Housing strategy 2013-18 - September 2013 - Norwich City Council
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Housing strategy 2013-18
September 2013
Foreword The size of the private rented sector has
grown significantly over the last decade.
Decent housing is important for everyone This is in part owing to a rise in the student
and is a key priority for the council. This population, but also constraints on mortgage
strategy sets out a framework for helping lending over the last five years which have
to achieve it. meant people who would like to buy, cannot
The five outcomes of this strategy are afford to. The evidence suggests there
focused around improving housing supply, are still a large number of hazardous and
quality, affordability, choice, accessibility sub-standard private rented homes. The
and support. They also reflect housing’s strategy sets out priorities to make homes
contribution towards improving economic safe through enforcement and to tackle
prosperity. For example, we need to have incidents of harassment and illegal eviction.
the right type of homes in the right place The economic downturn has had a
at the right price to meet housing need and significant impact on the housing market
to attract new businesses and investment across the country. In Norwich, an effect
in the city which in turn will help to create of fewer people able to afford to buy their
new jobs and training opportunities. homes has been a fall in the number of sites
Similarly, housing plays an important role with planning permission being brought
in improving health and wellbeing, both forward for development resulting in a
in terms of the quality and affordability reduction in the overall supply of new
of housing as well as the quality of homes. For example, there are currently
neighbourhoods and communities. around two thousand dwellings with
The council’s status as a member of the planning permission in the city which are
Healthy City Network means it is well awaiting development but in 2011-12 only
placed to make the most of housing’s role 280 new homes were completed, the lowest
in promoting healthy lifestyles and the new since the early 1990s. Meanwhile, the need
opportunities for improved integration and demand for housing continues to rise.
between housing, health and social care. While the council cannot compensate for
Over the past five years great improvements market failure, it is doing its best to make
have been made to the allocation, the most of new opportunities to maximise
management and maintenance of council its resources and assets. For example,
homes, with tenants now playing a much building new homes will both help to meet
greater part in helping to shape services. housing need in the city and generate an
This strategy builds on this good work income to fund further development in
by setting out plans for a programme of the future. Working with our partners,
up-grades to council homes and a range we can also ensure that building new
of customer co-regulation activities to homes (and bringing empty homes back
achieve greater involvement of tenants into use) helps to create new jobs and
in the regulation of services. training opportunities.
The council already owns around 25 per
2 Housing strategy 2013-2018
cent of housing in the city and has embarked
on a major five-year programme of up-grades
and maintenance to improve the quality
of those homes. The investment will also
make a significant contribution to increasing
energy efficiency and reducing carbon
emissions in the city’s housing stock.
This document sets the direction of travel
for housing in the city over the next five
years. There is a lot to do and the council
cannot do it alone. Much of what needs to
be achieved involves working collaboratively
with a wide range of partners in the public,
private and voluntary and community
sectors. We will need to both build on
existing relationships and forge new
ones as we make the most of the new
opportunities for the council to work
towards achieving its priority of Decent
housing for all.
Cllr Mike Stonard
Cabinet member for environment,
development and transport
3 Housing strategy 2013-2018
1. Context and purpose 5
Contents Strategic framework for the housing strategy
Key national policy changes since the last strategy
5
6
What do the changes mean for housing in Norwich 7
Key housing challenges 8
2. Development of the strategy 9
3. Key achievements from the last
housing strategy (2008-2011) 9
4. Where do we want to be? 11
5. How will we get there? 14
Resources 14
6. How will we know? 15
Appendix 1 – Action plan 2013-2014 16
Appendix 2 – Overview of the evidence base 24
Appendix 3 – Glossary 46
4 Housing strategy 2013-2018
1. Context and purpose
Norwich Homelessness Strategy, private
The Local Government Act 2003 requires sector housing policies and our plans to
the council to publish a housing strategy build new council homes. In future years,
which sets out the council’s vision and the strategy’s outcomes and priorities will
priorities for housing in Norwich. direct and shape the content of the service
plans and other emerging documents.
Decent housing for all is a corporate
priority in the current corporate plan The importance of the housing market for
(2012-15) and is the council’s vision for the city’s economic wellbeing means that this
housing in the city. The purpose of this strategy will contribute significantly to the
strategy is to provide a framework for council’s corporate priority to make Norwich
achieving the outcomes and priorities for a prosperous city. It should be considered
housing in Norwich and contribute towards alongside the council’s economic strategy as
delivery of the council’s corporate plan. part of the council’s focus on jobs and homes.
