATEGY
2011-2016
November 2011
7 Foreword
The Housing (Scotland) 2001 Act requires local authorities to undertake a comprehensive assessment of housing needs and conditions, and to produce strategies to tackle the housing problems in their areas. This is the Perth and Kinross Local Housing Strategy (LHS). The Strategy:
• Describes the extent and type of housing need and demand.
• Sets out the local authority’s strategic vision for the future of housing across all tenures, taking account of national priorities.
• Sets out how the standard of housing will be improved.
• Provides clear strategic direction for housing investment.
• Identifies specific commitments made by the local authority and key partners to enable the delivery of outcomes as shared priorities.
• Show how the housing circumstances for households in all tenures will be improved.
The Strategy sets out what Perth and Kinross Council is planning to do, in co-operation with our partners, to address the above issues over the five-year period 2011-2016. Efforts were made in the preparation of the Strategy to take account of the views of all stakeholders and we would welcome any further comments that you may have. We look forward to working in partnership with you, in the future, in our joint attempts to implement the LHS.
1 8 Contents Page
1. Introduction 4
2. The Strategic Planning Framework 8
3. Our Vision 15
4. Addressing Housing Requirements 16
5. Promoting Sustainable and Mixed Communities 27
6. Improving Stock Condition and Energy Efficiency 32
7. Assisting People With Particular Needs 40
8. Action Plan 49
9. Financial Framework 52
10. Risk Assessment and Risk Register 56
11. Monitoring and Reviewing the Strategy 56
12. Outcome Monitoring Framework 57
13. Glossary 64
Appendices
1. Strategic Housing Investment Plan 2. Local Housing Needs and Demand Assessment Summary 3. Affordable Housing Policy 4. Equalities Action Plan 5. Tenant Participation Strategy 6. Scottish Housing Quality Standard Delivery Plan 7. Anti-Social Behaviour Strategy 8. Community Safety Strategy 9. Scheme of Assistance 10. Homelessness Strategy 11. Below Tolerable Standard (BTS) Housing Action Plan 12. Fuel Poverty Statement 13. Commissioning Strategy 14. List of Organisations Consulted 15. Equalities Impact Assessment 16. Strategic Environmental Assessment
Appendices are available upon request.
2 9 3 10 1. Introduction
1.1 Introduction
Delivering high quality housing in safe and secure neighbourhoods and ensuring that Perth and Kinross is a place where everyone enjoys good quality housing in a pleasant and safe environment is a key priority for the Perth and Kinross Community Planning Partnership and Perth and Kinross Council. The Local Housing Strategy (LHS):
• Provides an overview of the housing system in Perth and Kinross.
• Provides the strategic framework for the future development of the local housing system, through which housing providers and investors can operate, so that needs and demands can be met more effectively with available resources.
• Establishes a shared understanding of the issues and priorities where some form of intervention is required and sets out actions on how these issues and priorities will be addressed by the Council and its partners.
• Sets objectives and targets, and shows how progress will be monitored and impact evaluated.
• Identifies how the Strategy contributes to the achievement of the national housing priorities and the wider social objectives as identified in the Community Plan and Single Outcome Agreement.
The Strategy sets out four main investment priority themes. These are:
• Addressing Housing Requirements to enable housing supply in the size and type people need, in the areas they want to live, and that they can afford.
• Developing appropriate housing and related services to Promote Sustainable and Mixed Communities.
• Improving Stock Conditions and Energy Efficiency helping to reduce fuel poverty.
• Assisting People With Particular Needs to ensure there is a range of house sizes and types available with appropriate support to meet the needs of people with particular needs.
1.2 Is the Strategy Available in Other Forms?
There is a shorter summary Strategy. It is available in Braille, large print and in some minority languages, upon request. Please use the contact details below for further information or copies.
1.3 How Can You Have Your Say on the Strategy?
You can write with your comments, using the response form at the rear of this document, to:
Norma Robson Team Leader Planning and Policy Housing and Community Care Perth and Kinross Council 5 Whitefriars Crescent PERTH PH2 0PA
Tel: 01738 476090 / Email: [email protected]
4 11 1.4 How Was The Strategy Produced?
The development of the Strategy has been overseen by a multi-agency LHS Steering Group with representation from key services within the Council, Scottish Government, Perth and Kinross Community Health Partnership and neighbouring local authorities and sits under the umbrella of the Perth and Kinross Community Plan and Perth and Kinross Strategic Health Partnership. The LHS Steering Group is a key element in the community planning structure. The LHS Steering Group is tasked with developing the housing theme priorities for the Community Plan. A wide variety of stakeholders are part of the ongoing participation and consultation process. These include:
• Elected Members of Perth and Kinross Council. • LHS Steering Group. • Other Council services. • Perth and Kinross Community Health Partnership. • Registered Social Landlords (RSLs). • Scottish Government. • Council staff. • Perth and Kinross Housing Forum. • Homes For Scotland. • Private landowners and developers. • Private landlords. • Registered Tenant and Resident Organisations. • Residents of Perth and Kinross. • Community Councils. • Neighbouring local authorities. • National Park Authorities. • Equalities groups.
1.5 Consultation on LHS
This document sets out the LHS for 2011-16. In preparation for this document the Council consulted upon a draft LHS in the Autumn of 2011 and many of the key points have been taken on board when developing the LHS. The main issues identified were:
(a) Addressing Housing Requirements
• Strategic Development Plan land requirements. • Sufficient land allocations to meet all housing needs. • Definitions of affordable housing affordability of rents. • Private sector involvement in developing new affordable homes. • Affordable housing for local young people. • Housing design that is in keeping with the characteristics of each town. • Improving and upgrading existing stock rather than focussing on building new ones. • Management issues in the private rented sector. • Increasing the provision of affordable rented housing in particular areas. • Need to take into account major retail developments, infrastructure (water, school capacity, employment etc), in advance of housing developments. • Developing land banks.
(b) Promoting Sustainable and Mixed Communities
• Need to tackle problems of crime and anti-social behaviour. • Recognising needs of rural communities. • Delivering customer focussed services. • Importance of the neighbourhood environments, open spaces and facilities. • Creation of employment opportunities in housing development. • More localised consultation and planning.
5 12 (c) Improving Stock Condition and Energy Efficiency
• Increasing grant assistance availability from Council. • Improving common property management arrangements.
(d) Assisting People with Particular Needs
• Meeting the needs of people with a physical disability. • Ensuring housing is accessible through barrier free design and location. • Increasing the number of housing for older people units across all tenures. • Recognising needs of rural communities. • Enabling and sustaining people in their own home through the delivery of housing support services. • Reducing the impact of homelessness upon peoples’ lives through the targeting of good housing support and advice. • Improving parts of the document’s presentation.
1.6 Future Consultation
Consultation on the LHS will continue through a range of methods and will include:
Monitoring Strategy implementation and impact through respective Council committees and LHS Steering Group. Through the monitoring of related strategies (e.g. Fuel Poverty Statement, Housing with Care Policy, Scottish Housing Quality Standard Delivery Plan, Tenant Participation Strategy and Homelessness Strategy). Consultation on the Local Authority Capital Programme. Housing Forum - forum involving all local RSLs. Council Tenants Surveys to establish tenant priorities and evaluate tenant satisfaction. Annual Tenants Conference. With RSLs through consultation on the Strategic Housing Investment Plan to establish joint priorities and actions. Private landlord forums Consultation with equalities groups. Publicise and distribute the Strategy through a number of forums, including the local press, newsletters and the Council’s web site, and invite feedback.
1.7 Equalities
In recent years a range of legislation and policy developments have required public bodies to ensure that they deliver their services in a non-discriminatory manner and promote equality. All public bodies have been required to produce equality schemes. The planning and delivery of good quality housing, appropriate information, advice, care and support services in Perth and Kinross embraces the principle of equal opportunities.
Perth and Kinross Council Housing and Community Care Services have an Equalities Action Plan, covering all of the equalities strands, which aims to ensure that all services, including this LHS and related actions take positive steps towards the equalities agenda. This means that the Council will strive to encourage equal opportunities and diversity, responding to the different needs and service requirements of people regardless of gender, race, colour, disability, age, nationality, marital status, ethnic origin, religion or belief, sexual orientation or gender re-assignment.
Perth and Kinross Council’s Housing and Community Care Services has a dedicated equalities action plan, (see appendix 4), which sets out a detailed list of actions which for each of the equality strands aims to:
6 13 • Tackle discrimination and harassment directed against equalities groups. • Promote equality of opportunities for equalities groups. • Promote positive attitudes towards equalities groups. • Encourage participation in public life by equalities groups. • Endeavour to meet the needs of our service users who may be a member of an equalities group.
The LHS has undergone an equality impact assessment to review the potential effects of the Strategy. As an integral part of this process equalities groups organisations, (see appendix 15), were consulted in preparing the LHS. The LHS plays a significant role in promoting the equalities agenda and demonstrates that significant investment is being undertaken in housing for people with particular needs (e.g. older people) as well as addressing the needs of a range of individuals with community care needs whether they are part of planned discharge or remodelling programmes or currently live in unsuitable housing in the community. Housing and related services are integral to the development of community care services and this is evidenced in the prominence of housing issues in Perth and Kinross community care group strategies.
The council’s approach to meeting the needs of people with particular needs focuses predominantly on a ‘supported living’ approach which seeks to enable individuals to live independently within their own homes integrated within existing communities. This approach has proved successful in the re-provisioning programmes for people with learning disabilities and mental health problems. For future provision for particular needs it is envisaged that this need will be met mainly within housing for varying needs in mainstream developments with a small number of fully wheelchair standard units incorporated wherever practical and required.
There is a requirement for a wide range of housing which is suited to the needs of older people, people with mobility problems and others with particular needs including individuals requiring suitable accommodation and support as part of planned discharge and resettlement programmes. The Council’s approach is to enable integrated developments with appropriate support and management arrangements to assist individuals with community care needs to live independently rather than develop ‘specialist’ schemes. This is reflected in the overall Strategic Housing Investment Plan programme where a significant proportion of the total programme will be dedicated towards meeting the particular needs of equalities groups.
1.8 Strategic Environmental Assessment
The Environmental Assessment (Scotland) Act 2005 places a legal requirement on local authorities to assess public policies, plans and strategies showing their potential impact on the environment. A Strategic Environmental Assessment (SEA) ensures that environmental issues are considered by decision makers alongside social and economic issues.
After consideration of the analysis provided to the SEA Gateway, the Council has received confirmation from the SEA authorities that the Local Housing Strategy is not likely to have significant environmental effects. Therefore the Council will proceed to make a ‘screening determination’ and submit this to the Scottish Government (see appendix 16). This is then publicised including a notice being placed on the Council website.
7 14 2. The Strategic Planning Framework
2.1 Scottish Government’s National Housing Priorities
In February 2011 the Scottish Government published its Strategy and Action Plan for Scotland’s Housing in the next decade ‘Homes Fit for the 21st. Century’. The vision underpinning this plan was:
• For a housing system which provides an affordable home for all, to achieve a strong recovery in the construction sector and a substantial increase in the number of homes of all types, including housing to meet the needs of disabled people and older people for independent living.
• An improvement in the quality of housing, so that everyone has a warm and comfortable home, whether they own it, part own it, rent it privately, or rent from a social landlord.
Homes Fit for the 21st. Century identified four major housing related targets. These were that:
1. By December 2012, all unintentionally homeless households will be entitled to settled accommodation.
2. By April 2015, all social landlords must ensure that all their dwellings pass all elements of the Scottish Housing Quality Standard.
3. By November 2016, so far as is reasonably practicable, nobody will be living in fuel poverty in Scotland.
4. By December 2020, improved design and greater energy efficiency in housing will have made a contribution to Scotland’s commitments to reduce our energy consumption by 12% and our greenhouse gas emissions by 42%.
These were translated into the following strategic objectives:
• To build the new, high quality, affordable homes, (including social housing), to meet current need and the demand arising from Scotland’s growing and ageing population.
• To maximise the sustainable housing options available across all tenures, including for people living on lower incomes, and to significantly improve the quality of the existing housing stock and the places we create.
2.2 Legislative Context
There are several main legislative frameworks, which significantly influence this Strategy. These include:
• Housing (Scotland) Acts, 2001, 2006 and 2010. • Regulation of Care Act (Scotland) Act 2001 • Community Care and Health (Scotland) Act 2002. • Homelessness etc (Scotland) Act 2003. • Local Government (Scotland) Act 2003. • Anti-social Behaviour (Scotland) Act 2004. • The Climate Change (Scotland) Act 2009. • Equality Act 2010.
8 15 2.3 Local Policy Context
The Single Outcome Agreement (SOA) for Perth and Kinross sets out the key local outcomes that the Community Planning Partnership is committed to achieving for the people and communities of Perth and Kinross. It builds on the strategic direction of the Perth and Kinross Community Plan and is integral to delivering priorities for the area. The SOA demonstrates how the Perth and Kinross Community Planning Partnership will address each of the national outcomes locally in the area. The national outcome which the LHS directly contributes to is Outcome 10 ‘We live in well-designed, sustainable places where we are able to access the amenities and services we need.’ Central to meeting this outcome is the supply of affordable housing to ensure that residents in the area have better access to appropriate and affordable housing of quality. The LHS also plays a significant role in delivering locally on the Scottish national performance indicators especially:
• Increase the rate of new house building (see LHS objective 4.2). • Increase the percentage of adults who rate their neighbourhood as a good place to live (see LHS objectives 5.1 and 5.6). • All unintentionally homeless households will be entitled to settled accommodation by 2012 (see LHS objectives 7.7 to 7.10).
The Perth and Kinross LHS aligned with the Community and Corporate Plans sets the strategic vision, aims and objectives and actions to support them for Perth and Kinross for housing and related matters. The LHS and Strategic Housing Investment Plan link with other national and regional influences and the detailed local strategic context and play an important and integral role in the Council’s priorities. LHS objectives are fully consistent and aligned with corresponding Perth and Kinross Community Plan, Perth and Kinross Council Corporate Plan, related partner plans and the Single Outcome Agreement. There are several national and regional strategies and policies, which also influence this Strategy. These include:
• Scottish Government’s Fuel Poverty Statement. • Review of Fuel Poverty in Scotland 2008 • TAYplan Strategic Development Plan. • Scottish Planning Policy. • National Planning Framework 2. • Reshaping Care for Older People.
2.4 Local Strategic Context
This Strategy complements, and is consistent with, other Perth and Kinross Council Plans and Strategies such as the:
• Single Outcome Agreement. • Community Plan. • Corporate Plan. • Local Development Plan. • Homelessness Strategy. • Tenant Participation Strategy. • Integrated Children’s Services Plan. • Joint Health Improvement Plan. • Towards an Integrated Strategy Addressing Violence Against Women.
The Perth and Kinross Community Plan and the Council’s Corporate Plan have overlapping key themes. These are outlined as:
• A safe, secure and welcoming environment. • Healthy, caring communities. • A prosperous, sustainable and inclusive economy. • Educated, responsible and informed citizens. • Confident, active and inclusive communities.
9 16 The LHS, therefore, plays an important and integral role in the Council’s priorities. The objectives and actions identified in this Strategy flow from the Council’s priorities particularly around improving health, and well being, social inclusion, community regeneration, improving housing, community safety and stimulating the economy.
2.5 The Housing Planning Framework
Scottish Government Scottish Planning Policy (SPP) complements the guidance on Local Housing Strategies and indicates the requirement for clear linkages between the LHS and the Development Plan. Both sets of guidance advocate a close working relationship between the planning and housing functions of the Council and highlights that a robust and up to date Housing Needs and Demand Assessment (HNDA) is required to inform both documents. Within Perth and Kinross Council, there are long established close working relationships between the Council’s planning and housing functions. Joint Working Groups are in place to facilitate these arrangements and both services have closely been involved in a development of the HNDA.
The HNDA was completed in Summer 2009 and received robust and credible status from the Scottish Government in February 2010. The HNDA provides a sound basis to inform the Development Plan and the LHS.
In the case of Perth and Kinross Council, the Development Plan comprises of two documents. Firstly, the Strategic Development Plan (SDP) to be prepared by the Dundee/Perth and Kinross/Angus and North Fife SDP Authority (TAYplan) and secondly, the Local Development Plan (LDP) prepared by Perth and Kinross Council for the Perth and Kinross area. Joint working arrangements are in place between the four constituent Councils of the SDP Authority and consultants were employed to assimilate the four respective individual HNDAs that informed the development of the SDP. This provides housing planning requirements on which the LHS and SDP concur.
Scottish Government guidance requires that the linkages between the LHS and the new Development Plan should primarily occur at the SDP level although there are also clear linkages into the LDP process. Accordingly, the Scottish Government has indicated that it expects the LHS to be submitted to the Scottish Ministers following the consultation phase of the SDP Main Issues Report and prior to the submission of the SDP Proposed Plan to Scottish Ministers.