The strategy covers the period 2013-2018. It The strategy reflects the council’s role in
is accompanied by an action plan (Appendix discharging a range of statutory duties such as
1) which will be reviewed on an annual those relating to homelessness, private sector
basis. Actions to deliver the strategy during housing and the safeguarding of vulnerable
2013-2014 are mainly drawn from the children and adults. As illustrated in the
council’s service plans and other strategies diagram below, it will also contribute to
produced jointly with a wide range of meeting the council’s priorities across a
external partners, such as the Greater range of other policy areas including planning,
neighbourhoods and environmental services.
Strategic framework for the housing strategy
Vision and priorities Corporate
for the city council plan
Housing policy Housing • Economic strategy
Economic policy strategy • Joint core strategy
Planning policy
• Local plan for Norwich
Environmental policy
• Environmental strategy
• Affordable warmth
Delivery strategy
Supporting council and partner Council service plans:
strategies/plans: • Housing services
• Greater Norwich homelessness • City development services
strategy • Property services
• Housing support strategy • Planning
• Norwich health and wellbeing • Neighbourhood services
strategy • Communications and cultural
services
• Strategy, people and democracy
5 Housing strategy 2013-2018
Key national policy changes obligations system (section 106 agreements)
since the last strategy mean that strategic infrastructure is now
funded by a Community Infrastructure
Localism Act 2011 – aims to decentralise Levy (CIL) on developers. At present,
power to the lowest practicable level affordable housing continues to be
whether that is the local authority, parish developed through section106 planning
or neighbourhood. agreements. Planning Policy for Travellers
National housing strategy: Laying Sites came into force at the same time as
the Foundations: a housing strategy for the NPPF and requires the council to set
England was published in November pitch targets for Gypsies and Travellers
2011. It sets out a series of changes to and plot targets for travelling showpeople.
the housing system, some of which were Economic development – the Plan
already underway when the strategy was for Growth was published alongside the
published. The strategy aims to increase 2011 budget and announced a programme
housing supply (including bringing empty of structural reforms to achieve the
homes back into use), get the housing government’s growth aims. These are
market moving and boost the economy. focused on creating a competitive tax system,
It supports choice and quality for tenants, encouraging investment and exports, making
provides support for vulnerable people, the UK the best place in Europe to start and
and improved environmental standards grow a business, and the creation of a more
and design quality. The reforms introduce educated and flexible workforce.
measures aimed at making better use of
social housing and include the introduction Welfare reform – the Welfare Reform
of fixed-term social housing tenancies and Act (2012) introduces a radical overhaul
a new Affordable Rent product. of the benefit system. It introduces
Universal Credit, a single benefit for
Funding of new affordable housing – people of working age which will replace
grant available for affordable housing existing benefits such as Income Support
development has been halved in comparison from October 2013. By September 2013
with what was available prior to 2011 all welfare benefits will be capped at the
and a new revenue-based funding model average household earned income. The
introduced. Funding is now generally only cap will not reflect variations in income
available for housing that will be let at an and rental costs across the country. Any
Affordable Rent for which social housing money over and above the cap will be
providers are able to charge rents of up reduced from the housing costs element
to 80% of the market rent compared to therefore some households may be at risk
a more typical 50-60 per cent under the of falling into arrears because their housing
old funding regime. The additional income award is insufficient to meet their rent.
generated must be used to deliver new There have also been significant changes
affordable homes. to housing benefit aimed at reducing the
National Planning Policy Framework housing benefit budget.
(NPPF) – was published in spring 2012 Green Deal – the Green Deal was
and sets out a presumption in favour of launched in January 2013 and is the
sustainable development. Neighbourhood Government’s new scheme under
Development Plans and Community Right which up-front funding is available
to Build enable local people to have more for energy efficiency works, the cost
involvement and control over development of which is recouped through the
in their area. Changes to the planning householder’s (reduced) fuel bills.
6 Housing strategy 2013-2018
Regulation of social housing – a new • The reduction in housing grant has
Regulatory Framework was introduced delayed the development of affordable
in April 2012 which sets out standards housing on a number of important sites
that housing providers must meet with in Norwich. The change in the funding
intervention only taking place in cases model means that up until 2015 most
of ‘serious detriment’ to tenants such as new affordable homes built by registered
health and safety; loss of home, unlawful providers will be provided at an
discrimination, loss of legal rights. Affordable Rent rather than a social rent.
Health and social care reforms – • Because the council can now retain the
the Health and Social Care Act abolishes rental income from its housing stock we
Primary Care Trusts (PCT) and transfers can increase our investment in existing
their commissioning responsibilities to council homes and build new ones which
Clinical Commissioning Groups (CCG). could be let at a social rent. This will help
The NHS Norwich CCG is made up of to counter the effects of the reduction in
23 GP practices serving Norwich and housing grant and introduction of the
parts of Broadland. Local authorities Affordable Rent model.
(top tier) are required to establish Health
& Wellbeing Boards to promote more • The recession has had a major impact on
joined-up commissioning of health and employment in Norwich. The number
social care and public health services. of people claiming Job Seekers Allowance
(JSA) has risen by 80% since 2007, mainly
caused by redundancies and sluggish
recruitment by businesses, but welfare
What do the changes mean reform is increasingly playing a part.
for housing in Norwich? However, the city has been successful
• The shift towards local issues and local in the second wave of City Deals which
decision-making provides the council are designed to give cities the tools
with increased opportunities to directly and powers to drive local economic
respond to local housing needs and growth. The city’s bid was developed
aspirations such as once again building with partners in Greater Norwich and
homes for rent. However, these are is focused on the expansion of the
still challenging times for the economy Norwich Research Park as a catalyst
so we need to continue to innovate for growth leading to the need for
and seek new ways of working to more homes and infrastructure.
achieve our priorities. • Restrictions on the availability of
• The council has new powers over how mortgage finance have led to a significant
it manages its housing stock and responds national increase in the number of
to homelessness. It has made some minor households which rent in the private
changes to the allocation scheme to sector and an associated rise in average
make it fairer and more transparent but rents due to a lack of supply.
at this stage the council has chosen not to • Reduced housing benefit for single
make any changes to its existing policies people under the age of 35 in private
relating to homelessness, the types of rented housing has affected 200 people
tenancies offered or rents charged. in the city who have lost on average
£40 per week. Since April 2013 further
reductions in housing benefit have
7 Housing strategy 2013-2018
been applied to those people who are Against this background, the key
considered to be under-occupying their housing challenges for the council are:
homes in the social sector. For example,
nearly 3,000 council tenants have lost • Delivering housing and employment
between approximately £10 and £18 per growth.
week. Combined with the cap on the • Continuing to improve the quality
overall level of benefit payable, there is of council homes.
a risk that some households in Norwich
will find it difficult to pay their rent, may • Reducing the number of privately owned
fall into arrears and need to move. homes in poor condition.
• Increases in fuel costs and other household • Understanding the impact of welfare
expenses caused by inflation and a weak and social housing reforms on housing
economy can only exacerbate the problem need and responding with the right
of affordability of accommodation. balance of housing tenure, types, size
However, the Green Deal presents new and affordability.
opportunities for the city in improving
• Improving access to the private rented
energy efficiency and tackling fuel poverty.
sector.
The council is in the process of developing
its overall approach to the Green Deal • Helping people to manage the effects
and its application in Norwich. of welfare reform.
• The council introduced a new framework • Reducing the number of people in fuel
for tenant involvement in April 2013 poverty.
to ensure compliance with the revised
regulatory standards on tenant involvement • Supporting people to remain living
and empowerment. The regulator expects independently.
social landlords to adopt a co-regulatory • Tackling and preventing homelessness.
approach where the landlord, the regulator
and tenants together set, monitor and • Meeting specialist housing needs.
ensure standards are met.
• The health and social care reforms have
led to greater collaboration to improve
health outcomes for people in Norwich.
The council’s status as a member of the
Healthy City Network1 means it is well
placed to make the most of housing’s
role in promoting healthy lifestyles and
the new opportunities for improved
integration between housing, health and
social care. The council is now working
with partners to develop an action plan
across the Healthy City Programme’s
seven themes.
1
In July 2012, the council endorsed the 2008 Zagreb declaration, demonstrating its commitment to improving the health and
well being of people living in Norwich and to our partners to embed the health agenda into policies made for the city’s future.
The council then applied for Norwich to become a member of the World Health Organisation UK Healthy City programme.
8 Housing strategy 2013-2018
2. D
evelopment 3. K
ey achievements from
of the strategy the last housing strategy
This strategy is based on current research
(2008-2011)
into the housing market in Norwich which The life of the last strategy coincided with
is summarised in Appendix 2. It contains the economic downturn which produced
information on the demographic and a complex set of challenges for the council
socio-economic profile of Norwich, and its partners. Despite these, much has
together with housing market information been achieved:
and details of housing need/demand and
supply. The evidence base will be up-dated • In challenging market conditions, we
as new data becomes available such as have worked with our partners to deliver
more detailed Census 2011 information 2,238 new homes, including 655 new
and the findings of a fresh Strategic Housing affordable homes, 300 of which were
Market Assessment to be commissioned built on former council land.
jointly with Broadland Council and South • All council rented homes have been
Norfolk Council later this year. The council improved to the Decent Homes
will also be commissioning a private sector standard.
stock condition survey.