The SDP however only deals with the strategic issues related to housing land and supply concentrating primarily on the total numbers required across all tenures and identifying the specific requirements for each housing market area. Further detail will be expanded upon with the identification of site specific proposals to meet the SDP targets through the LDP process. Until the new Development Plan is adopted the current Structure Plan and six adopted Local Plans continue to provide the development plan framework
The LDP will consider in more detail issues such as house size, density and tenure together with appropriate percentage quotas for affordable housing. The LDP will assist in the implementation of several other strategic objectives from the LHS through the development of policy or supplementary guidance on issues such as affordable housing, sustainable construction and energy efficiency.
This LHS is informed by the Perth and Kinross HNDA and expresses the findings of such assessment with respect to the requirements of the SPP and LHS guidance and informs the development SDP and LDP processes. This LHS sets out the strategic direction for investment for other features of the housing system. It should be noted that in policy areas such as fuel poverty, homelessness, housing support etc., this LHS provides a firm steer on the strategic intervention that the Council and its partners wish to achieve.
10 17 2.6 Perth & Kinross Council and Scotland’s National Parks
Perth and Kinross Council is in the unique position of partly being located within both Scotland’s national parks. An area around and including Saint Fillins is contained within the Loch Lomond and the Trossachs National Park and the Cairngorms National Park boundary now extends into northern Perthshire to include the Blair Atholl area and Upper Glenshee. While the Council is the local housing authority for the whole Council area, the Park Authorities are the planning authority for those parts of Perth and Kinross which lie within the National Parks. The National Park Authorities are responsible for preparing the LDPs within Park boundaries. The planning remit of the Park Authorities differs from local authorities as there is a statutory focus to deliver the aims of National Parks, including promotion of the sustainable economic and social development of the communities within Park areas.
The areas within the National Parks have therefore been excluded from the Perth and Kinross LDP but not the LHS. This LHS is relevant to those areas of the Council which fall within the National Park boundaries and is used to inform the local plans of the parks.
The TAYplan housing projections are based on the entire Council area including the area within the Cairngorm National Park, but do not include the Loch Lomond and Trossachs National Park as this is outside the SDP area. The average number of housing completions within the Cairngorm National Park area over the past 5 years was less than 10 per annum. As a consequence the total housing requirement per year for the Highland HMA has been reduced by a conservative 5 per year. For the Loch Lomond and the Trossachs National Park, no reduction has been made to the Strathearn LHMA because the numbers involved are so small.
2.7 The Structure of the Local Housing System
Perth and Kinross Council covers an area of 5,286 square kilometres. While approximately one third of the population in the area lives in Perth itself and nearly 60% live either within Perth or within a ‘commuter village’ just outside Perth. Throughout the rural area there are a number of sizeable settlements with a historical status of being the former ‘county towns’. Five relatively self-contained Local Housing Market Areas (LHMAs) exist in Perth and Kinross. These are shown in Table 1 and Map 1.
Table 1: Local Housing Market Areas in Perth and Kinross
Name LHMA Eastern (Strathmore and Glens) Blairgowrie and Eastern Perthshire Greater Perth Perth and the surrounding area Highland Pitlochry, Aberfeldy and the Highland Perthshire area Kinross Kinross and Kinross-shire Strathearn Crieff, Auchterarder and the Strathearn area Source: Perth and Kinross Council
2.8 Local Housing Needs Assessment
The TAYplan Proposed Plan set out both population and housing projections for the Perth and Kinross area. When these are followed back to the LDP timescale, this results in an estimated population of 163,327 in Perth and Kinross in 2024. For this growth to materialise in the region of 910-990 additional houses will need to be built each year. This suggests a total of up to 13,860 houses may be required for the LDP period 2010-2024 (approx. 990 per annum).
The TAYplan-wide Housing Need and Demand Assessment (HNDA) identified the likely need and demand for between 2,050 and 3,590 affordable and market housing solutions per year during the Plan period. The Proposed Plan sets out a framework to identify effective housing land to enable the delivery of around 2,170 homes per year across the TAYplan region, including sites already with planning permission.
11 18 These will contribute to meeting identified need and demand through new build housing, with the remainder being met through a variety of other interventions including those defined in the LHS.
Map 1: Local Housing Market Areas in Perth and Kinross
Source: Perth and Kinross Council
The option of leaving it to the market to respond to low cost market housing has in the past had limited success as developers have understandably responded to market demand which delivered the highest returns and developed at the higher end of the housing market. The LDP is likely to be more prescriptive particularly in larger developments to ensure an appropriate mix of housing, including low cost housing. This may necessitate encouraging higher densities associated with terraced housing or flatted development and adopting some flexibility over the 25% affordable housing requirement where the economic viability of the development is fundamentally affected.
This LHS emphasises that there is a high level of need for additional affordable houses throughout Perth and Kinross. This is demonstrated in the Scottish Government commissioned report ‘Local Housing Need and Affordability model for Scotland – Update’ by Professor Glen Bramley of Heriot Watt University. This report provided robust estimates and forward projections of housing need linked to affordability. Bramley estimates that Perth and Kinross has a need for an additional 540 affordable houses per year, among the highest levels of any local authority area in Scotland.
The Council commissioned an independent HNDA using Scottish Government guidance. It demonstrated that high levels of affordable housing exist across Perth and Kinross with a requirement for 574 affordable housing units per year over a five year period.
12 19 Particularly with anticipated reductions in Scottish Government grant funding for affordable housing, it is very unlikely that the gap between need and supply will be met on an annual and accumulating basis. Acknowledging this growing gap the Council has initiated alternative means of extending the supply of affordable housing units and these are outlined in the text box in page 14.
Table 2: Affordable Housing Need in Perth and Kinross, 2008-2013 (per annum)
A B C D
Newly Total LHMA Backlog Need Affordable Arising Need Affordable for Affordable Housing Affordable Housing Need Housing Supply Housing (A+B-C)
Eastern (Strathmore 54 157 125 86 (15%) and Glens)
Highland 96 75 56 115 (20%)
Kinross 41 65 53 52 (9%)
Greater Perth 199 592 534 258 (45%)
Strathearn 62 93 92 62 (11%)
Perth and Kinross 452 982 860 574* Source: Arneil Johnston Consulting/Perth and Kinross Council. * Difference due to rounding
The level of need in the housing market areas throughout Perth and Kinross is summarised in the table 2. The highest requirement is in the Greater Perth LHMA (45% of the total), followed by Highland (20%), Eastern (Strathmore and The Glens) (15%), Strathearn (11%) and Kinross LHMAs (9%). This shows that significant and ongoing levels of unmet affordable housing needs exist across Perth and Kinross, particularly in the Greater Perth LHMA.
The Strategic Housing Investment Plan (SHIP – see appendix 1) provides more detail on the new supply affordable housing investment over the next 3-5 years. It shows how affordable housing investment priorities, articulated in the main body of the LHS, are to be delivered in practice. Building on the LHS, it reinforces LHS objectives, outcomes and targets, identifies the local authority as the strategic housing body and gives priority to Perth and Kinross Council’s perspective on its housing needs.
The target levels of investment in the LHMAs are influenced by information from the HNDA completed in 2009. The assessment of housing need and subsequent related targets in the delivery of affordable housing is divided into five LHMAs. The SHIP identifies investment programmes at LHMA level and efforts will be made in future years to address any imbalances occurring in the investment programme due to lack of opportunities for investment in areas assessed as having high levels of housing need. As detailed in the Table 2 above, current need is most heavily concentrated in the Greater Perth LHMA, which accounts for 44% of the backlog. The Highland LHMA accounts for 21% of the backlog requirement, followed by Strathearn (14%), Eastern (12%) and Kinross (9%).
The HNDA also gives a detailed profile of newly arising need. This is established by examining the location of newly forming and homeless households and by determining the size and type of property required to address the housing needs identified. The pattern of newly arising need is very relevant in informing the balance of the future investment programme in that it is in areas of high newly arising need that future development is concentrated.
13 20 The HNDA found that newly arising need is heavily concentrated in the Greater Perth area (60%), with the remaining 40% spread across the remaining LHMAs including Eastern (16%), Highland (8%), Kinross (7%) and Strathearn (9%).
In terms of overall affordable housing need Greater Perth LHMA accounts for 45% with Highland LHMA at 20%, followed by Strathearn (11%), Eastern (15%) and Kinross (9%). This information together with data from social rented sector waiting lists, turnover and vacancy trends in stock is used to help inform the shape of the investment programme to prioritise projects which will address housing needs in areas with the most acute housing shortage.
The SHIP is submitted to the Scottish Government on an annual basis. While the SHIP estimates requirements for the affordable housing programme the process of overall resource allocation for housing association development in Perth and Kinross is primarily determined by the Scottish Government.
The main resource challenge over the period of the LHS is the likelihood of a significant reduction in the overall Scottish Government resource allocation for new build affordable housing across Scotland. The Council is able to supplement the Affordable Housing Programme through the application of the Affordable Housing Policy including the facility to accept commuted sums as part of the policy. The Council can also secure direct grant funding from the Scottish Government to assist the Council’s new build development programme.
The LHS sets out plans to deliver a level of affordable housing that is less than the level of need identified in the HNDA, based on available resources. The gap between what is required and what can be delivered within current financial constraints for new supply has led the Council to explore alternative strategic options that can assist to address the shortfall. Options which have been taken include:
• Developing a Rent Bond Guarantee Scheme. • Establishing a council lettings agency managing private rented sector properties. • Delivering a housing options service. • Expanding the Mortgage to Rents scheme. • Buying back of former Council Right to Buy (RTB) properties. • Employing the Affordable Housing Policy to consider alternative routes/tenure in its delivery.
For example the number of affordable housing completions for 2009/2010 was 363, and in 2010/2011 was 115. These were the completions built with Scottish Government subsidy assistance. To date there have been no discount for sale or developer low cost home ownership units provided without government funding. However, this may change and units may come through this route in the future. The number of affordable housing units which have been approved since the Affordable Housing Policy was introduced in 2005 and not built out is around 700.
2.9 Strategic Housing Investment Plan
The main focus of the SHIP is Scottish Government publicly subsidised housing. In addition where other funding streams are to address LHS priorities for affordable housing or to complement Scottish Government resources, these are also explored. The SHIP looks forward for a period of 3-5 years, and is designed to be working tool which:
• Improves longer-term strategic planning. • Provides a practical plan detailing how investment in affordable housing will be directed over a five year period to achieve the outcomes set out in the LHS. • Provides an opportunity for local authorities to set out key investment priorities for affordable housing and demonstrate how these will be delivered and identifies resources which will help deliver these priorities. • Forms the basis for more detailed programme planning.
14 21 • Provides a focus for partnership working. • Informs, and is informed by, the preparation of RSL Strategy and Development Funding Plans. • Informs the allocation of resources from a national to a local authority level.
Projects in the SHIP are prioritised in terms of:
• Contribution to Single Outcome Agreement and Local Housing Strategy. • Contribution to meeting significant local housing need. • Deliverability. • Inclusion, equality and meeting particular needs. • Impact on communities and regeneration. • Contribution to meeting strategic housing needs profile defined by the HNDA.
In February 2011 the Scottish Government announced a new competitive funding arrangement, the ‘Innovation and Investment Fund’, to provide new affordable homes. Prioritisation of the projects in the current SHIP was taken into account alongside additional factors which the Scottish Government advised would be taken into account in prioritising projects. The additional factors were:
• Additional funding which could assist in delivering affordable housing. • Partnership working. • Investment already made in a project.
Through prioritisation of projects in terms of a combination of the factors listed, the SHIP continues as the framework for investment with the overriding aim of ensuring that investment is directed to areas with the highest housing need. The Council waits with interest a steer from the Scottish Government’s preferred means of allocation of subsidy funding for affordable housing and will work with a range of partners on delivery. However the allocation requires to focus on areas of most need.
3. Our Vision
Our overarching aim is to:
‘Make Perth and Kinross a place where everyone will have access to good quality housing that they can afford that is in a safe and pleasant environment. People will have access to services that will enable them to live independently and participate in their communities’.
This reinforces the Council’s vision which is of ‘a confident and ambitious Perth and Kinross with a strong identity and clear outcomes that everyone works together to achieve. Our area will be vibrant and successful: a safe, secure and healthy environment, and a place where people and communities are nurtured and supported’.
15 22 4. Addressing Housing Requirements
4.1 Our Intended Outcome
That there is sufficient supply of houses of the size and type people need, in the areas they want to live, and that they can afford.
4.2 Our Strategic Objectives
1. Help address the shortfall of affordable housing by enabling the development of at least 100 new supply publicly subsidised affordable housing units, on average each year, until 2016 including the delivery of an average of 25 local authority new build units in priority areas each year until 2016.
2. Increase the effective housing land supply, year on year, with the aim of maintaining an effective 7 year housing land supply.
3. Facilitate improved access, year on year, to private rented housing for households that would normally be excluded from this sector due to their low income or reliance on benefits.
4.3 What are the Main Issues?
4.3.1 Population and Households
The total population in Perth and Kinross is around 140,000, with approximately 56% concentrated in the Greater Perth LHMA. The overall population is projected to increase in the future, with projected population growth of 4% in each five year interval from 2008-2013 and 2013-2018. This is substantially higher than the national increase of 1% in each five year interval. The largest increases are expected in the Kinross, Greater Perth and Strathearn LHMAs. The key driver of this anticipated population growth is inward migration.
The present general age profile of Perth and Kinross largely reflects that of Scotland. The Perth and Kinross population is either set to increase or remain static across all age groups in the next five to ten years with the exception of the 35-54 age band, which is anticipated to decline. Substantial increases in 16-34 years age group are projected. It is this group which forms the majority of newly forming households and participate in the ‘starter’ market for housing. This may positively affect demand for smaller sized properties, low cost home ownership, mid market renting and lower to middle market home ownership options. Significant reductions in the numbers of the 35-54 year age group are expected. This age group is associated with households with an established housing career looking to ‘move up the housing ladder’. The numbers in this group will decline over the Strategy period and this may reduce relative consolidation of middle to upper market housing segments.
Perth and Kinross has above national levels of its total population in the 65 and 75 years and above age groups. In addition the rate of population increase in the numbers in these groups will exceed the national average. There will be an increasing and substantial demand for housing across all tenures which is built specifically, or can be adapted, to suit the needs of older people with particular needs (e.g. very sheltered housing/housing with care) and related housing and home support services.
With over 64,000 households, Perth and Kinross accounts for over 2.7% of Scotland’s total. Perth and Kinross’s number of households will increase at a faster rate than that of Scotland as a whole. This will have a significant impact with increased demand for housing. The largest increases will be in single person and single parent households. Those households of 2 or more adults with children will decrease in number. With an increasing population and an increasing number of households, the average household size is anticipated to reduce.
16 23 The TAYplan Proposed Plan sets out both population and housing projections and these are used to inform the LHS. The LDP is consistent with TAYplan. The TAYplan projections are based on the General Registrar of Scotland’s (GROS) 2006 based population projection. GROS has produced more recent projections which forecast a higher rate of growth. These later projections were made at the height of the previous economic boom when migration into Perth and Kinross was at its highest and were based on trends which predated the current economic downturn. This downturn has fundamentally affected the housing market in the short to medium term and is very likely to slow down in-migration to Perth and Kinross. At the present time the various scenarios for the recovery in the housing market all point to the GROS 2006 based projections being at the higher end of any likely outcomes to 2024 and make the more recent projections look optimistic.
The TAYplan projections are to 2032 and are followed back to 2024 to reflect the LDP timescale. These projections should not be viewed as targets for growth, but as aims for the land use planning system to assist in the delivery should such growth materialise. It must be recognised that any change to the TAYplan strategy may require to be reflected in the LDP.
4.3.2 The Local Economy
The main industrial employment sectors in Perth and Kinross are public administration, education and health, distribution, hotels and restaurants. Overall, the proportion of persons working in each of the broad industrial groups is relatively consistent with the national picture, although Perth and Kinross has a notably lower proportion of people working in manufacturing. Within the present and economic context, industries such as banking and insurance, manufacturing and construction, may be particularly affected by the economic downturn. This accounts for almost a third of the employment sector in the area. Perth and Kinross’ high proportion of small businesses could also be vulnerable to economic recession. Both factors could impact negatively on projected economic growth and employment in the area.
The rate of unemployment in Perth and Kinross has been lower than in Scotland as a whole in recent years. However the current economic stagnation is beginning to have an adverse impact on unemployment levels within Perth and Kinross. Average household incomes vary between LHMAs with the Kinross LHMA exceeding the average. Household incomes in the Eastern and Highland LHMAs are 10% lower than average. Average household income and earnings in Perth and Kinross are lower than the Scottish average.
Given the current global economic downturn, it is likely that at least in the short to medium term, the local economy will not experience growth at the same rate as experienced in the past 10 years. Rising unemployment and lower economic growth is likely to impact negatively on households’ ability to access affordable housing as well as the buoyancy of the housing market, at least in the short to medium term. If house prices stabilise or potentially fall, housing affordability may actually improve for some household groups. However, the key barrier to accessing the housing market is the availability of mortgage finance, which is currently very restricted given the risk averse approach to lending by some financial institutions. Whilst it is unclear for how long lenders will continue to restrict the availability of finance, it is clear that housing market recovery may depend on a return to more positive lending practices.
4.3.3 Housing Tenure
Of all dwellings almost three quarters (72.6%) are owner occupied, 16.1% are social rented, and the remainder is privately rented (11.3%). The highest incidence of privately owned housing is to be found in the Kinross LHMA at 85.1%, whilst the private rented sector is greatest in the Highland LHMA at 13.5%. Social housing (both Council and RSL) is more heavily concentrated in the Greater Perth LHMA (at 18.4%) than elsewhere across Perth and Kinross. The level of owner occupation increase is mainly attributable to extensive levels of new build development within the private sector and RTB sales. Figures for the private rented sector may understate the true size of the sector as some landlords have yet to register.
17 24 Figure 1: Tenure Profile of Dwellings by Local Housing Market Area 2009 100%
90%
80%
70%
60%
50%
40%
30%
20%
10%
0% Eastern Greater Perth Highland Kinross Strathearn Perth and Kinross
Council RSLs Private Rented Owner Occupied
Source: Perth and Kinross Local House Condition Survey 2009
In recent years the overall number of dwellings in Perth and Kinross has increased however, this trend differs according to tenure. The increase in the owner occupied sector demonstrates high levels of Right-To-Buy sales and new build. The greatest decline in tenure has been experienced in the Council housing sector reflecting the level of Right-To-Buy sales. The Registered Social Landlord (RSL) sector has expanded reflecting levels of new build. The Perth and Kinross Housing Land Audit 2011 reports that in the 12 months from March 2010 to March 2011 there were 427 new build completions over half of which were in the Greater Perth LHMA. Tenure breakdown is only available for sites of 5 and over however it is assumed that small sites are for the private sector. Therefore there is an even split between completions in the RSL and private sectors which reflects the current economic climate.
The tenure subject to the greatest proportionate increase in size is the private rented sector. This may be related to the lack of mobility in the housing market, where potential sellers who cannot achieve sales and are choosing to convert properties to private rent. Buy to let investment between 2001 and the first half of 2008 resulted in the primary expansion of the sector. This created ‘sector-switching’ where properties moved from the owner occupied sector to the private rented sector. More recently, economic conditions and the associated difficulty in obtaining mortgage finance has inhibited the growth of the sector through investment. There are however a number of property owners who are reluctantly becoming landlords as a result of their inability to sell a property in the current market. Consequently, the private rented sector is still growing albeit at a slower rate than was experienced between 2001 and 2008.
The number of second and uninhabited homes is a particular feature of Perth and Kinross. Just under three percent of all homes are second homes, (over one in ten in Highland LHMA), with another two percent uninhabited. This reduced supply of ‘effective’ stock places greater pressure for local demand for market and affordable housing. The Council shall explore the possibility of better employing existing housing by liaising with Scottish Government on empty homes initiatives.
4.3.4 Dwelling Size and Type
Properties containing 2 bedrooms are most common in Perth and Kinross (35%), followed by 3 bedrooms at 24%. Family sized accommodation (containing 4 or 5 bedrooms) accounts for approximately 29% of all housing stock.
18 25 The majority of RSL dwellings are small with 83% of properties containing either bedsit, 1 or 2 bedrooms. RSLs have very limited numbers of family sized stock in Perth and Kinross. Similarly within the private rented sector, two thirds of dwellings were either bedsit or contained 1 or 2 bedrooms and again a very small proportion was family sized accommodation. Council housing stock has a larger size profile than other social providers in the areas as over three quarters of its stock contains 2 or 3 bedrooms. However there are just under 200 bedsits mostly concentrated in Perth centre and Blairgowrie.
However, the owner occupied sector appears to contain the largest proportion of family sized accommodation with 36% containing 4 or more bedrooms. In total, nearly three quarters of all properties in Perth and Kinross are houses and the remainder are flats. Of the total stock profile there is a significantly higher proportion of detached houses (37%), and a significantly lower proportion of flatted accommodation (26%) than is the case nationally. There is also a notably higher proportion of semi-detached dwellings and a lower proportion of terraced dwellings.
Figure 2: Dwelling Profile by Tenure and Number of Bedrooms 100% 90% 80% 70% 60% 50% 40% 30% 20% 10% 0% Council RSLs Private Rented Owner - Occupied Perth & Kinross 1 2 3 4 5+
Source: Arneil Johnston Consulting/Perth and Kinross Council.
Property types vary by tenure but nearly two-thirds of RSL stock contains flatted accommodation. Council stock contains equal proportions of flatted accommodation and housing. In the owner occupied sector, approximately two thirds of dwellings are houses.
4.3.5 Social Rented Sector
The social rented sector consists of around 16.1% of the total housing stock in Perth and Kinross, much lower than the national average. Council housing accounts for 10.7% of all stock, Registered Social Landlords (RSL) have 5.4%.
The supply of council stock has been significantly reduced since 2001 through some demolition but predominantly through tenants opting for home ownership by purchasing their council home. There is a very significant demand for social rented housing across Perth and Kinross with over 5,280 households queuing for rented accommodation in Perth and Kinross. At a Perth and Kinross level, there is a 7.9:1 ratio of applicants to allocations (i.e. 7.9 applicants for every vacancy). This reinforces the view that there is a significant shortfall of affordable housing across Perth and Kinross.
There also remains a need for new build housing for social rent to improve stock availability in terms of type, size, location, condition and amenity in areas requiring community regeneration. Future investment in these areas needs to address stock size/type/location/quality imbalances. In areas of over provision there may be a requirement for selective demolition of unpopular or obsolete stock as part of local regeneration strategies.
19 26 There is a need to address mismatch in housing provision in terms of size, type, location and quality in some areas including assisting people who are overcrowded/under occupied move to more suitable accommodation, particularly as many of these households live in the more popular terraced, semi or detached properties through management initiatives, (e.g. allocation policy), and where appropriate new build development.
Since the introduction of the Housing Options Service in April 2010 the average number of new applications for housing received each month has reduced from an average 230 to 188 in 2010/11. The introduction of a comprehensive advice and assistance service enables applicants to make informed decisions based on realistic housing options within the Perth and Kinross area based on their housing circumstances. For the same period 1,169 applicants have been referred to the Private Sector Access Team for consideration under their Rent Bond Guarantee Scheme as an alternative to completing a housing application form.
4.3.6 Owner Occupied Sector
Almost three quarters of dwellings (72.6%) in Perth and Kinross are in the owner occupied sector and this exceeds the national average. As well as dominance in the Kinross HMA (85.1%), owner occupation is also significant in the Strathearn HMA (78.1%).
It is lowest in Greater Perth (69.2%). Levels of outright ownership are high with two thirds owned outright. This is significantly higher than the proportion for Scotland.
Table 3: Perth and Kinross and Scottish House Prices 2010, Nos. /(£)
Area House Sales Nos. Lower Quartile Median Mean Upper Quartile (£) (£) (£) (£) Perth and Kinross 1,868 100,000 150,000 177,889 225,000 Scotland 58,642 90,000 135,000 163,429 200,000 Source: Scottish Neighbourhood Statistics (June 2011)
Average house prices in Perth and Kinross are higher than the Scottish average. In Highland and Kinross LHMAs average prices are significantly higher and entry to the housing market is less affordable in these areas. Property prices in the Strathearn LHMA are also above average. In the Eastern and Greater Perth LHMAs house prices are below average for Perth and Kinross and the market entry prices are most affordable in the Eastern area. Numbers of RTB sales have declined sharply in the last 3 years. However ex-RTB stock still plays an important role in enabling access for some low income households to owner occupation.
House prices in Perth and Kinross increased dramatically between 2003 and 2007 with greatest price trend increase taking place in the Kinross LHMA which had the second highest average price. The high level of inward migration evident in Kinross is likely to be a key factor within this trend. The next highest level of house price inflation occurred in the Greater Perth LHMA. The smallest increase in prices occurred in Highland LHMA. These significant increases in house prices were in line with wider national trends and are largely attributable to a reduction in interest rates, which lowered the cost of borrowing for many households who wished to enter the market or aspired to specific property types or locations.
Affordability is a significant issue across Perth and Kinross. The HNDA calculated that 40% of all households in housing need in Perth and Kinross are unable to resolve their needs in the market. This rises to 64% in Highland LHMA and there are still significant proportions of households unable to access market entry level housing in Greater Perth (39%), Strathearn (38%), Eastern (40%) and Kinross (43%) LHMAs. The major difference between the Highland and Kinross LHMAs compared to the other market areas is that the market entry level is significantly higher in these areas (as indicated in Table 4). It is therefore suggested that low cost home ownership initiatives would be most valuable in these areas in enabling entry into the housing market at a lower level, whilst acknowledging that most of the demand is in the Greater Perth LHMA.
20 27 Table 4: Households that Cannot Afford Market Entry in Perth and Kinross (2009)
Lower Quartile Households That Cannot Afford LHMA Average Price Index % Nos. Eastern 92.1 40% 3,464 Greater Perth 98.1 39% 14,336 Highland 138.6 64% 3,651 Kinross 128.6 43% 2,082 Strathearn 98.5 38% 3,461 Perth and Kinross 100.0 40% 26,059 Source: Perth and Kinross HNDA 2009
Overall, house purchasing self–containment across Perth and Kinross is two-thirds but is significantly higher in Greater Perth. The level of inward migration from adjoining councils is relatively high and static at approximately 14%. Of those purchasing from outside of the Perth and Kinross area, the most notable origin is other areas in Scotland, accounting for over 10% of all sales. Those purchasing from elsewhere in the UK comprise around 7%. In total over one third of purchases were made by households from out with the Perth and Kinross area. A complex housing system exists in Perth and Kinross where strong market links with adjoining council areas, other parts of Scotland and elsewhere in the United Kingdom (UK).
Areas such as Eastern and Greater Perth LHMAs have particular links with Dundee City, Kinross LHMA with Fife and Strathearn LHMA with Stirling. All have noticeable links with other parts of Scotland and the rest of the UK especially Highland and Strathearn LHMAs. The numbers/proportion of purchases made by in-migrants is increasing steadily, showing an increased attractiveness of Perth and Kinross to prospective purchasers from other areas.
Perth and Kinross, even in the current economic circumstances, has a consolidated housing market when compared to many other Scottish local authority areas. The majority of house sales take place in the Greater Perth LHMA. The new build market, until recently typically accounted for around 14% of all sales and was particularly strong in the Greater Perth and Eastern LHMAs even though the market in Perth and Kinross has fared better than many others in Scotland, the economic recession has brought a marked reduction in the volume of sales. Prices of new build housing are generally higher than second hand properties although there has also been a decline in the volume of new build.
Current economic factors, whilst perhaps not reducing the aspirational demand for housing, will certainly affect the ability of buyers to secure housing. In the medium term houses prices may level off and possibly fall, unemployment may rise, and the availability of credit may be more constrained than has been the experience of the past ten years. Together this is likely to have the effect of reducing demand for housing in the short to medium term. Despite potential falls in average house prices, affordability issues are likely to be exacerbated as a result of lenders taking a risk adverse approach to lending. Higher deposits will be required, together with lower lending multiples thereby worsening affordability. In some areas the social rented sector still dominates. In these areas access to owner occupation is limited to some degree to RTB or ex-RTB properties. In selected areas specific low cost home ownership initiatives, including shared ownership and shared equity, may be valuable to enable access to a wider choice of property type, design or size.
Scottish Government’s LHS guidance advises that HNDAs provide a key part of the evidence base upon which housing supply targets covering all tenures, (including new housing supply, replacement housing, empty properties to be brought back into use and conversions), are to be defined in the LHS.
21 28 From this Councils should identify realistic housing supply targets in the LHS and through the planning system allocate sufficient available land, through development plans, to deliver the required number of houses. Perth and Kinross Council advises that due to the current limitations with the existing HNDA methodology, this LHS shall not explicitly state housing supply targets, especially in a period of financial constraint and uncertainty, for replacement housing, empty properties to be brought back into use and conversions but rather outlines the housing land requirements to satisfy the anticipated demand in household growth. In addition the volume and proportion of this requirement for affordable housing is identified. This ensures consistency between the LHS, LDP and SDP.
Table 5: Housing Land Requirement 2010-2024
A B C D A-(B+C+D) LHMA Provisional Revised Built Effective Windfall Additional Requirement 2010-11 supply at Allowance Units 2010-24 (All sites) March 2011 Required Audit (per annum)
Eastern 1,680 20 590 170 900 Greater Perth 7,240 190 3,070 720 3,260 Highland 1,120 100 210 110 700 Kinross 880 30 400 90 360 Strathearn 1,820 90 1,290 180 260 Perth and Kinross 12,740 430 5,560 1,270 5,480 Source: - PKC, Local Development Plan draft Proposed Plan (August 2011). Note - All figures rounded to nearest 5
With the current economic downturn fundamentally impacting on the housing market, targets for overall number of houses become less important than ensuring an adequate supply of housing land is available to respond to any upturn in the market. Scottish Planning Policy states that en effective supply of land for at least 5 years should be maintained at all times. With the upper end of the TAYplan projections estimating 990 houses per year equating to a 5 year effective land supply for 4,950 houses. This is in effect the minimum requirement. In accordance with the Council’s Single Outcome Agreement with the Scottish Government it is considered desirable to build up effective housing land to 7 years supply by 2015, equating to land for 5,480 houses.
4.3.7 Private Rented Sector
The private rented sector in Perth and Kinross accounts for 11.3% of the total housing stock nearly double the national level which is approximately 6% of all dwellings. Levels of private renting are highest in the Highland (13.5%) and Greater Perth (12.4%) LHMAs and lowest in the Kinross LHMA (5.5%). In addition, approximately two thirds of private rented units are unfurnished (68%) as opposed to furnished lets. Properties containing 2 bedrooms were most common (49%), followed by 3 bedrooms at 29%. Family sized accommodation (containing 4 or 5 bedrooms) accounts for approximately 6% of private rented stock with under a fifth being of one bedroom size.
The Private Landlord Public Register 2010/2011 indicates that there were 5,522 private landlords registered with Perth and Kinross Council. It is compulsory for private landlords to register with the Council in to ensure that they are a fit and proper person. The private rented sector is the tenure of choice for many households who require good quality accommodation for relatively short periods of time but who need to remain mobile, usually for employment reasons. The emergence of ‘mid - market rent’ provides additional opportunities for households to meet their housing needs but at a relatively affordable rent level. The private rented sector is not solely a ‘stop-gap’ for those who aspire to owner occupation or who have insufficient priority to access social rented housing. For a number of households however, it is the tenure of last resort and there is a need to promote the sector as a viable housing option that can provide settled, sustainable and affordable housing solutions.
22 29 It is likely that it would be households who aspire to buy their house in the market, but due to high costs of entry level housing, cannot afford to buy in their area of choice, would have sufficient income to sustain the rental payment of mid market rent. It is therefore anticipated that mid market rent should also be directed to areas where households are experiencing difficulty in accessing the market. For this reason it is suggested that this tenure could be directed to Highland and Kinross LHMAs but there is likely to also be a demand for this tenure in other LHMAs.
Since there has been a considerable reduction in the Scottish Government budget for affordable housing in 2011/12 and potentially in future it is difficult to estimate the proportion of the affordable housing supply which should be low cost home ownership or mid market rent. To a large extent this may depend upon interest shown by the market in bringing forward these options without subsidy and the affordable housing supply coming forward through the affordable housing policy. There is a strong demand for all types of affordable housing throughout Perth and Kinross so that opportunities to maximise the supply of affordable housing of all types will be progressed where possible.
There are concentrations of Below Tolerable Standard (BTS) housing and fuel poverty households in private rented sector. However the Council acknowledges the prominent role that this sector plays in local housing markets. To address housing needs, and help to improve housing conditions and management arrangements the Council’s priorities will focus around:
• Developing initiatives to facilitate access to sustainable and affordable housing opportunities in the private rented sector for people who are homeless, threatened with homelessness or otherwise unable to access the sector without assistance establishing initiatives such as a Rent Bond Guarantee Scheme and the Perth and Kinross Council social letting agency which provides letting and property/tenancy management services to private landlords.
• Further develop protocols and procedures for working in partnership with private landlords to ensure that the private rented sector is able to fulfil its potential to meet housing need through activities such as landlords’ forum, training programme and accreditation scheme.
• Provide specialist advice and support to both landlords and tenants and undertake landlord/tenant mediation to encourage the sustainability of tenancies and prevent homelessness.
• Assist in reducing the reliance on bed and breakfast accommodation and the removal of social housing stock for use as temporary accommodation by facilitating direct access to both settled and temporary accommodation in the private rented sector where appropriate.
• Explore opportunities on whether mi-market rent options are feasible in particular LHMAs.
Local Authorities are required to have a licensing system for Houses in Multiple Occupation (HMO). The aim of this system is to increase the protection for tenants and neighbours by ensuring accommodation is safe, well managed and of an appropriate quality. HMO can include shared flats and houses, bed-sits, lodgings or communal accommodation such as student residences and hostels. Properties require a licence if it is the principal residence for three or more residents who are not members of the same family. The HMO Public Register for Perth and Kinross indicated at May 2011 that there were 98 registered HMO sites which were accommodating a total of 1,012 persons. The Council shall continue to pursue its powers under the Part 5 of the Housing (Scotland) Act 2006.