• The average council house now has a
To help shape and inform the strategy at band C energy rating as the result of
an early stage we invited a group of key improvements to heating and insulation.
stakeholders to an afternoon workshop This compares with band E in the
on 19 September 2012. Their views and private sector.
opinions are reflected in the outcomes
and priorities set out in section four. • Through our Care & Repair service, we
have provided grants and loans to over
600 vulnerable owner-occupiers on low
incomes to carry out improvements to
their homes.
• We have persuaded the owners of over
100 long-term empty homes to bring
them back into use through the use of
incentives and enforcement including
the use of compulsory purchase.
• We have introduced choice-based
lettings which has given housing
applicants greater choice in meeting
their housing needs.
• We have implemented a range of action
plans with our partners in neighbouring
councils and the voluntary sector to
better tackle homelessness, rough
sleeping and the management of hostels
in Norwich.
9 Housing strategy 2013-2018
• We have taken action to tackle anti-social left training and live in the Norwich area.
behaviour, domestic abuse and hate To date, 15 people have been helped
crime by working in partnership with into employment, two of whom were
the Police and other partners through the long-term unemployed.
Norfolk Operational Partnership Team.
• We launched the LEAP scheme to
• We have provided disabled adaptations provide learning, employment and
to 342 private residents and adaptations accommodation for its clients.
to 1,525 council tenants enabling them
to continue to live in their own homes. • Our landlord service has achieved the
equivalent of a two-star (good) rating
• We have introduced the Families Unit following a comprehensive improvement
Intervention Project which has provided project and we have greatly increased
whole family, intensive support to 171 the involvement that council tenants have
families since June 2008. in the running of their homes including
the establishment of the Norwich Tenants’
• An innovative scheme has provided CityWide Board, the tenant tick for
a range of job opportunities for the publications and tenant inspectors.
unemployed and those who have just
10 Housing strategy 2013-20184. Where do we want to be?
Working with a wide range of partners
in the public, private and voluntary and
community sectors, we want to achieve
the following outcomes and priorities
during the life of the strategy:
Outcome 1: We want to ensure an adequate supply of good quality
homes across all tenures
Priority
a) To build a minimum of 250 new council homes, let at a social rent by 2017-18.
b) T
o identify at least 8 new pitches for Gypsies and Travellers on good quality,
well-managed sites by 2016.
c) W
ork with partners to meet the housing policy requirements as set out in the
Joint Core Strategy/Local Plan to ensure a balanced mix of housing types, sizes and
tenures across the city.
d) To identify funding and investment opportunities for the development of new homes.
e) To bring at least 100 empty homes back into use by 2018.
f) To explore options for increasing the size of the private rented sector.
g) T
o ensure all new development is built to high Joint Core Strategy design and
environmental standards.
11 Housing strategy 2013-2018Outcome 2: We want our residents to have the choice of good quality,
well-managed, affordable accommodation of different
types and sizes across the city
Priority
a) To identify and remove barriers to residents who want to rent privately.
b) T
o address the imbalance between housing need and supply of council social
rented accommodation.
c) T
o ensure the continued provision of a high quality housing advice and options
service with access to a range of support services.
d) To prevent and remedy harassment and illegal eviction of private-sector tenants.
e) T
o promote community cohesion and continue to tackle anti-social behaviour,
domestic abuse and hate crime.
f) T
o ensure the operation of a fair and transparent allocation scheme to meet
individual housing and support needs.
g) T
o achieve customer co-regulation through continuing to develop council tenant
involvement and empowerment.
h) T
o improve the council’s housing stock through a programme of upgrades and
maintenance, including new kitchens, bathrooms, windows and doors.
Outcome 3: We want all vulnerable residents with a specialist
housing need to have access to suitable
accommodation, care and support
Priority
a) To promote independent living through the provision of information, disabled
facilities grants, discretionary loans and adaptations of council homes.
b) T
o collaborate with Norfolk County Council as commissioners of social care and
Supporting People services, the voluntary sector and the NHS Norwich Clinical
Commissioning Group and other partners to ensure an integrated approach
towards providing housing care and support to vulnerable groups and people
with specialist housing needs.
c) To tackle and prevent homelessness and rough sleeping.
12 Housing strategy 2013-2018Outcome 4: We want to improve economic prosperity in Norwich
through a healthy and balanced housing market
Priority
a) To review the council’s options for intervening in the housing market to ensure a
balance of housing types, sizes and tenures across the city to meet the economic
needs of the city.
b) T
o ensure that all new council-funded construction includes training and job
opportunities for the workforce.
c) T
o work with our partners to help increase training and employment opportunities
in the city.
Outcome 5: We want to tackle poor housing and reduce health
inequalities
Priority
a) To ensure that the strong links between housing and health are reflected in the
Norfolk Joint Strategic Needs Assessment (JSNA) and the evidence base supporting
the Healthy City Programme.
b) To contribute to delivery of the Healthy City Programme.
c) T
o substantially reduce the number of hazardous, poorly managed and sub-standard
privately rented homes through enforcement.
d) To improve the energy efficiency of all homes in Norwich.
e) T
o carry out research to improve our understanding of the condition of the private
sector stock.
13 Housing strategy 2013-20185. How will we get there? • As a purchaser of goods and
services – the council purchases a
The council will achieve the outcomes range of goods and services. Ensuring
and delivery of its priorities through a our approach to procurement continues
range of actions in its service plans, the to reflect housing’s broader role can
content of which will be directed by the help to achieve wider policy objectives
strategy’s outcomes and priorities from such as the creation of job and training
2014-2015 onwards. The service plans opportunities and improved health and
cover a number of functions across the wellbeing.
council and reflect its role:
• As an enabler and community
• As a landlord – the council is a major leader – through providing leadership
landlord in the city and will therefore to the city and acting as an advocate
continue to ensure the provision of and lobbyist. In this role, the council
secure, affordable and good quality has become a member of the Healthy
housing for many of those most in need. City network. The resulting Healthy
• As an estate manager – the council City programme will focus upon key
operates a neighbourhood model to areas of activity that can improve
promote community cohesion and health and wellbeing.
create a sense of place for all residents However, the council cannot do it alone.
of Norwich, not just its tenants. A strong Much of what needs to be achieved
feature is encouraging and empowering involves working collaboratively with
local people to be involved in their our partners in the public, private and
communities. voluntary and community sectors.
• As an owner of assets – as well as Resources
council homes, the council owns a
range of assets including land which This strategy has been developed against
can be used for development of new a background of significant reductions in
homes such as at Bowthorpe or to public funding. The council has worked
help attract investment in the city. hard to minimise the impact of these cuts
on services by identifying efficiencies and
• As a service provider – the council improving value for money. It is important,
provides a wide range of housing-related therefore, that the council continues to
services. Therefore, the council is in a maximise opportunities for housing to
strong position to make a real difference influence other policy areas and funding
to the quality of people’s lives, making streams to achieve shared outcomes.
the most of opportunities to influence
other policy areas, funding streams and
the design and delivery of services.
14 Housing strategy 2013-2018Following reform of council housing 6. How will we know?
finance, the council is once again able to
develop new council homes and fund other The strategy’s outcomes and priorities will
capital projects to increase housing supply be delivered through the council’s internal
and improve the condition of the housing service plans which are monitored through
stock. Funding sources include: the council’s performance management
framework.
• investment of up to £30 million over a
five year period arising from the Housing
Revenue Account (HRA) re-financing
• investing receipts from Right to Buy
sales in new build
• g overnment grant for new affordable
housing and Gypsy and Traveller
sites, managed by the Homes and
Communities agency
• revenue funding from the council’s
general fund
• occasional Government funding to
deliver specific outcomes such as
the City Deals.
Other resources we must consider include,
for example, the levels of staffing (and
skills) required. Also, the supply of land
that is available in order to achieve our
commitment to build new council homes.
15 Housing strategy 2013-2018Appendix 1 – Action plan 2013-2014
Outcome 1: We want to ensure an adequate supply of good quality
homes across all tenures
Priority Actions to support Service area Timescale
the priorities responsible
a) To build a minimum To build 31 new affordable City 2013-2014
of 250 new council homes on council-owned development
homes, let at a social land. services
rent by 2017-18.
b) To identify at least Identify appropriate City 2013-2016
8 new pitches site(s) and consult with development
for Gypsies and stakeholders and all services
Travellers on interested parties.
good quality, well-
managed sites
by 2016.
c) W
ork with partners To provide 513 net Planning/city 2013-2014
to meet the housing additional homes. development
policy requirements services
as set out in the Joint To deliver 159 affordable
Core Strategy (JCS)/ homes (gross).
Norwich local plan
to ensure a balanced To provide land for City 2013-2018
mix of housing types, development of housing development
sizes and tenures by the council and partner services
across the city. organisations.
To consider options for City 2013-2014
assisting first-time buyers development
into owner-occupation. services
To adopt a supplementary Planning 2014-2015
planning document (SPD)
or equivalent on affordable
housing.
d) To identify funding Develop an investment plan City 2013-2018
and investment that maximises investment development
opportunities for the opportunities. services
development of new
homes.