23 30 4.3.8 Pressured Area Status
In 2007, the Scottish Government designated ‘Pressured Area Status’ to the following LHMAs within Perth and Kinross:
• Greater Perth LHMA Abernethy, Abernyte, Almondbank, Chapelhill, Collace, Balbeggie, Bankfoot, Bridge of Earn, Dunning, Forgandenny, Glencarse, Harrietfield, Guildtown, Inchture, Invergowrie, Kilspindie, Kinrossie, Leetown, Longforgan, Luncarty, Methven, Pitcairngreen, Saucher, Scone and St Madoes.
• Highland LHMA Aberfeldy, Acharn, Birnam, Calvine, Dull, Dunkeld, Fearnan, Glenlyon, Kenmore, Killiecrankie, Ballinluig, Grandtully, Logierait, Blair Atholl, Kinloch Rannoch, Pitlochry, and Weem.
The ‘Pressured Area’ designation was effective from 1st February 2007 and meant that existing tenants within the above LHMAs whose tenancy began on or after 30th September 2002 had their RTB suspended for a period of five years. The Housing (Scotland) Act 2011 contained significant reforms to the RTB. These included providing local authorities with the power to make, amend and revoke pressured area designations. Perth and Kinross Council shall review existing designations and explore whether further designations are appropriate and applicable. This will include examining whether all of the Perth and Kinross LHMAs can be considered as ‘pressured’.
4.3.9 Affordable Housing Policy
The Council approved the latest version of the Affordable Housing Policy in August 2005. Through this policy the Council seeks an affordable housing quota of 25% on all housing sites of 5 units and above, except where individual Local Plans vary this quota. In the case of Perth city centre, the quota is 50%; however, this has been difficult to achieve as applicants have been able to prove that such a requirement can render a site uneconomic in cases and is currently under review. On-site provision is preferred for larger developments (20 houses or over in Auchterarder, Blairgowrie, Crieff, Kinross, Milnathort, Perth (excluding the city centre) and Scone and 10 or over elsewhere. For smaller sites an appropriate contribution is sought from the developer, preferably land, for provision of affordable housing elsewhere within the housing market area. The Policy will continue to be reviewed on an annual basis and included in the LDP.
In certain circumstances the Council will accept the payment of a commuted sum in lieu of the provision of on-site affordable housing required to meet the terms of the Affordable Housing Policy. Such circumstances may arise where a development is in a remote rural setting outwith a settlement where it is difficult to access services or where a development is of a small scale and the number of affordable houses would be small. All commuted sums are paid into a fund administered by the Council to facilitate meeting the need for affordable housing in the same housing market area. This fund assists in the delivery of affordable housing such as providing funding to assist RSLs in purchasing sites for affordable housing on the open market or in funding exceptional development costs which would otherwise mean that a development of affordable housing could not otherwise proceed.
Affordable Housing is defined by SPP as ‘housing of a reasonable quality that is affordable to people on modest incomes’. Recent SPP broadens the tenures available as affordable housing and now includes, social rented, shared ownership, shared equity, mid market rent and low cost housing without subsidy. The Council’s Affordable Housing Guide Supplementary Planning Guidance outlines this in greater detail.
The number of affordable housing completions provided with Scottish Government funding support in 2010/11 was 115. This is below the SOA target of 180 units and is directly related to the decrease in Scottish Government funding. It is expected to be below target in forthcoming years.
24 31 However there may be additional opportunities, such as low cost housing for sale or mid- market rent, by developers in the future. These contributions will be monitored alongside the Affordable Housing Policy, including development viability statements, to overview its effectiveness as well as the number of units delivered overall. The amount of commuted sums received, how they are spent, and the number of affordable units facilitated through them will also be monitored. Although the current policy has worked well, it is recognised in the current economic climate the amount of Scottish Government grant available to RSLs is unlikely to keep pace with the availability of sites.
In addition, the demand for affordable housing may require greater flexibility in the policy and guidance, particularly to encourage the provision of housing at the lower end of the private market range. It is clear that in the current economic climate has had a major effect on the delivery of affordable housing and it should be noted that the shortfall in affordable housing in Perth and Kinross will continue to grow. This is supported by the evidence in the HNDA and the continuing decrease in house building activity seen through the annual Housing Land Audit.
National Park local plan’s housing policies also seek to deliver new affordable housing. The policy adopted by the Cairngorm National Park authority requires a contribution to be made towards affordable housing for all developments of market housing (including developments of one or two properties) and within the Loch Lomond and Trossachs National Park area there is a requirement for 25% of housing to be affordable on sites of 4 or more units.
4.3.10 Perth and Kinross Council New Build Programme
The Council has secured funding for the development of 120 new houses for social rent, funded through a combination of council tax second home reserve funding, prudential borrowing and grant assistance from the Scottish Government. It is proposed that the Council will continue with a new build programme of approximately 25 houses per year thereafter although this programme shall rely on future Scottish Government funding.
4.3.11 Council Tax Second Home Reserve
Local authorities have discretion to vary the discount on Council Tax for second homes and long-term empty properties to generate income to support the delivery of new-build affordable social housing to meet locally determined priorities. The additional funding for affordable housing through the implementation of this policy amounts to approximately £1M annually. This funding is used mainly to assist RSLs to acquire sites for inclusion in the future investment programme and to meet any exceptional costs in bringing forward the development of specific sites which would otherwise mean that the site could not be developed for affordable housing and to support the Council’s new build programme.
4.4 What are Our Priorities?
• Develop new affordable housing supply in co-operation with RSLs, the Scottish Government and private developers.
• Develop new local authority social rented housing to reduce local imbalances in demand and supply, improve housing quality and mix.
• Enable private sector housing supply, which can help to meet housing need and demand as identified in this LHS and the TAYPlan Strategic Development Plan and LDPs.
• Promote good tenancy management standards in the private rented sector and facilitate the improvement of standards through the provision of information, advice, assistance and training.
• Develop and implement initiatives in partnership with private landlords that are designed to improve access to housing opportunities in the private rented sector.
25 32 • Maintain improvements approach to HMO licensed properties.
• Review existing pressure area designations and explore whether further designations are appropriate and applicable.
• Secure additional affordable housing by progressing the Council’s Affordable Housing Policy including exploring the feasibility of developing additional affordable housing options.
26 33 5. Promoting Sustainable and Mixed Communities
5.1 Our Intended Outcome
Develop appropriate housing and related services, through partnership working, that promotes and maintains sustainable and mixed communities.
5.2 Our Strategic Objectives
1. By 2016 improve the overall positive experiences of tenants living in social rented housing and of all residents’ experiences of their homes and neighbourhoods.
2. To deliver a programme of development of mixed tenure houses in Muirton to complete the regeneration of the area in line with the Muirton Master Plan by 2016.
3. Increase the opportunities for tenants and other residents to influence decision making in local services by maintaining, at least, the number of tenant and resident organisations (RTO) by 2016.
4. Continue to develop and improve, year on year, council housing management services that meet the requirements of the Scottish Housing Regulator.
5. Improve satisfaction levels of service users, year on year, with service delivery in relation to tackling anti-social behaviour.
6. Improve the percentage of adults who rate their neighbourhood as a very or fairly good place to live.
5.3 What are the Main Issues?
5.3.1 Information and Advice, Access to, and Management of, Affordable Housing
Perth and Kinross Council Housing and Community Care Services and locally operating RSLs have a business network of offices across the local authority area serving tenants and other customers. The offices have dedicated professional housing staff to oversee the management and maintenance of the housing stock. The Council’s Neighbourhood Services operates across 5 areas and the main customer contact is with the local area housing teams and in particular the local housing officer.
In addition each area in Perth and Kinross Council now has a property inspector who is available to carry out pre and post inspections, and order repairs as well as providing advice on repair issues. General repairs are reported direct to the Council’s dedicated repairs centre via the ‘Repairs Finder’ booklet and work required is scheduled via the ‘Job scheduler’ online and an appointment offered. All Perth and Kinross Council housing management information is held in the Council’s ‘Northgate Integrated Housing Management System’. This includes integrated and comprehensive management information including house condition and gas servicing records etc.
Following inspection by the Scottish Housing Regulator the Council has made great strides in improving its services such as implementing a new Allocations Policy, a housing options service which enables those households seeking affordable housing to consider more flexibly their future options and choices in the local housing market, providing a new Mortgage to Rent scheme and reviewing the role of sheltered housing to meet future challenges. In addition the Council, in co-operation with its partners provides funding for independent sector advice and information projects such as Citizen Advice Bureau, independent advocacy and community care service user and carers groups.
27 34 A potential new major initiative is the development of a local housing collaboration around aligned and shared service delivery between the Council and locally operating RSLs. This could deliver service efficiencies and improvements in a wide range of potential areas such as housing management and maintenance as well as support services. This will be progressed through the lifetime of this LHS.
5.3.2 Community and Town Centre Regeneration
In conjunction with the Scottish Government, the Council, alongside local residents and other housing providers, has been successful in regenerating a number of areas across Perth and Kinross involving a combination of demolition, refurbishment, new build and tenure diversification. The involvement of local communities has been key to the success of these initiatives.
Community regeneration areas are identified by a combination of low demand for, and high turnover of, social rented stock, limited housing quality and choice, deprivation indicators, changing demographic patterns and poor quality environment. This has led to the creation of a Master Plan for the regeneration of the Muirton estate in Perth. At the outset, the principle of demolishing the existing council owned flats and replacing them with a mix of affordable housing for rent provided by Caledonia Housing Association (CHA) and Fairfield Housing Co- op, (FHC), low cost home ownership and housing for private sale was agreed. CHA is lead developer for the regeneration of Muirton.
Table 6: Muirton Master Plan Housing Numbers and Tenure Mix
Tenure Phase/ Unit Numbers Total 1 2 3 4 5 6 7 PHA Social Rent 57 57 0 20 27 24 10 195 (46%) FHC Social Rent 0 13 27 0 25 0 0 65 (16%) Low Cost Home Ownership 0 0 0 20 20 20 20 80 (19%) Outright Sale 0 0 0 28 0 26 26 80 (19%) Total 57 70 27 68 72 70 56 420 (100%)
Figure 3: Muirton Master Plan Total Tenure Mix 50%
45%
40%
35%
30%
25%
20%
15%
10%
5%
0% PHA Social Rent FHC Social Rent Low Cost Home Outright Sale Ownership
Phases 1 to 3 are completed and all remaining previous tenants in Muirton have been re- housed. Phase 4 is being delivered incrementally. Consideration is currently being given to how the remaining phases will be taken forward. Future phases may be considered as a whole to enhance potential of cross subsidy between tenures.
28 35 It is recognised that the refurbishment of existing housing and building new housing can make a significant contribution to the maintenance and revitalisation of town centres. For this reason, projects which hold potential to make a significant contribution to the regeneration of an area are awarded a higher priority in the procedure used to prioritise projects in the SHIP.
This means that many projects which are currently on site and others which are proposed are on brownfield sites where the development will significantly enhance the area. In addition, the Scheme of Assistance will contribute to the regeneration of the centre of Perth and other urban centres. The Council’s social inclusion approach seeks to complement and support, through the Community Planning Partnership, the three national strands of social policy of ‘Achieving our Potential’, ‘Early Years Framework’ and ‘Equally Well’. This will also seek to deal with smaller pockets of rural deprivation and disadvantage requiring regeneration.
5.3.3 Tenant Participation
The Perth and Kinross Tenant Participation Strategy (see Appendix 5) sets out how the Council promotes the involvement of its tenants in local decision making processes regarding housing policies, housing conditions and housing-related services. Perth and Kinross Council is committed to working with whole communities. This means that all local residents as well as Council tenants have a crucial role to play.
However, there are some issues such as rents, housing repairs and internal home improvements which are only of direct relevance to council tenants. There are 9 Registered Tenants and Residents Organisations (RTO) across Perth and Kinross in addition to the Perth and Kinross Tenants and Residents Federation. The Tenant Participation Strategy sets out how the Council intends to support and enable tenant participation. It:
• Describes what the Council wants to achieve, with regard to tenant participation, and how it will do that. • Outlines the resources available to support tenant participation. • Sets out our priorities for tenant involvement. • Provides a focus for individual tenants, tenants groups, RTO, residents and other community groups who wish to work with the Council to improve services. • Shows progress will be assessed and how the impact of the strategy will be measured.
The Strategy promotes five outcomes and these are that:
• There will be a range of opportunities developed which reflect local circumstances and allow all tenants to participate effectively. • All tenants and staff will be given access to adequate levels of training and support that will enable them to participate more effectively. • The Council will provide relevant, accurate, timely and accessible information to meet the needs of all tenants. • The Council will work with all tenants and residents, Perth and Kinross Tenants’ and Residents’ Federation and our partners to review how we support and develop tenant participation in Perth and Kinross. • The Council regularly monitor and review this strategy to ensure it is effective.
The Federation has undergone a Best Value Review and are working with the Council to determine the best way forward. The Council is encouraging tenants to play a bigger role in its decision making process including those affecting community regeneration activities through the implementation of its Tenant Participation Strategy. This is a continuing commitment. One method that is being undertaken in line with the Tenant Participation Strategy is offering tenants and residents opportunities the chance to take part in training courses and learn more about housing services by becoming involved in Residents Academies. Perth and Kinross Council is the first local authority in Scotland to participate in this training.
29 36 Housing and Community Care Services have become the first housing service in Scotland to offer an accredited training programme for local residents in resident inspection. This approach encourages tenants and residents to engage with the planning, development and management of housing services and the service has worked with ‘Just Housing’ to offer Residents’ Academies. Available at both informal and accredited learning levels, the Residents’ Academies give individuals the opportunity to develop their skills and confidence and learn about what Council housing services should deliver and how to constructively challenge existing practices. As a result of the accredited programme participants complete a 15 week course, passing assessments to gain a level 2 vocational qualification from the Chartered Institute of Housing.
Tenant satisfaction surveys take place regularly to help inform service developments. Surveys among particular interest groups (e.g. sheltered housing tenants) are also undertaken. In addition ‘Viewfinder’ is a sample of around 1,300 Perth and Kinross residents, which is broadly representative of the demographic characteristics of the population of Perth and Kinross. Since its inception in 1999 the Viewfinder Panel has answered 20 questionnaires with consistently high response rates of between 60-85%. The questionnaires have covered a broad range of general topics including, community safety, health and activity, sport and leisure, waste and recycling, transport and road safety and parks and open spaces. There have also been questionnaires tailored to cover specific topics. Examples of these include; volunteering, Perth City Hall, smoking in public, satisfaction with Council Services, proposed budget efficiencies and energy efficiency in the home.
5.3.4 Anti-Social Behaviour and Community Safety
The Council and its partners treat matters of anti-social behaviour and community safety seriously. As such it takes a strategic approach to tackling anti-social behaviour. A dedicated Anti-Social Behaviour Strategy (see appendix 7) outlines the Council and its partners’ approach. There is an emphasis on:
• Improving joint working and communication between agencies and with the public. • Focussing on preventative measures. • Providing support to those who experience anti-social behaviour through services such as victim support, Anti-social Investigations Team, community wardens. • A range of intervention, enforcement and rehabilitation measures where appropriate.
This strategy also contributes to the Council and its partners’ Community Safety Strategy (see Appendix 8) which sets out how community safety shall be improved in 3 priority issues such as:
• Protecting vulnerable groups such as children, adults requiring support and protection, those experiencing domestic abuse, anti social behaviour and racial harassment. • Reducing crime and anti-social behaviour in the community. • Prevention of serious accidents in the community.
5.3.5 Rural Issues
Throughout rural areas there are a number of sizeable settlements with the historical status of being the former ‘county towns’ which are seen to be the hub of LHMAs particularly relevant to the provision of affordable housing. In many rural areas household income levels are relatively low and many households have difficulty accessing housing to meet their needs. This is in part due to relatively high levels of in migration from outwith the local area increasing demand for housing which frequently increases house prices in popular areas. Affordability of housing is a significant issue in rural areas since households in such areas experience higher living costs associated with rural living. In some areas low cost home ownership options have been found to be unaffordable and the major need in such areas is for additional rented housing which is affordable to more households. The SHIP (appendix 1) outlines the range of developments which will help to address these issues.
30 37 In rural areas the dispersed pattern of the population and housing means that it can be very difficult to match any identified requirements for particular needs housing through new supply. Frequently such needs must be met through the adaptation of existing housing and substantial levels of funding for this purpose. This is reflected in the monitoring framework for the LHS which details targets for adaptation of both public and private housing.
5.4 What are Our Priorities?
• Invest in new and refurbished houses in priority areas which contribute to community regeneration programmes including where appropriate town centres and rural areas. This will be done by:
¾ Promoting better housing choice, improving housing quality and the local environment. ¾ Completing local housing investment programmes using locally appropriate mix of new build housing for social rent or owner occupation, refurbishment of existing stock and environmental improvements.
• Continually improve council housing management services to meet the requirements of the Scottish Housing Regulator.