16 Housing strategy 2013-2018Outcome 1: We want to ensure an adequate supply of good quality
homes across all tenures
Priority Actions to support Service area Timescale
the priorities responsible
e) To bring at least 100 To bring 20 homes City Annual
empty homes back back into use. development target in
into use by 2018. services Corporate
Plan 2011-
2015
f) T
o explore options Analyse the market as part City 2013-2014
for increasing the size of the Strategic Housing development
of the private rented Market Assessment and services
sector. carry out an options
appraisal.
g) Ensure all new Explore innovative design City 2013-2018
development is built and construction methods, development
to high JCS design including an energy services/NPS
and environmental efficiency design standard, Norwich
standards. for the development of
new council homes.
Agree and implement Planning 2013-2014
a new threshold for the
Building for Life indicator
for all housing sites of
10+ units.
Implement the JCS water Planning Ongoing
efficiency policy for
new development.
17 Housing strategy 2013-2018Outcome 2: We want our residents to have the choice of good
quality, well-managed, affordable accommodation
of different types and sizes across the city.
Priority Actions to support Service area Timescale
the priorities responsible
a) To identify and Take a collaborative approach City 2013-2015
remove barriers to to improve access to the development
residents who want sector through the council’s services
to rent privately. Private Sector Working
Group. Activities will include:
• carrying out a review
of the Private Sector
Leasing Scheme
• investigating the case
for additional licensing
of Houses in Multiple
Occupation (HMOs).
b) To address the Review housing management Housing 2013-2015
imbalance between asset strategy to ensure services/NPS
housing need and existing stock meets identified Norwich
supply of council housing need for the future.
social rented
accommodation. Ensure that the mix of City 2013-2018
all new council housing development
development addresses services
identified housing need.
c) To ensure the continued Carry out a value for money Housing 2013-2015
provision of a high review of the housing options services
quality housing advice service to ensure access
and options service to advice and options is
with access to a range addressing housing need.
of support services.
d) To prevent and Deliver an advocacy service Housing 2013-2014
remedy harassment for tenants. services
and illegal eviction
of private-sector Review current arrangements City 2013-2014
tenants. and resources for development
enforcement of Protection services
from Eviction Act 1977.
18 Housing strategy 2013-2018Outcome 2: We want our residents to have the choice of good
quality, well-managed, affordable accommodation
of different types and sizes across the city.
Priority Actions to support Service area Timescale
the priorities responsible
e) To promote Review of the council’s Neighbourhood Ongoing
community cohesion approach to low level anti-social services/housing
and continue to tackle behaviour and new operational services
anti-social behaviour, policing arrangements.
domestic abuse and
hate crime. Prioritisation of local issues in
conjunction with partners –
neighbourhood board/panel.
Develop a mechanism to
capture, plot and analyse
offensive graffiti which
impacts on communities with
protective characteristics.
f) To ensure the Continue to review the Housing services Ongoing
operation of a fair and allocations policy to ensure
transparent allocation fairness, consistency and
scheme to meet transparency.
individual housing
and support needs.
g) To achieve customer Review implementation of Housing services 2014
co-regulation through the new tenant involvement
continuing to develop framework.
council tenant
involvement and Carry out a range of customer
empowerment. co-regulation activities
including policy, performance
and budget setting.
Publish the annual report to 2013
tenants.
h) To improve the council’s To ensure 2860 properties Housing 2013-2014
housing stock through a meet the council’s ‘Norwich services/NPS
programme of upgrades Standard’. Norwich
and maintenance,
including new Deliver estate improvements. 2014
kitchens, bathrooms,
windows and doors.
19 Housing strategy 2013-2018Outcome 3: We want all vulnerable residents with a specialist
housing need to have access to suitable
accommodation, care and support.
Priority Actions to support Service area Timescale
the priorities responsible
a) To promote Norwich City Council City 2013
independent to provide home development
living through improvement services services
the provision of to residents of the city.
information, disabled
facilities grants,
discretionary loans,
adaptations of
council homes.
b) To collaborate Utilise the Locality Board as City 2013-2014
with Norfolk a high level strategic group development
County Council to influence and progress aervices/housing
as commissioners the integration of housing, services/strategy
of social care health and care services. and democracy
and Supporting
People services, To develop and implement Housing 2013-2014
the voluntary new ways of working at services/city
sector, the NHS neighbourhood level to development
Norwich Clinical support individuals or services/strategy
Commissioning families in line with the and democracy/
Group and other Early Help strategy and to neighbourhood
partners to ensure help discharge the council’s services
an integrated safeguarding duties.
approach towards
providing housing Work with partners to meet City 2014-2015
care and support to the need for housing with development
vulnerable groups care and dementia beds. services
and people with
specialist housing
needs.
c) To tackle To carry out a homelessness City 2013-2014
and prevent review of Greater Norwich. development
homelessness and services/housing
rough sleeping. services
To publish a Greater City 2014-2015
Norwich Homelessness development
Strategy. services/housing
services
20 Housing strategy 2013-2018Outcome 4: We want to improve economic prosperity in Norwich
through a healthy and balanced housing market.