• Work with Scottish Government to introduce the Scottish Social Housing Charter.
• Progress the delivery of the Muirton regeneration Master Plan.
• Implement Tenant Participation Strategy.
• Implement Community Safety Strategy.
• Implement Anti-Social Behaviour Strategy.
• Work with national park authorities to develop better housing choice in those respective areas.
31 38 6. Improving Stock Conditions and Energy Efficiency
6.1 Our Intended Outcome
That all houses in Perth and Kinross are in a good state of repair, well maintained and energy efficient.
6.2 Our Strategic Objectives
1. Minimise proportion of households living in fuel poverty by 2016.
2. Increase proportion of dwellings with a NHER energy efficiency rating of 7 or above by 2016.
3. Increase the proportion of dwellings meeting the Scottish Housing Quality Standard year on year.
4. Implement the Scheme of Assistance.
6.3 What are the Key Trends and Main Issues?
6.3.1 Housing Conditions
A cross tenure local house condition survey was completed by David Adamson and Partners consultants in 2009. The results of the survey, which were published in March 2010, provide valuable information about housing conditions and investment priorities. The report concludes that housing conditions in Perth and Kinross are better than the Scottish average on all main indicators, although there are some significant local issues where the need for specific investment has been highlighted. The key condition targets for investment were noted to be pre-1919 housing, properties located in the Highland LHMA and private rented accommodation.
Across all tenures, the survey indicates that 62.6% of dwellings fail the requirements of the Scottish Housing Quality Standard (SHQS) and 4.7% of the stock is estimated to be Below Tolerable Standard (BTS).
Figure 4: Scottish Housing Quality Standard Compliance 60%
50%
40%
30%
20%
10%
0% Owner occupied Private rented RSL Council
Source: Perth and Kinross Local House Condition Survey 2009
32 39 SHQS compliance was found to be highest in Council housing with 47.8% of dwellings achieving the standard. RSL, owner-occupied and private rented houses showed SHQS compliance levels of 44.6%, 39.4% and 11.1% respectively. The highest proportion of BTS housing was noted in the private rented sector where 15.6% of houses fail to achieve this basic standard. The most common reasons for BTS failures were found to be safe and adequate electrical systems and dampness.
Extensive disrepair was discovered in 12.3% of the stock overall. This was found to be most prevalent in the private rented sector at 23.8% with owner–occupied and Council stock displaying similar levels of extensive disrepair at 11.5% and 11.1% respectively. RSL stock fared best with only 1.1% of their houses failing to meet the criteria. The majority of dwellings in Perth and Kinross (61.2%) meet the National Home Energy Rating (NHER) of ‘good energy efficiency’ of 7 or above, with 37.4% having an NHER rating of between 3 and 6. 1.4% of dwellings were found to have a ‘poor’ NHER rating of between 0 and 2. These figures can be compared with the Scottish average NHER ratings which are 50% for dwellings with a rating of 7 or above, 47% between 3 and 6 and 3% between 0 and 2. On average it would seem that Perth and Kinross has better energy efficient dwellings than the Scottish picture as a whole. However there are a small but significant number of properties requiring attention.
These properties are concentrated in the private rented sector, many of which were built before 1919. The Highland LHMA contains the lowest average NHER rating and this result to a large extent reflects the limited availability of mains gas as a primary heating system in large parts of the area. When analysed by tenure, 67.1% of Council properties are estimated to achieve an NHER rating of 7 or better. This compares with 63.4% for RSLs, 65.1% for owner-occupied and 29.5% for private rented accommodation.
Figure 5: NHER Banding by Dwelling Tenure 100% 90% 80% 70% 60% 50% 40% 30% 20% 10% 0% Owner occupied Private Rented RSL Council
Good Moderate Poor
Source: Perth and Kinross Local House Condition Survey 2009
Despite major improvements to the Council’s housing stock there is still a need for investment to achieve SHQS compliance and improve energy efficiency. The stock condition survey has highlighted key target areas for future investment and a programme of improvement measures has been prepared to address any remaining deficiencies. These measures will include the replacement of old and inefficient central heating systems, further insulation works, (specifically targeted at hard to treat houses), improvements to external wall finishes, roofing and provision of more controlled door entry systems to flats with communal access areas. The condition of the Council’s housing stock is comparable with other property of a similar age and construction, and is generally in a good condition. However there is a need to continue to provide substantial capital investment to ensure that the housing stock is maintained properly.
33 40 The Council can afford to meet investment requirements and keep rent increases under control. Prudential Borrowing’ arrangements provide an opportunity to enhance local authority investment programmes to help maintain and improve retained housing stock in areas such as major repairs, improving safety, security and energy efficiency. Perth and Kinross Council will retain the ownership and management of its housing stock.
6.3.2 Scheme of Assistance
Local authorities are obliged by Section 72 of the Housing (Scotland) Act 2006 to prepare and make publicly available a statement of the circumstances in which they will offer assistance to owners of private sector residential property. The statement of circumstances is known as the Scheme of Assistance (see appendix 9). Section 10 of the Housing (Scotland) Act 2006 requires local authorities to expand their LHS to cover how they will:
• Use the provisions for assistance under Part 2 of the Act, the Scheme of Assistance, to improve the condition of houses. • Address Below Tolerable Standard (BTS) housing by setting out a strategy for identifying, closing, demolishing or improving houses that fall below the standard. • Identify and declare Housing Renewal Areas (HRAs).
A significant proportion of owner occupiers in Perth and Kinross have bought their property from a former social landlord. Many of these households have relatively low income. This has an impact on these owners ability to repair or improve their home with a corresponding effect on demand for assistance. In addition disrepair in private sector housing, particularly in older tenements with common responsibilities, can lead to the under use of properties within the lower parts of the market that could provide affordable housing.
The statement of assistance sets out the different forms of assistance that Perth and Kinross Council may provide in relation to repairs, maintenance, improvements and adaptations to privately owned and privately rented properties. The forms of assistance that may be available are broadly categorised as information, advice, practical assistance and financial assistance. Using the full range of powers, Perth and Kinross Council will:
• Facilitate and encourage the repair and improvement of private sector housing. • Actively promote a culture of responsibility in relation to private sector property maintenance. • Provide practical and financial assistance to enable older and disabled people in private sector housing to live independently.
The resources that are available to implement the activities outlined in the scheme are limited. It is necessary therefore to target those resources to ensure that assistance is available to those in the greatest need and also in order to ensure that national and local strategic objectives are met. Assistance will be prioritised according to both the nature of the work and also by area. The priority works for assistance are:
• Essential adaptations for people with disabilities. • Works to properties that are BTS or are at risk of becoming BTS, and properties with other serious disrepair. Works to common parts, particularly in tenement properties, will be given priority over works to single family dwellings.
Given the Council’s requirement to meet the needs for adaptations for people with disabilities and due to financial constraints it is likely that the significant majority of grant assistance shall be directed towards adaptations for people with disabilities Grant assistance for BTS housing shall be limited.
Other priority areas for assistance that may apply, taking account of financial constraints, are:
34 41 • Areas that have been declared as Housing Renewal Areas. • Areas that are the subject of other focussed regeneration activity. • Other priority areas that may be identified from time to time.
One of the principles of the Housing (Scotland) Act 2006 is that the responsibility for the repair, maintenance and improvement of houses lies with the owner. In most cases therefore, the Council or a partner organisation will provide information and advice designed to enable owners to carry out the works themselves. In some cases involving priority works or areas, the Council or partner organisation may provide practical assistance where information or advice alone would not be sufficient. Financial assistance may also be available for certain types of work where there are links to the achievement of strategic priorities.
Information will be provided in a variety of written and internet-based formats and will cover the main issues associated with the repair, maintenance and improvement of residential property. The Council and partner organisations will provide advice on relevant issues on either a face to face basis, over the telephone or by e-mail. It is intended that information and advice will be widely available and will not be restricted to people in the priority categories listed above.
Practical assistance involves the Council or partner organisation becoming involved in the repair or maintenance process on behalf of the owner or owners. This could include identifying the nature of the problem, perhaps by undertaking a survey, and by recommending solutions, designing a programme of works and in some cases, appointing and managing a suitable contractor to carry out the works.
For people with a disability or for older people (aged over 60 years), this is provided through Care and Repair. For owners who do not fall into these categories, the Council or a partner organisation will normally only provide these services in association with the enforcement of a Work Notice or Maintenance Order. There are two Care and Repair projects, funded by Perth and Kinross Council, covering different areas. Perthshire Care and Repair, managed by Caledonia Housing Association, covers Perth itself, the Carse of Gowrie, Highland Perthshire and Eastern Perthshire. Strathearn and Kinross Care and Repair is managed by Hillcrest Housing Association and covers the Strathearn and Kinross areas. Care and Repair projects provide information, advice and practical assistance to home owners and private tenants who are elderly and/or have a disability to enable them to repair, adapt or improve their homes. Care and Repair projects do not provide funding or carry out any work but they can:
• Assist with deciding what repairs or improvements are required. • Provide an estimate of the likely cost of the works and advise on different options for raising the money. • Assist with applications for grants or loans if applicable. • Signpost to other relevant agencies.
Perth and Kinross Council will provide grants for adaptations for people with disabilities. Subject to budget availability, the Council may also make discretionary grants available in certain circumstances for houses that have been declared BTS.
Grants will not be available for any other purpose. If requested however, the Council will provide information on options for financing repairs, maintenance and improvements. The Council cannot provide financial advice but can signpost people to places where this type of advice can be found. At present the Council will not provide loans under any circumstances. This position will however, be reviewed in light of any emerging initiatives such as the implementation of the proposed National Lending Unit or in relation to any future guidance from the Scottish Government. The Housing (Scotland) Act 2006 includes various statutory powers that the Council may use where it is apparent that owners are failing to maintain or repair their properties including maintenance and work notices. In order to avert the need for such enforcement action, the Council may also assist with the facilitation of owners’ meetings where there are common repair issues. By facilitating and attending such meetings, Council Officers will aim to provide owners with the information and advice they need to enable them to arrange the required works themselves.
35 42 6.3.3 Below Tolerable Standard (BTS) Housing
Under the terms of the Housing (Scotland) Act 2006, the Council is required to include a strategy for identifying and dealing with BTS houses within the LHS (see appendix 11). The Tolerable Standard was revised within the Housing (Scotland) Act 2006 with the retention of the old standard together with the inclusion of additional thermal efficiency and electrical safety elements. The Perth and Kinross Local House Condition Survey 2009 estimated that 3,282 dwellings failed the requirements of the revised Tolerable Standard representing 4.7% of all housing in Perth and Kinross. A broad range of defects is apparent in BTS dwellings although the most common reasons for failure relate to:
• Safe and adequate electrical systems: 3,062 dwellings (93.3%). • Dampness: 194 dwellings (5.9%).
Variations in rates of BTS housing are evident across Perth and Kinross both geographically and by housing sector. Geographically the highest rate of BTS housing is recorded in the Kinross LHMA. In absolute terms the greatest numbers of dwellings that are BTS are in the Greater Perth LHMA. Within the housing stock rates of BTS failure are higher in the private rented sector, for terraced houses and tenement flats. Dwellings built between 1965 and 1974 are the most likely to be BTS, reflecting the major BTS issue of adequate/safe electrics and the need for replacement of electrical systems in dwellings built in this period.
Table 7: Nos. of BTS Dwellings in Perth and Kinross 2009
LHMA BTS Dwellings Nos. % Eastern 328 3.4% Greater Perth 1926 4.9% Highland 145 2.3% Kinross 663 12.9% Strathearn 220 2.2% Perth and Kinross 3,282 4.7% Source: Perth and Kinross Local House Condition Survey 2009
In meeting this requirement the Council may use its powers to make discretionary grants available to owners in certain circumstances subject to budget availability.
6.3.4 Housing Renewal Areas
Perth and Kinross Council identifies potential areas for renewal using a number of indicators such as the combination of low demand for, and high turnover of, social rented stock, limited housing quality and choice, deprivation indicators, changing demographic patterns and poor quality environment.
The Housing (Scotland) Act 2006 grants powers to local authorities to designate Housing Renewal Areas. These powers are designed to deal with poor quality housing on an area basis. Perth and Kinross Council does not currently intend to proactively seek the designation of Housing Renewal Areas as these do not appear to offer any benefits to meeting local circumstances at present. The Council however, may choose to utilise these powers if a situation arises in future that could be addressed most effectively through the designation of a Housing Renewal Area.
The Council however may prioritise the use of resources, the provision of advice, support or practical assistance and the enforcement powers available, such as Maintenance Orders and Work Orders, on an area basis.
36 43 6.3.5 Fuel Poverty
Fuel poverty is the term used where householders are unable to afford the purchase of sufficient fuel to ensure that they maintain comfortable household heating standards and the reasonable use of hot water, lighting and appliances. Fuel poverty occurs when a household cannot adequately heat their home to an acceptable standard at a reasonable cost. The accepted definition of fuel poverty is where a household’s energy costs are more than 10% of its income. A person is deemed to be in extreme fuel poverty if more than 20% of household income is spent on household fuel use.
The 2009 Perth and Kinross Council Local House Condition Survey reported that 12,255 households (18.3%) were living in fuel poverty of whom 2,016 households (3%) were living in extreme fuel poverty. The key findings from the survey were that:
• 26.9% of council tenants, 18.3% of private renters, 17.2% of owner-occupiers and 16.3% of housing association tenants were living in fuel poverty. • Households with older people aged over 65 years are much more likely than all other types of household to live in fuel poverty as 33.4% of elderly households were living in fuel poverty. • Unemployed (37.1%), wholly retired (35.5%), permanent sick/disabled (32%) and part- time worker (31%) households showed the highest incidences of fuel poverty. Around 9.6% of unemployed households were reported as living in extreme fuel poverty. • Households living in the Highland part of Perth and Kinross were more likely to be living in fuel poverty accounting for 34.9% of all fuel poverty in Perth and Kinross. Around 9.6% were living in extreme fuel poverty. • The average National Home Energy Rating (NHER) rating for households in fuel poverty in Perth and Kinross was 5.6 compared with 6.3 for households not in fuel poverty. The average NHER rating in Perth and Kinross was 6.2. • Households with no central heating or partial central heating are more likely to live in fuel poverty. Figure 6: Fuel Poverty and Extreme Fuel Poverty by Local Housing Market Area 40%
35%
30%
25%
20%
15%
10%
5%
0% Greater Perth Eastern Highland Kinross Strathearn Perth & Kinross
Fuel Poverty Extreme Fuel Poverty
Source: Perth and Kinross Local House Condition Survey 2009
The Perth and Kinross Fuel Poverty Statement, (see Appendix 12), is an integral part of the LHS and sets out in detail the LHS priorities with regard to fuel poverty. The overarching aim of the Statement is to eradicate so far as reasonably practicable, fuel poverty in Perth and Kinross by 2016. The supporting aims are to:
37 44 • Identify low income households at risk of fuel poverty, and maximise their household income. • Build better links with those agencies which are in contact with fuel poor households, and develop more robust referral mechanisms. • Assist vulnerable households to maximise the efficiency of heating systems and other household appliances. • Raise awareness of fuel poverty issues, and how these may be addressed. • Identify properties with poor thermal efficiency, and put in place practical measures to improve them.
Perth and Kinross Council and its partners have been active in addressing fuel poverty across the local authority area. For example undertaking:
• An extensive programme of energy efficiency improvements to its own stock such as central heating systems, replacement boilers, cavity wall insulation, loft insulation, hot water tank insulation, draught-proofing, low energy light bulbs and energy efficiency advice and double-glazing. • Advice Work through the Perth and Kinross Energy Efficiency Advice project. • The Ferguson Park, Rattray Affordable Warmth Project delivered in conjunction with Scotland Gas Networks to install efficient new heating systems in an area where there was previously no gas. • Publicity through the distribution of awareness raising information to partner agencies and with benefits and council tax information. • Council, NHS and Voluntary Staff awareness raising sessions. • Successful bids to the Scottish Government for both the Home Insulation Scheme and Universal Home Insulation Schemes. • Climate Challenge Fund projects were created to identify barriers to individuals becoming involved in taking up energy efficiency measures and to develop effective solutions. Groups are active in Alyth, Comrie, Letham, Guildtown, Braco, Muthill and Muirton.
Perth and Kinross Council and its partners shall continue to deliver the actions set out in the Statement and shall focus on assisting fuel poor households to decrease their domestic fuel costs by:
• Identifying levels of fuel poverty and measure progress towards its reduction. • Increasing household income of fuel poor households by delivering fuel poverty advice, information advice and referral services. • Maximising overall household incomes by providing benefits and money and debt advice. • Increasing energy and fuel efficiency of the housing stock.
6.3.6 Climate Change
Around 25% of greenhouse gas emissions derive from houses. Delivering measures to improve domestic energy efficiency in both new and existing housing stock will be crucial to meeting climate change objectives. The Climate Change (Scotland) Act 2009:
• Created a statutory framework for reducing greenhouse gas emissions; sets mandatory emissions reduction targets for 2020 and 2050, and requires Scottish Ministers to set annual emissions and energy efficiency targets. • Included measures relating to adaptation, energy efficiency and waste reduction
The LHS has a remit to improve housing design and energy efficiency and in doing so making a contribution to reducing energy consumption and ‘green house’ gas emissions. To help improve the Council’s understanding of climate change issues, there is an ongoing analysis of the national and local Perth and Kinross house condition surveys alongside the Housing Energy Efficiency Database. The Council has established a corporate Low Carbon Economy Working Group which shall help to deliver measures. Its housing focus is centred on the delivery of the Council’s:
38 45 • Fuel Poverty Statement. • Scottish Housing Quality Standard Delivery Plan. • Scheme of Assistance. • Council Tax Discount Scheme. • Strategic Environmental Assessment of plans and strategies. • Meeting energy efficient building standards through in new supply affordable housing. • Flood defence systems.
6.4 What are Our Priorities?
• Improve quality of Council’s own stock to better deliver on issues such as energy efficiency, home safety, security and house amenities and meet investment requirements identified by Scottish Housing Quality Standard Delivery Plan.
• Implement the Scheme of Assistance which helps to tackle problems of disrepair in the private sector by providing a range of advice, information and support to owner occupiers and private landlords who are:
¾ Elderly or disabled to enable them to undertake necessary improvements. ¾ Living in BTS housing. ¾ Living in properties requiring common repairs or improvements.
• Implement the Fuel Poverty Statement for Perth and Kinross.
• Contribute towards tackling climate change by improving the design and energy efficiency of Council stock.
39 46 7. Assisting People with Particular Needs
7.1 Our Intended Outcome
Provision of a range of accommodation and support, appropriate to the needs of individuals and their carers, to enable them to receive the support and care they need within their own home and local community.
7.2 Our Strategic Objectives
1. Increase the supply of new build housing suitable for people with ‘varying and particular needs’ year on year.
2. Develop appropriate housing with support for frail older people including the provision of housing with care and support places by 2016.
3. Increase the availability, year on year, of telecare packages for frail and vulnerable people.
4. Meet the need for housing suitable for people with mobility problems by providing support and advice to owners, (e.g. through Care and Repair), and adapting at least 250 dwellings across all tenures each year.
5. Provide at least 3,000 items of aids and/or equipment for households with a disability assessed as requiring them per year.
6. Complete planned re-settlement programmes as scheduled by supporting individuals in their own home or in a homely setting.
7. Minimise numbers of homelessness presentations as percentage of total households by 2012.
8. Minimise numbers of homelessness re-assessed as homeless or potentially homeless within 12 months of previous case completed by 2012.
9. Improve the range and number of temporary accommodation options for homeless households, by 2012.
10. Reduce the average time spent in temporary accommodation by homeless households by 2012.
7.3 What are the Main Issues?
7.3.1 Community Care
There will be an increasing and substantial demand for housing across all tenures which is built specifically or can be adapted to suit the needs of people with particular needs who are aged over 65 years. Within the context of the overall increase in the older population, there is a need to explore opportunities for a range of housing options for frail older people. This could include the development of additional amenity housing, very sheltered housing or intensive housing support and/or social care for those who wish to remain in their own homes or dedicated housing with care. As such the Council shall develop a housing with care service which shall re-orientate existing sheltered and very sheltered housing towards meeting the housing, and care needs requirements of those in greatest need. This may involve upgrading or reconfiguring existing Council and RSL sheltered or very sheltered housing services. This will be progressed as part of a wider framework of service development through the Change Fund to support ‘Reshaping Care for Older People’.
40 47 There is a substantial and increasing demand, from people of all ages, for housing which is suited to the needs of people with a range of physical disabilities. As well as the provision of new build housing built to ‘varying needs standards’ there is a greater demand for adaptations to mainstream housing both in the social rented and private sectors. In addition, the development of wheelchair standard units may be appropriate in accordance with identified need and there is a requirement to make the best use of existing stock.
Most people with a learning disability are able to live in mainstream accommodation with adaptations if required, with individual support packages. Enabling individuals to live successfully in the community through supported living arrangements with suitable housing is a major issue. This is required specifically for people currently resident in institutional care or living inappropriately in the community.
The vast majority of people with mental health problems live in mainstream housing with varying levels of support. Negotiations are ongoing to identify options for the discharge of a number of individuals from hospital sites. This will create additional demands for housing with support. Enabling individuals to live successfully in the community through supported living arrangements with suitable housing is a priority for people living in inappropriate institutional care or in the community with inadequate support.
The council’s approach to meeting the needs of people with particular needs focuses predominantly on a ‘supported living’ approach which seeks to enable individuals to live independently within their own homes integrated within existing communities. This approach has proved successful in resettlement programmes for people with learning disabilities and mental health problems. For future provision for particular needs it is envisaged that this need will be met mainly within housing for varying needs mainstream developments with a small number of fully wheelchair standard units incorporated wherever practical and required.
The Council’s approach is to enable integrated developments with appropriate support and management arrangements to assist individuals with community care needs to live independently rather than develop ‘specialist’ schemes. This is reflected in the overall Strategic Housing Investment Plan programme a significant proportion of the total programme is dedicated towards meeting the particular needs of equalities groups.
7.3.2 Telecare
Telecare aims to support the delivery of efficient and effective services through an integrated approach within wider care and support models for people with community care needs living in the community. It is a key element within the Scottish Government’s drive to shift the ‘balance of care’. This shift includes: a focus on preventative care and support, supporting long term conditions, a shift in the location of services away from institutional setting to the community and shifting the control and choices about care to service users. The Council is investing in the expansion of telecare services to help deliver:
• Increasing choice and independence for service users. • Contributing to a range of preventative measures. • Supporting hospital discharge and intermediate care services. • Supporting the management of long term conditions at home. • Increased use within mainstream services.
7.3.3 Health Improvement
In Perth and Kinross there is overall a positive picture of health but it is recognised that within the area there are vulnerable or marginalised groups who experience health inequality. This may be a result of geographical location such as living within areas experiencing deprivation. Poorer health frequently correlates with a lower socio-economic status and higher levels of households living on welfare benefit, but is also likely to be influenced by housing status.
41 48 It is also recognised that there are priority groups, such as those vulnerable to homelessness, adult and young carers, gypsies/travellers and young people leaving care that may experience multiple health challenges as well as facing housing difficulties. The increasing number of people living with long term illness and with dementia will provide challenges for services, including housing services, as they also strive to increase opportunities for people to maintain independent lifestyles within the community.
The most economically and health deprived areas in Perth and Kinross are parts of the City Centre, Muirton, Fairfield, Letham in Perth and in Rattray. Health inequalities also tend to be associated with other socio-economic factors, such as unemployment, a lack of educational opportunities, skills or training, and the prevalence of crime. The quality of housing and the local built environment can have a significant impact on an individual’s health. It should be noted that the relationship between housing and health is a complex one. However of the health factors are detailed below.
• Lack of access to affordable housing can impact a person’s available income to spend on food or recreational activities, leading to poorer physical and mental health. Overcrowding can also result from a lack of affordable housing rental options. • Housing conditions can have a direct impact on physical health (e.g. cold, damp or dusty housing, leading to respiratory difficulties). • Mental and physical health as well as educational attainment of children and young people in poor quality or inappropriate housing can be adversely affected. • Housing design and the availability of support can impact on home safety and the number of accidents. • Homelessness has a significant impact on an individual’s health. Their circumstances can lead to a poor diet, an increased chance of substance misuse, and greater likelihood of being a victim of crime. A chaotic lifestyle and no home address makes it more difficult to access health services.
Perth and Kinross Council and the Community Planning Partnership are working to improve the population’s health through a range of housing related initiatives. For example the Smoke Free Homes Scheme encourages residents to limit smoking within their home, to benefit both their health and that of others living in the house as well as limiting the opportunities for tobacco related fires to take place with the associated personal and material costs.
7.3.4 Homelessness
In Perth and Kinross in 2010/11 homeless applications increased by 9.6% compared to the previous year, (1,128 applications, compared to 1,029) The increase can be attributed, in part, to the change in policy regarding ‘priority need’ which has increased the number of homeless people who are eligible for housing under the homeless legislation. It is a statutory requirement that all Scottish Local Authorities move towards total elimination of the ‘priority need’ test by 2012.
A relatively small proportion of presentations to Perth and Kinross Council are repeat applications from households who have previously presented as homeless. Re-presentations accounted for only 2.6% of all applications in 2010/11. The most common reasons for loss of previous accommodation are ‘asked to leave’ followed by ‘dispute within household/ relationship breakdown non-violent’. The other main reasons for loss of accommodation include ‘other action by landlord resulting in termination of tenancy’, ‘dispute within household/ violent or abusive’, termination of tenancy/mortgage due to rent arrears/default on payments’, ‘overcrowding’ and ‘discharge from prison/hospital/care/other institution’.
The main reasons given by homeless applicants for failing to maintain their previous accommodation are related to finance and lack of support from friends and family. Single people constitute the majority of applicants at 56.3% of all presentations (The Scottish average on 2010/11 was 62.9%).
42 49 Figure 7: Homeless Applications in Perth & Kinross
100%
80%
60%
40%
20%
0% 2006/2007 2007/2008 2008/2009 2009/2010 2010/2011
Single Person Single Parent Couple Couple with Children Other Other with Children
Source: Scottish Government Statistics 2010/11
Presentations from single parents continue to rise and this year comprised 28% of all presentations compared to 25% last year. The level of homeless applicants from minority ethnic groups in Perth and Kinross has remained low over the last 3 years with around 97% of all applicants reporting their ethnic group as ‘White Scottish/Other British/White Irish/White Other’.
According to official data rough sleeping has been declining slightly over the last two years. By its very nature, rough sleeping is a “hidden homelessness” phenomenon and extremely difficult to measure. The Council continues to liaise with its partners in the voluntary sector who undertake street work and outreach work and identify rough sleepers who are not in touch with statutory services, they estimate that there is an average of about four people each month who are sleeping rough in Perth and Kinross.
The percentage of applicants receiving a ‘priority need’ decision in Perth and Kinross has been increasing year on year, in line with the Scottish Government’s 2012 target. In 2010/11 the total number of applicants assessed as potentially homeless or homeless was 968. This was 85.8% of all applications compared to 77.2% in the previous year. The largest “priority need” category is that the household contains dependent children. In 2010/11 there were 273 applications from households in this category and this was 24% of all applications with the next largest groups being people experiencing mental illness (9.7%) and people fleeing domestic abuse (9.4%).
Of all applications 43.5% were from households where the main applicant was in the 16 – 25 years age group. In previous years applicants in the 18-25 years age group would not have been accepted as statutorily homeless unless they also were in one of the priority need groups. Priority need has been widened to include everyone up to and including age 25 years and there is a re-housing duty towards this group on grounds of age alone. The Council’s Homelessness Strategy recognises the need for provision tailored to young people’s needs, and also for preventative work with young people.
Of all applications that were processed to completion stage in 2010/11, 33% (compared to 42% last year) went on to receive a Scottish Secure Tenancy. 17.8% were owed no duty and 14.3% were classified as having returned to their previous address or gone to stay with friends or care of a voluntary organisation.
43 50 By 2012, all Scottish Councils will be required to disregard priority need in homeless assessments i.e. they will have a re-housing duty to all unintentionally homeless applicants, regardless of applicants’ age, health, parenting responsibilities, vulnerability etc. To meet this target the Council incrementally widened the eligibility criteria and by October 2011 it abolished priority need assessments altogether.
In view of the increased responsibilities placed in the Council under the 2012 target the Council has commissioned research to estimate the extent and nature of the shortfall in available tenancies. The most recent exercise projects that there will be an overall average shortfall each year of 340 tenancies and the majority of the shortfall is in one bedroom properties. By area, the majority of the shortfall is projected in Greater Perth but notable shortfalls over time are also projected in the Eastern and Strathearn LHMAs. There are also projected shortfalls in both long-term and supported temporary accommodation.
Homelessness remains a significant issue across Perth and Kinross. Key issues in tackling homelessness include developing better preventative services including information and advice services, improving the co-ordination and delivery of housing and related support services and increasing the number and range of suitable temporary accommodation options, especially for those with particular needs. Perth and Kinross Council has published a dedicated Homelessness Strategy (see appendix 10) which outlines a detailed set of actions which will help address the strategic objectives of this LHS.
7.3.5 Housing Support
It is the Council’s approach to enable integrated developments with appropriate support and management arrangements to assist individuals with housing support needs to live independently rather than develop ‘specialist’ schemes. There is a significant requirement for a better range of housing support services, especially floating housing support services for homeless households, older people, people with a physical disability, people with a learning disability and people with mental health problems. This includes the development of services for individuals living in the owner occupied and private rented sectors. Housing support services are principally resourced through the former ‘Supporting People’ funding. With the capping and end of ring fencing of this funding stream, it is likely that there will be limited opportunities to develop or grow services to meet anticipated increasing demand.
The Council's Supporting People housing support budget for future years is anticipated to be less than the current figure of just under £6m. This funding continues to be fully committed and provides a range of housing support services to enable people to live as independently as possible in their own homes.
Table 8 shows the current expenditure profile for housing support for both directly provided and externally commissioned services. The largest budgets are allocated to learning disability client group followed by older people, homelessness and people with mental health problems.
Table 8: Housing Support Expenditure Profile by Client Group (2011/12)
Client Group/Support type Accommodation Floating Support Total with support Learning disability 24.0% 14.7% 38.7% Older people 16.8% 2.9% 19.7% Homelessness 12.4% 4.9% 17.3% Mental health 1.6% 11.1% 12.7% Substance misuse 0.7% 3.8% 4.5% Vulnerable young people 0.0% 3.0% 3.0% Physical disability 0.0% 1.7% 1.7% Anti-social behaviour 0.0% 1.2% 1.2% Domestic abuse 0.4% 0.3% 0.7% Criminal justice 0.0% 0.5% 0.5% Total 55.9% 44.1% 100.0% Source: Perth and Kinross Council
44 51 Future main priorities shall be for accommodation with support provision across a range of client groups including people with a learning disability, older people, homelessness and people with mental health problems. The full nature of how the Council’s commitments are outlined in the Council’s Commissioning Strategy (appendix 13). The Council shall work with its partners to ensure that the quality of existing housing support services are maintained and improved and that services better target those in most needs. If the overall capacity of services is reduced, the Council shall focus on improving capability of the services delivered.
7.3.6 Domestic Abuse
‘Towards an integrated strategy addressing violence against women 2010-2013’ launched in September 2010 by the Perth and Kinross Violence Against Women (VAW) Partnership aims to encourage an integrated partnership approach to preventing Violence Against Women, developing a comprehensive range of provision which supports and protects women, children/young people and takes account of and addresses the challenges arising from perpetrators of VAW.
Taking account of the wide variety of multiple and complex needs and delivering positive outcomes for women, children/young people experiencing any of the wide spectrum of violence and abuse which is encompassed within the VAW agenda requires effective partnerships and multi-agency responses/provision tailored to the needs of those affected. The VAW partnership will continue to work with key partners and build on previous partnership successes, for example, Perth and Kinross Domestic Abuse Care and Repair initiative, funded by the Perth and Kinross Community Safety Partnership, which aims to improve women’s safety within the home. Over the coming year, the VAW Partnership will work with the Homeless Strategy Group to explore models for providing safe accommodation for those affected by the wide spectrum of violence against women.
It is recognised that domestic abuse is common cause of homelessness and as such Perth and Kinross council plays a key role in delivering and commissioning housing support for households experiencing domestic abuse at dedicated refuges alongside floating support in the community and this commitment remains. In addition Perth and Kinross Council provides financial assistance to Perthshire Women’s Aid through the Choose Life programme. Funding is provided for a specialist therapeutic counselling service to improve the mental health and wellbeing of women who have experienced domestic abuse.
7.3.7 People with Substance Misuse Problems
People with substance misuse problems require a range of housing with support options. The Council commissions a range of accommodation with support and floating support providers to deliver these. Under the auspices of the ‘Alcohol and Drugs Partnership Strategy’, proposals have now been taken forward to develop intensive housing support services for those requiring additional support with community based alcohol detoxification. This initiative will be piloted for one year from 2011.
Funded by the Perth and Kinross Alcohol and Drug Partnership, the service will be delivered in partnership with Anchor House, the Tayside Substance Misuse Service and the Drug and Alcohol Team. This provision will enable people who are particularly socially isolated to recover from alcohol misuse, to help maintain their tenancy and achieve a healthier and more fulfilling lifestyle. This service has been developed to meet the need for a locally based provision, to achieve a range of improved and sustainable joint outcomes for clients whilst also achieving better value for money.
7.3.8 Vulnerable Young People
Young single homeless people require specific forms of accommodation and housing support, coupled with specialist information and advice and the Council’s Homelessness Strategy recognises the need for this specialist provision. In 2010/11, 43.5% of applications were from households where the main applicant was in the 16 – 25 age group and 18.7% of these were from people in the 16/17 age group.