Priority Actions to support Service area Timescale
the priorities responsible
a) To review the Commission a Greater City 2013-2014
council’s options Norwich Strategic Housing development
for intervening in Market Assessment to services
the housing market up-date the evidence base,
to ensure a balance including identifying the
of housing types, impact of welfare reform
sizes and tenures on housing need and
across the city to demand.
meet the economic
needs of the city.
b) To ensure that Continue to deliver City Ongoing
all new council- the Building Futures development
funded construction in Norwich scheme. services
includes training and
job opportunities
for the workforce.
c) To work with our Contribute to the City 2013-2015
partners to help development and development
increase training delivery of the City Deal. services
and employment
opportunities in Identify and pursue new City Ongoing
the city. funding and partnership development
opportunities. services
21 Housing strategy 2013-2018Outcome 5: We want to tackle poor housing and reduce health
inequalities
Priority Actions to support Service area Timescale
the priorities responsible
a) To ensure that the Contribute housing data Housing 2013-2014
strong links between to the JSNA to inform the services/city
housing and health commissioning of health development
are reflected in services. services
the Norfolk Joint
Strategic Needs
Assessment (JSNA)
and the evidence
base supporting
the Healthy City
Programme.
b) To contribute Work with the steering City 2013-2015
to delivery of group to develop and development
the Healthy City implement an action plan services/
Programme. for the programme. housing services/
strategy and
democracy
c) To substantially 100 homes made safe. City 2013-2018
reduce the number development
of hazardous, services
poorly managed
and sub-standard Work with partners to City 2013-2014
privately rented identify new ways of development
homes through identifying sub-standard services
enforcement. properties.
d) To improve the 75 private households Strategy and 2013-2014
energy efficiency where council activity has democracy
of all homes in helped to improve the energy
Norwich. efficiency at their homes.
To improve the energy Housing 2013-2018
performance of council services/NPS
homes in Norwich ensuring Norwich
the average SAP for the stock
improves each year, and is
above the national average.
22 Housing strategy 2013-2018Outcome 5: We want to tackle poor housing and reduce health
inequalities
Priority Actions to support Service area Timescale
the priorities responsible
Explore new funding Housing 2013-2015
opportunities to improve services/strategy
energy efficiency (eg ECO, and democracy/
Green Deal). NPS Norwich
Commissioning of debt Neighbourhood 2013-2015
and money advice services services
in line with the 2012 Financial
Inclusion Strategy and needs
assessment underpinning it.
e) To carry out To commission a stock City 2013-2014
research to improve condition survey. development
our understanding of services
the condition of the
private sector stock.
23 Housing strategy 2013-2018Appendix 2 – Overview of the evidence base
1. Population
Table 1 – Population 1991-2011
1991 2001 2011 Change % change
1991-2011 1991-2011
Norwich 120,900 121,550 132,500 +11,600 +9.6%
Source: Census 2011
The population of Norwich has increased by almost 10% in the period 1991-2011. This was
greater than in Norfolk (7.7%) and for England which was over 7.2%.
Table 2 – Population, age groups, Change 2001 – 2011
Age range 2001 2011 Change % change
0 – 15 21,100 21,700 +600 +2.8%
16 – 64 80,000 91,400 +11,400 +14.2%
65 and over 20,400 19,300 -1,100 -5.6%
16 -24 18,900 22,900 +4,000 +21.3%
Source: Census 2011
Table 2 shows that the main growth in age bands that may well have implications for
population in Norwich over the last 10 the future. This is that the number of children
years has been amongst the “working age” aged 0-4 increased by 32% (+2,000) over
group (aged 16-64). the period, and the number of older people
aged 85+ went up by 20% (+500).