45 52 In previous years applicants in the 18-25 age group would not have been accepted as statutorily homeless unless they also were in one of the priority need groups. Now that priority need has been widened to include everyone up to age 25 there is a re-housing duty towards this group on grounds of age alone. Just over 6% (68 no.) of all applicants were previously looked after as a child by the Council, and the majority of these had been in the Authority’s care in the last 5 years. Acknowledging these trends, the Council will continue to invest in dedicated housing with support options for young people.
7.3.9 Gypsies/Travelling People
In recent years Perth and Kinross has made concerted efforts to address, the needs of Gypsies/Travellers, through commissioning research and consulting with travellers’ representatives and tenants’ associations. The outcomes have included Perth and Kinross Council successfully obtaining Scottish Government grants to refurbish the existing Gypsy/Traveller site at Double Dykes. Amenities at Double Dykes were inadequate with problems with heating and condensation/dampness and this was having a detrimental effect on residents’ health. 20 new chalets have been provided with services and standards compatible with those of tenants in Council housing. In addition to the Double Dykes project the Council has up-dated the accommodation at the Bobbin Mill site in Pitlochry to provide 6 refurbished chalets to the Bobbin Mill community whose family has lived on the site for many years. The Council shall monitor the requirements of this client group.
As well as the Scottish Government’s twice yearly count of Gypsy/Traveller households, the Council’s HNDA helps to detail the extant need. The Council has also undertaken research projects (2003, 2007 and 2011) with input from the Gypsy/Traveller communities to help define their needs more specifically. This research has helped input into the local service delivery.
The count and the research show that there are two permanent Council owned sites, 3 privately owned sites providing pitch spaces and several unauthorised encampments spread across Perth and Kinross. The number of unauthorised encampments reflects a requirement for temporary ‘short-stay’ sites. It is considered that overall Perth and Kinross has lost in the region of 40 temporary pitches over the last 10 years due to landowners selling or a change of use in the land. There is a requirement for more temporary pitches and sites to enable Gypsies/Travellers to move around, following their travelling lifestyle. The need for temporary encampments increases during the summer months, where the length of stay is typically around two or three weeks.
The research has highlighted a lack of quality, and lack of access and provision of, private sites plus the loss of some private sites to Gypsies/Travellers as landowners moved toward higher density migrant worker encampments or holiday accommodation. It evidenced a lack of sites and facilities for seasonal travelling and temporary encampments in a range of locations across Perth and Kinross.
To assist with addressing these needs, Perth and Kinross Council shall have planning policy with supporting supplementary guidance in the LDP to help assess planning applications for permanent and temporary ‘short-stay’ sites in small groupings.
7.3.10 Black and Minority Ethnic (BME) Communities
While there is reasonably accurate information on the number of migrants particularly from Eastern Europe taking up employment in Perth and Kinross, it remains relatively unknown what impact this group may have on the level of need for affordable housing in the longer term. Many taking up casual labour in Perth and Kinross may be housed in temporary accommodation most often provided by their employers. To address any issues which may arise from this situation an accommodation standard guide has been produced by the Council’s Environment Services. This aims to address accommodation issues arising with the quality of temporary accommodation.
46 53 The Minority Ethnic Access Development (MEAD) Project is a joint initiative between Perth and Kinross Association for Voluntary Services (PKAVS), Perth and Kinross Council and the Perth and Kinross Community Health Partnership in collaboration with local Minority Ethnic communities and MECCOPP (the National Development Programme funded by the Scottish Government Equalities Unit). The MEAD Project aims to provide the migrant and minority ethnic population the support to play a full and active role in their communities while helping statutory and voluntary service providers to respond more effectively to their needs. MEAD provides a local authority-wide service aimed at supporting migrant workers and established minority ethnic communities across Perth and Kinross. The project has a particular focus on supporting unpaid carer and individuals affected by disability, long-term health conditions or older age. A team of MEAD Development Workers (Chinese, South Asian and Eastern European) provide a ‘one-stop shop’ to target communities including:
• Advocacy and casework. • Multilingual information and advice service. • Individual and group support. • Recreational, therapeutic and educational opportunities. • Community engagement and consultation.
7.4 What are Our Priorities?
• Develop new build housing suitable for people with ‘varying and particular needs’.
• Develop appropriate housing with care/ support provision for frail older people.
• Assist individuals to live independently by adapting existing stock.
• Increase the numbers of community alarms.
• Enable individuals to live independently by delivering aids and/or equipment to households with a disability.
• Monitor all independent housing support services to ensure high quality services.
• Enable greater range of housing options for people with mobility problems by:
¾ Providing grant assistance to disabled owner occupiers to undertake adaptations. ¾ Providing adaptations for disabled people living in the social rented sector.
• Enable supported living arrangements in the community through the provision of suitable housing for people with a learning disability or mental health problem who are:
¾ Resident in hospital and are part of a planned discharge programme. ¾ Living in other institutional care and are part of a planned discharge programme. ¾ Living inappropriately in the community.
• Implement relevant health improvement programmes.
• Implement Homelessness Strategy by:
¾ Promoting the prevention of homelessness including the availability of information and advice services. ¾ Delivering access to accommodation, including temporary, resettled and permanent. ¾ Enabling the availability of support and care services, before, during and after the homelessness episode.
47 54 • Improve, where appropriate, the choice of information, advice, accommodation and support options for a range of clients groups such as:
¾ Those experiencing domestic abuse. ¾ People with substance misuse problems. ¾ Vulnerable young people. ¾ Gypsies/Travelling people. ¾ BME communities.
48 55 8. Action Plan
Task Main Main Objectives Action By No. Partners Resources
Addressing Housing Requirements
1 4.1 Enabling the development of 100 affordable housing units on Annual SG HAG average per year through implementation of Strategic Housing PKC LAND Investment Plan RSL AHP CTR PF 2 4.1 Deliver local authority new build programme in priority areas Annual SG HRA PKC LAND CTR PB 56 3 4.2 Develop TAYPlan Strategic Development Plan 2012 PKC OTH
4 4.2 Develop Local Development Plan for Perth and Kinross 2012 PKC OTH LLTNPA OTH 5 4.2 Undertake Local Housing Needs Assessment 2013 PKC HRA NON-HRA 6 4.3 Promote good management standards in the private rented sector Annual PKC NON-HRA PL OTH 7 - Bring forward ‘Pressured Area Status’ proposals for designated 2012 PKC HRA areas RSL Promoting Sustainable and Mixed Communities
8 5.1 Bring forward proposals for local housing collaborative. 2013 PKC HRA RSL OTH 9 5.2 Deliver a programme of development of mixed tenure houses in line 2016 SG HAG with the Muirton Master Plan PKC HRA RSL LAND PD PF
49 Task Main Main Objectives Action By No. Partners Resources
10 5.3 Implement and monitor Tenant Participation Strategy Annual PKC HRA RTO 11 5.4 Continue to improve council housing management services Annual PKC HRA including delivery of our contribution to the Scottish Social Housing RSL OTH Charter 12 5.5 Continue to tackle anti social behaviour by implementing Annual PKC HRA Community Safety Strategy and Anti-Social Behaviour Strategy RSL SP PROV OTH OTH Improving Stock Condition and Energy Efficiency
13 6.1-6.2 Implement Fuel Poverty Statement Annual SG HRA CAP PKC CC 57 RSL OTH PROV OTH 14 6.3 Implement Scottish Housing Quality Standard Delivery Plan Annual PKC HRA CAP PB 15 6.4 Implement Scheme of Assistance Annual PKC SG PROV PSHG
16 6.5 Undertake Cross Tenure House Condition Survey 2014 PKC HRA PSHG Assisting People With Particular Needs
17 7.1 Increase the supply of new build housing suitable for people with Annual SG HAG ‘varying and particular needs’ PKC LAND RSL AHP CTR PF CC SP
50 Task Main Main Objectives Action By No. Partners Resources
18 7.2 Develop appropriate housing with support for frail older people 2015 PKC HAG NHS LAND CC SP 19 7.3 Adapt at least 250 dwellings each year Annual PKC SG RSL HRA PROV PSHG 20 7.4 Provide at least 3,000 items of aids and/or equipment Annual PKC CC
21 7.5 Complete planned resettlement programmes as scheduled Annual PKC HAG RSL LAND NHS CC NHS 58 22 7.6 Implement Commissioning Strategy Annual PKC SP RSL CC PROV ECS 23 7.7-7.10 Implement Homelessness Strategy Annual PKC HAG RSL NON - HRA PRO HRA SP OTH ECS 24 - Implement PKC Housing and Community Care Equalities Action Annual PKC HRA Plan RSL CC PRO
51 9. Financial Framework
9.1 Housing Revenue Account (HRA) – Management and Maintenance
Although much of this LHS focuses on new build provision and stock improvement the Council is spending an average of £14.1m per annum from 2011/12 to 2014/15 on the management and maintenance of its housing stock. As part of its Business Plan the Council will keep its management and maintenance costs under review to ensure they are in line with its thirty year financial projections.
9.2 Housing Revenue Account (HRA) – Capital Programme
Through the prudential borrowing regime the Council will invest an average of £9.3m per annum from 2011/12 to 2014/15 in new build supply and upgrading its housing stock. As part of its thirty year financial projections, in line with the prudential borrowing framework, the Council has made assumptions about future rental income and expenditure, taking into account Council house sales, outstanding debt, management and maintenance costs, and void levels. These projections are used to calculate the Council’s ability to finance new borrowing to support the capital investment programme, while maintaining rents at an affordable level. Assumptions have also been made about the likely increase in construction costs reflecting recent and projected trends. The Council has projected that it can fully meet the investment requirements of its housing stock while maintaining rents at affordable levels. As with any long term financial plan, including those of RSLs, there is a need to keep the projections and assumptions used under constant review to ensure that the level of investment that has been assumed can actually be delivered. The main risks, or variables, that have to be managed are set out below.
9.2.1 Construction costs increasing beyond projected levels
In order to minimise this risk the Council can control costs through its own direct labour services and the Council has also entered into contracts and partnering arrangements with contractors that will help avoid uncertainty over contract values. This will provide efficiencies in delivering the programme, and hopefully employment and training opportunities for local people.
9.2.2 Voids increasing beyond projected levels
Realistic assumptions have been made about future void levels taking into account the current position and past trends. The Council is committed about tackling areas of relatively low demand and assumptions have also been made about potential future demolition where the stock is not considered to have a long term future. The effective management of voids continues to be a high priority for the Council and will be kept under constant review as part of the Business Plan process.
9.2.3 Significant variations in stock levels and/or receipts from council house sales
Assumptions have been made about the likely level of future demolitions and Council house sales, which clearly affect both income and expenditure projections. A proportion of the capital programme will be financed from capital receipts, mainly from council house sales, therefore any significant variation in the level and value of house sales could have a significant impact on the programme. This will also be kept under close review.
9.2.4 Investment requirements increase
The Council will base its investment requirements on the findings of the 2009 stock condition survey and the need to meet the Scottish Housing Quality Standard (SHQS). The Council is confident that its investment plans as they stand will be sufficient to ensure that it can meet the Standard for its own stock by the target date of 2015.
52 59 9.3 Private Sector Housing Grant /Private Sector (Non-HRA) Programme
Private Sector Housing Grant (PSHG) provides the main funding stream for the delivery of the Council’s Scheme of Assistance. However the council’s ability to continue to maintain high levels of assistance is dependant on future levels of non-HRA capital programme allocations. With the end of ring fencing of the PSHG funding stream, it is possible that there will be limited opportunities to develop services to meet anticipated increasing demand. Therefore the Council shall work with its partners to ensure that the quality of assistance services are improved and that services better targets those in most needs.
Other elements funded by the non-HRA programme play a vital role in the delivery of services to homeless and potentially homeless households including the delivery temporary accommodation outreach and day services. Any reduction in these budgets will have a potentially adverse affect on the LHS objectives.
9.4 Affordable Housing Development Programme
The development programme is administered by the Scottish Government and principally provides grant funding to RSLs and developers to fund new build housing for rent or sale. The LHS is a key document for targeting investment at local level and all local authorities are required to produce a SHIP annually that outlines how available funding for the affordable housing programme will be invested to meet LHS objectives.
In 2010/11 the Development programme for Perth and Kinross was £8.6M (including accelerated programme funding). During 2010/11 there was a significant reduction in the target number of approvals sought by the Scottish Government as a consequence of high levels of committed funding from previous years when the level of approvals was high in comparison to progress and spend on projects. This led to a situation of a high level of funding being required for projects committed previously.
For 2011/12 there was a new national £50M competitive funding arrangement to assist with the funding of new affordable homes by the Council, other RSLs alongside all providers of affordable housing. It is expected that the budget for the coming years is to remain relatively low and arrangements for future budgets will be reviewed.
A major new addition to the development programme is the introduction of a Perth and Kinross Council new build programme. The Council identified sites for the development of 120 new houses for social rent, funded through a combination of council tax funding, prudential borrowing and grant assistance from the Scottish Government. It is proposed that the Council will continue with a new build programme of approximately 25 houses per year thereafter although funding for this future programme must still be secured. However this will be dependent upon particular levels of Scottish government grant.
This LHS emphasises that there is a high level of need for additional affordable houses throughout Perth and Kinross. Particularly with anticipated reductions in Scottish Government grant funding for affordable housing, it is very unlikely that the gap between need and supply will be met on an annual and accumulating basis. Acknowledging this growing gap means that if grant levels are reduced, then the ability of the Council to contribute to new supply affordable housing will be compromised.
9.5 Land
Opportunities to access land for the development of affordable housing are more readily available since the recent economic difficulties and the associated down turn in the housing market. The Council will consider, where appropriate, the use that can be made of its own land, either through contribution of land in exchange for nomination rights or identification of sites to meet specific objectives. Community planning partners (particularly other public agencies) will also be encouraged to review policies on disposal of assets to assist in delivery of affordable housing.
53 60 9.6 Affordable Housing Policy
Through this policy the Council seeks an affordable housing quota of 25% on all housing sites of 5 units and above, except where individual Local Plans vary this quota. In the case of Perth City Centre, the quota is 50% although this is currently under review since it has been difficult to achieve and it is accepted such a requirement can render sites uneconomic. On- site provision is preferred for larger developments (20 houses or over in Auchterarder, Blairgowrie, Crieff, Kinross, Milnathort, Perth (excluding the city centre) and Scone and 10 or over elsewhere. For smaller sites an appropriate contribution is sought from the developer, preferably land, for provision of affordable housing elsewhere within the housing market area. The Policy is estimated to contribute of up £600,000 to the delivery of affordable housing per year through the payment of commuted sums.
9.7 Council Tax Second Homes Reserve
Local authorities have discretion to vary the discount on Council Tax for second homes and long-term empty properties to generate income to support the delivery of new-build affordable social housing to meet locally determined priorities. The additional funding for affordable housing through the implementation of this policy amounts to approximately £1M annually. This funding is used mainly to assist RSLs to acquire sites for inclusion in the future investment programme and to meet any exceptional costs in bringing forward the development of specific sites which would otherwise mean that the site could not be developed for affordable housing and to support the Council’s new build programme.
9.8 Housing Support
The Council's Supporting People housing support budget for future years is anticipated to be less than the current figure of just under £6m. This funding continues to be fully committed and provides a range of housing support services to enable people to live as independently as possible in their own homes. The Homelessness Strategy and the LHS identify future housing support priorities which will have to be resourced in order to achieve many of the Council's, and Scottish Government’s priorities. These include:
• Support for vulnerable households who are homeless or at risk of homelessness. • Implementation of resettlement programmes for people with learning disabilities and mental health problems. • Maintenance of support arrangements for people with a learning disability and people with mental health problems living in their homes. • Support for vulnerable households with community care needs. • Maintenance of support arrangements at refuge accommodation for women and families fleeing domestic abuse.
However, there is uncertainty over the level of future housing support funding. In addition the impact of welfare reform may have an adverse impact on accommodation with support services which are complemented by housing support funding. It may be that unless continued and sustained funding is confirmed then some of the objectives contained in this strategy regarding the development of accommodation and support for vulnerable people will not be achieved or will require to be reviewed.
9.10 Financial Framework
The table below shows previous, current and future anticipated investment trends in Perth and Kinross which support the Action Plans above. This demonstrates the intended balance between investment priorities. In year 2011/12 investment amounts are based on agreed programmes of investment. With future years notional levels based on current expenditure and indicative investment priorities are shown below. The table outlines that the expenditure profile is anticipated to reduce over the three years. This is due to factors such as the Council’s capital programme being delivered in the earlier years on major items such as kitchens and bathroom programmes. In addition Scottish Government allocations for the development programme are expected to reduce.
54 61 Table 9: Perth and Kinross LHS Financial Framework
Resource Financial Year 2011/12 2012/13 2013/14 2014/15 £’000 £’000 £’000 £’000 HRA – Supervision and Management 9,524 9,112 9,147 9,155 HRA – Repairs and Maintenance 4,724 4,906 4,980 5,108 HRA – Loan Charges 4,465 4,980 5,182 5,636 HRA – CFCR 2,357 2,905 3,485 3,796 HRA – Arrears and Rent Loss 319 328 338 348 HRA – Other 615 619 623 627 HRA – Capital Programme 7,491 9,412 10,285 10,020 Sub-Total Housing Revenue Account 29,495 32,262 34,040 34,690
Private Sector Housing Grant 1,748 1,738 1,728 1,718 Homelessness 5,438 5,411* 5,432* 5,432* Neighbourhood Services 55 56* 56* 56* Housing General Fund – Capital Programme 700 900 500 500 Sub-Total Housing General Fund 7,941 8,105 7,716 7,706
Scottish Government Development 2,500* 2,500* 2,500* 2,500* Programme Second Home Council Tax Reserve for 2,805 890 750 750 Affordable Housing Affordable Housing Commuted Sums 600 600 600 600 Sub-Total – Development Funding 5,905 3,990 3,850 3,850
Safer Communities 956 960* 963* 963* Housing Support 5,685 5,551* 5,059* 5,059*
TOTAL 49,982 50,868 51,628 52,268 NB: All figures are council approved budgets with the exception of the figures that are marked * which are notional figures and are subject to change in future years. All figures with the exception of the HRA figures are gross with the HRA figures being a combination of gross and net. The HRA figures do not take into account any rental income but do take into account other income received. The HRA figures are consistent with the format of the SHQS annual return and the HRA Statistical annual return.
55 62 10. Risk Assessment and Register
10.1 Risk Management
Risk management is the process of identifying, gauging and responding to risks in a particular programme or project, for example project cost, schedule or quality. Risk management planning establishes a consistent approach to programme and project risk management. There are three elements, these are risk identification, risk assessment and risk control. Perth and Kinross Council Housing and Community Care Services has established a ‘Risk Register’ which identifies relates to key corporate and service risks for Housing and Community Care Services linked to the LHS. The major risks identified as having a potential impact on the LHS are identified, along with the risk status.
10.2 Risk Register
The Housing and Community Care Services Risk Register provides a framework for managing risk and indicates whether action has been taken or is in progress in order to reduce the associated risk. Risks are uniquely identified and each risk has been allocated a responsible officer. Where partners are involved there is a shared understanding of risks and agreed plans for managing them.
The Risk Register is a management tool whereby a review and updating process identifies, assesses and manages down the risk to acceptable levels. It provides a framework in which difficulties that may arise and adversely affect the delivery of LHS are highlighted and actions put in place to reduce the probability and the impact of that particular risk. The Risk Register holds information on how the risk is to be responded to (e.g. mitigate by key control, procedures or linked documents). Further Actions aim to show how Housing and Community Care Services are reducing the likelihood of the risk occurring, which informs the residual risk rating. Main risks linked to the LHS are associated with:
• Insufficient number of properties accessible to those who need them in Perth and Kinross. • Delivery of Housing Investment Programme. • Supporting people with community care needs in their own homes. • Ability to meet the homeless targets set by the Scottish Government for 2012. • Ability to deliver the Scottish Housing Quality Housing Standard Delivery Plan. • Partnership working with our partners.
11. Monitoring and Reviewing the Strategy
The LHS Steering Group will monitor the Strategy on an ongoing basis. This Group will meet on at least a bi-annual basis and be chaired by Perth and Kinross Council’s Housing and Community Care Services. This Group will in turn report progress through the community planning structure to the Perth and Kinross Strategic Health Partnership.
The monitoring and reviewing of the Strategy will be linked to the ongoing evaluation of existing and planning of new services. In addition the monitoring of related planning documents such the Tenant Participation Strategy and Homelessness Strategy will also complement the monitoring process. Progress on implementation of the Strategy will be reported to the respective committees of the Council.
A comprehensive outcome monitoring framework has been developed and is set out in section 12. This will show how good the Strategy’s impact has been with the measurement of key outcomes. To provide information and encourage accountability, Perth and Kinross Council shall produce an Annual Review Report that will outline progress in the implementation of the Strategy and an update of key issues and investment priorities. Further consideration will be given to the ongoing involvement of key stakeholders in the monitoring and review of the Strategy.
56 63 12. Outcome Monitoring Framework
12.1 Addressing Housing Requirements
That there is sufficient supply of houses of the size and type people need, in the areas they want to live, and that they can afford.
No. Objective Indicator Target Baseline/Progress 1 Help address the shortfall of Number of RSL houses 75 per year 115 (Mar 11) affordable housing by enabling the 350 (Mar 10) development of at least 100 new 2 supply publicly subsidised Number of Council 25 per year 0 (Mar 11) affordable housing units on average houses 0 (Mar 10) each year until 2016 including the delivery of an average of 25 local authority new build units in priority
64 areas each year until 2016.
3 Increase the effective housing land Housing land supply 6,300 by 2012/13 5,961 (Mar 11) supply year on year with the aim of numbers 5,521 (Mar 10) maintaining an effective 7 year housing land supply.
4 Facilitate improved access, year on Number of households 150 tenancies per year 300 (May 2011) year, to private rented housing for assisted through the 210 (Nov 2010) households that would normally be Rent Bond Guarantee excluded from this sector due to Scheme their low income or reliance on benefits. Number of properties 100 properties by March 45 (30 May 2011) acquired for PKC Lets 2012 21 (Nov 2010) social letting agency
57 12.2 Promoting Sustainable and Mixed Communities
Outcome - Develop appropriate housing and related services, through partnership working, that promotes and maintains sustainable and mixed communities.
No. Objective Indicator Target Baseline/ Progress 5 By 2016 improve the overall Percent proportion of Reduction on baseline 14.5% (Aug 11) positive experiences of tenants transfer requests for 17.7% (Mar 10) living in social rented housing and Council stock of all residents’ experiences of their 6 homes and neighbourhoods. Turnover percent levels Maintain baseline 6.4% (Mar 11) in Council stock 7.3% (Mar 10)
7 PKC tenant satisfaction 90% 90.4% (Jul 11) percent with house 89.8% (Sep 09)
8 PKC tenant satisfaction 90% 86.8% (Jul 11)
65 percent with area 92.4% (Sep 09)
9 All resident satisfaction 90% 96.3% (Sep 09) percent with house
10 All resident satisfaction 90% 96.6% (Sep 09) percent with area/ neighbourhood
11 Deliver a programme of Number of houses Improve on baseline 0 (Mar 11) development of mixed tenure 70 (Mar 10) houses in Muirton to complete the regeneration of the area in line with the Muirton Master Plan by 2016.
58 No. Objective Indicator Target Baseline/ Progress 12 Increase the opportunities for Numbers of RTOs Maintain baseline 9 (Jun 11) tenants and other residents to 10 (Sep 10) influence decision making in local services by maintaining, at least, Numbers of resident Improve on baseline 10 completing / 8 passing (Mar 11) the number of tenant and resident academy trainees organisations by 2016.
13 Continue to develop and improve, Percent of emergency 2011/12 97% 95.4% (Mar 11) year on year, council housing repairs completed within 2010/11 96% 95.3% (Mar 10) management services that meet the target requirements of the Scottish 14 Housing Regulator. Percent of urgent 2011/12 99% 99.1% (Mar 11) repairs completed within 2010/11 96% 99.0% (Mar 10) target
66 15 Percent of routine 2011/12 99% 98.0% (Mar 11) repairs completed within 2010/11 96% 98.6% (Mar 10) target
16 Average time recorded 2011/12 30 days 34 days (Mar 11) to re-let non difficult to 2009/10 38 days 37 days (Mar 10) let properties 17 Tenancy changes - the 2011/12 0.65% 0.69% (Mar 11) percent of rent lost due 2010/11 0.95% 0.87% (Mar 10) to voids 18 Rent arrears - current 2011/12 6% 7.2% (Mar 11) tenant arrears as a 2010/11 6% 6.3% (Mar 10) percent of the net amount of rent due in the year
59 No. Objective Indicator Target Baseline/ Progress 19 Rent arrears - the 2011/12 4.0% 3.5% (Mar 11) percent of current 2010/11 4.5% 5.5% (Mar 10) tenants owing more than 13 weeks' rent at the year end, excluding those owing less than £250 20 Improve satisfaction levels of Percent of service users Improve on baseline 88.1% (2010/11) service users, year on year, with satisfied with delivery of 78.3% (2009/10) service delivery in relation to service in relation to tackling anti-social behaviour. Anti-Social Behaviour
21 Improve the percentage of adults Percent of adults who Improve on baseline 64 % (2007/08) who rate their neighbourhood as a rate their neighbourhood very or fairly good place to live. as a good place to live.
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60 12.3 Improving Stock Conditions and Energy Efficiency
That all houses in Perth and Kinross are in a good state of repair, well maintained and energy efficient.
No. Objective Indicator Target Baseline/ Progress 22 Minimise proportion of households Percent of households Reduction on baseline 18.3% (Sep 09) living in fuel poverty by 2012 living in fuel poverty 31% (2007)
23 Percent of households Reduction on baseline 3% (Sep 09) living in extreme fuel 11% (2007) poverty
24 Increase proportion of dwellings Percent of all dwellings Increase on baseline 61.2% (Sep 09) with a NHER energy efficiency with NHER of 7 or rating of 7 or above by 2016 above 25 Percent of PKC Increase on baseline 67.1% (Sep 09) 68 dwellings with NHER of 7 or above 26 Percent of RSL Increase on baseline 63.4% (Sep 09) dwellings with NHER of 7 or above 27 Percent of owner Increase on baseline 65.1% (Sep 09) occupied dwellings with NHER of 7 or above 28 Percent of private rented Increase on baseline 29.5% (Sep 09) dwellings with NHER of 7 or above 29 Increase the proportion of dwellings Number of properties 863 (2011/12) 538 (Mar 11) meeting the Scottish Housing improved through the 748 (2010/11) 4,470 (Mar 10) Quality Standard year on year PKC SHQS delivery 4,079 (2009/10) plan
30 Percent of all houses Reduction on baseline 62.6% (Sep 09) failing SHQS 67% (2007)
61 12.4 Assisting People with Particular Needs
Provision of a range of accommodation and support, appropriate to the needs of individuals and their carers, to enable them to receive the support and care they need within their own home and local community.
No. Objective Indicator Target Baseline/Progress 31 Increase the supply of new build Number of houses 100 per year 115 (Mar 11) housing suitable for people with ‘varying and particular needs’ year on year. 32 Develop appropriate housing with Number of houses Increase on baseline 0 (Mar 11) support for frail older people including the provision of housing with care and support places by 2016.
69 33 Increase the availability, year on Number of clients Increase on baseline 3,271 (Mar 11) year, of telecare packages for frail receiving community 3,199 (Mar 10) and vulnerable people. alarm
34 Number of clients Increase on baseline 730 (Mar 11) receiving telecare
35 Meet the need for housing suitable Number of houses 250 per year (Mar 09) (Mar 10) (Mar 11) for people with mobility problems by adapted providing support and advice to 79 135 119 RSL owners, (e.g. through Care and 177 203 238 Private Repair), and adapting at least 250 431 430 395 PKC dwellings across all tenures each year.
36 Provide at least 3,000 items of aids Number of aids and/or 3,000 per year 5,109 (Mar 10) and/or equipment for households equipment 4,000 (Mar 09) with a disability assessed as requiring them.
62 No. Objective Indicator Target Baseline/Progress 37 Complete planned re-settlement Number of persons Increase in baseline 5 mental health places (Nov 10) programmes as scheduled by resettled with supporting individuals in their own appropriate package of 10 learning disability places home or in a homely setting. support (Apr 10)
38 Minimise numbers of homelessness Percent of all Reduction in baseline (2010/11) 1.74% presentations as percentage of total households presenting (2009/10) 1.58% households by 2012 as homeless
39 Minimise numbers of homelessness Percent of cases Reduction in baseline (2010/11) 3.1% re-assessed as homeless or reassessed as (2009/10) 4.3% potentially homeless within 12 homeless or potentially months of previous case completed homeless within 12 by 2012 months of the previous case being completed
70 40 Improve the range and number of Types and numbers Increase in baseline - (Nov 10) (Jul 11) temporary accommodation options PKC 148 PKC 175 for homeless households, by 2012 HA 20 HA 17 PSL 95 PSL 93 Total 263 Total 285 41 Reduce the average time spent in Average time (days) Reduction in baseline (Mar 09) (Jul 11) temporary accommodation by B and B - 20 days B and B - 35 days homeless households by 2012 Local Authority - 227 days Local Authority - 261 days Greyfriars - 54 days Greyfriars - 70 days Non PKC - 199 days Non PKC - 230 days Private Sector - 179 days Private Sector - 207 days Rio Satellites - 71 days Rio Satellites - 164 days NB Where a non-quantitative target is shown, this is due to the irregular occurrence of measure source data.
63 13. Glossary
Term Explanation
Affordable Quality housing which costs less than the market value and which meets Housing identified housing needs. It includes social rented housing and affordable private housing. AHIP Affordable Housing (Investment) Programme - grant funding allocated by the Scottish Government to Local Authorities to provide affordable housing. AHP Affordable Housing Policy. Allocations System for letting social rented housing. BME Black and Minority Ethnic Communities. Communities BTS Below Tolerable Standard - housing that does not meet the tolerable standard (standard for housing quality). Community Services and support for people affected by issues associated with ageing, Care (CC) mental illness, learning disabilities, physical or sensory disabilities, progressive illness, misuse of alcohol or drugs, etc. Community Partnership between local public agencies which work together with the Planning community to plan and deliver better services. Partnership Commuted One off payment provided by a private developer instead of providing a Sum house(s) or land. CFCR Capital Funded Current Revenue. CTR Council Tax Reserve. Development Document which sets out the council's policies and proposals on land use Plan which helps guide land use; planning applications decisions, etc. ECS Education and Children’s Services. Fuel Poverty Being unable to adequately heat a home to an acceptable standard at a reasonable cost - when a household’s energy costs are more than 10% of its income. GROS General Registrar of Scotland. HA Housing Association. HAG Housing Association Grant. HMO Houses in Multiple Occupation. HNDA Housing Need and Demand Assessment - Study of the need and demand for housing in an area which follows Scottish Government guidance. Housing Professional advice service to discuss individual housing needs and examine Options all housing options available to the individual household. Service HRA (CAP) Housing Revenue Account (Capital) - The Council's ring-fenced budget (funded by tenants rents) to cover all day to day running costs relating to its housing stock. HRAs Housing Renewal Areas. Innovation and Competitive funding arrangement allocated by the Scottish Government to Investment provide new affordable homes. Fund Land bank Undeveloped land owned by a development company or builder. LCHO Low Cost Home Ownership. LDP Local Development Plan. LHMA Local Housing Market Area. LHS Local Housing Strategy. MEAD Minority Ethnic Access Development Project. NHER National Home Energy Rating - rating standard against which the thermal efficiency of a building is measured. Runs from 0 to 10, with 10 being best. NHS National Health Service. NON-HRA Non – Housing Revenue Account.
64 71 Term Explanation
OTH Other. Outcome The result or impact of actions. Owner- Housing that is privately owned by an individual, either with or without a occupied mortgage. housing PKC LHCS Perth & Kinross Local House Condition Survey - an independent survey which provides data on condition of housing in all tenures across Perth & Kinross. Pressured Areas with a high need and demand for housing but limited supply. areas Pressured A status awarded to pressured areas under the Housing Scotland Act 2001, Area Status which allows local authorities to suspend the Right to Buy for new and transferring tenants. Public Sector Any facility controlled by a government department or local authority or by any other statutory authority. PB Prudential Borrowing. PD Private Developer. PF Private Finance. PKC Perth & Kinross Council. PKC Lets Provides high quality, professional services for landlords whilst at the same time assisting homeless households and those with modest incomes or who are reliant on Local Housing Allowance. PL Private Landlord. PRO Service Provider. PSHG Private Sector Housing Grant. Rent Bond Aims to help people who urgently need accommodation to access housing Guarantee opportunities in the private rented sector. Scheme RSL Registered Social Landlord. RTB Right to Buy – Some Council and housing association tenants have a right to buy their home with a discount on the price depending on their tenancy conditions. RTO Registered Tenant Organisation. SDP Strategic Development Plan. SEA Strategic Environmental Assessment. SEPA Scottish Environmental Protection Agency. SHIP Strategic Housing Investment Plan. SHQS Scottish Housing Quality Standard - Scottish Government Standards for the condition and quality of housing. SOA Single Outcome Agreements - agreements made between the Scottish Government and community planning partnerships / local authorities which set out how each will work to improve outcomes for the local people in a way that reflects local circumstances and priorities and national objectives. Social A wide ranging term to cover all the elements that are required to help people Inclusion to play a full part in society and access the opportunities of others in society. Social Rented Housing rented out by Councils or housing associations. Housing SG Scottish Government. SPG Supporting People Grant. SPP Scottish Planning Policy. Sustainable Development that meets the needs of the present without compromising the Development ability of future generations to meet their own needs. Protecting the environment from harm is a key element of environmental sustainability. VAW Violence Against Women. Voids Empty houses.
65 72 For further information please contact:
Norma Robson Team Leader Planning and Policy Housing and Community Care Perth and Kinross Council 5 Whitefriars Crescent PERTH PH2 0PA
Tel: 01738 476090 Email: [email protected]
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