The city has a high proportion of young
people aged 20-29 (21.2 per cent) compared The high proportion of people of working
with just 11.9 per cent in Norfolk and age under 50 means the age profile in
13.66 per cent in England. Overall, 70 per Norwich is distinctly different to the rest of
cent of the population is aged below 50 Norfolk. Those aged 20-29 are more likely
(+1,300 increase in the 40-44 age range) to rent privately because they are unable
compared to 58 per cent for Norfolk and to access mortgage finance to purchase
65 per cent for England. on the open market2. However, if on a
low income, people in this age group are
The Census shows there was an overall small also affected by the reduction in housing
increase in the numbers of children/ young benefit for single people under 353. This
people whilst the numbers of people aged means there is an increased likelihood they
over 65 actually went down. However, there will seek social housing or live in shared
are notable variations within these latter two accommodation in the private rented sector.
2
English Housing Survey (Households) 2010-11, DCLG, 2012.
3
The age threshold for the shared accommodation rate increased from 25 to 35 in January 2012.
24 Housing strategy 2013-20182. Ethnicity
Table 3 – Ethnicity 1991-2011: percentage of population
1991 2001 2011
White 98.3% 96.8% 90.8%
Black, Asian and minority ethnic 1.7% 3.2% 9.2%
groups (BAME)
Black or black British - 0.4% 1.6%
Mixed ethnic group - 1.1% 2.3%
Asian or Asian British/other - 1.7% 5.2%
ethnic group
White non-British - 3.4% 6.1%
Source: Census 2011
Table 3 shows the population of Norwich Relevant local strategies and plans
is becoming more diverse. The proportion of Equality Strategy 2012. The council’s
people from black and minority ethnic groups equality strategy was published in 2012
has increased significantly from 3.2 per and sets out data demonstrating how the
cent in 2001 to 9.2 per cent in 2011. The council shows due regard to the three
proportion of non-British white residents has general equality duties. The strategy also
also increased, most notably growth of the contains the council’s equality objectives
Polish group to around 1% of population in and action plan which will be renewed
2011. The largest individual ethnic groups every four years.
in Norwich, apart from white, are Indian
(1.3%), Chinese (1.3%) and African (1.3%).
3. Households
Table 4 – Household change, 1991-2011
Household composition, no. of households 1991 2001 2011
One person: over 65 8,986* 8,668 7,669
One person: other 8,328 11,589 15,351
Family all over 65 5,320* 4,614 3,631
Couple – no children - 9,030 10,453
Couple – dependent children 8,918** 8,334 8,695
Lone parent – dependent children 2,567 3,649 4,419
Other households - 4,628 6,063
Total households 52,733 54,578 60,319
Source: Census 2011 * 1991 data is men over 65 and women over 60
** In 1991 this is a household of “2 adults with dependent children”
25 Housing strategy 2013-2018Over the period the number of households 4. Tenure
has increased by around 7,600 and average
household size has fallen from 2.29 in 1991 As illustrated by Figure 1 below, forty-four
to 2.1 in 2011, the lowest in the east of per cent of households in Norwich are
England which places increased pressure owner-occupiers, a much lower proportion
on the demand for smaller housing units. than for Norfolk (67 per cent) and England
(63 per cent). By contrast, thirty-two per
Changes in Census definitions make it difficult cent of households live in social housing,
to compare some categories of household. one of the highest proportions in the East
Nonetheless some significant trends stand of England. Twenty per cent of households
out. Most notably, the number of single rent from a private landlord, again one of
person (non-pensioner) households has the highest levels in the East of England
increased by 7,000 (+84%). Additionally, and a rise from 12 per cent in 2001.
whilst the number of all types of household
increased by 14% between 1991 and 2011,
there were falls in both the number of single
pensioner and all pensioner households.
Figure 1 – Tenure
40.0
37.2
Owned: owned outright
Owned: owned with a
32.8
35.0
mortgage or loan
30.6
29.7
30.0 Shared ownership (part
% of houseolds
owned and part rented)
25.2
23.2
25.0 Social rented: rented from
20.7
20.1
council (local authority)
20.0
Social rented: other social
15.4
rented
13.4
15.0
Private rented: private
9.4
landlord or letting agency
8.6
8.3
10.0
7.4
7.3
Private rented: employer
5.0 of a household member
1.6
1.3
1.3
0.9
1.0
Private rented: relative or
1.1
0.7
0.8
0.6
0.3
0.4
0.1
0.2
0.3
0.2
0.0 friend of household member
Norfolk Norwich England
Private rented: other
Source: Census 2011 Living rent free
26 Housing strategy 2013-2018Figure 2 shows that Norwich has a much lower proportion of households living in detached
houses than in Norfolk and England. By contrast, it has a much higher proportion of households
living in flats reflecting the influence of the availability of this type of accommodation in the city.
Figure 2 – Type of accommodation
45.0 Detached house or bungalow
39.0
40.0 Semi-detached house
or bungalow
34.0
35.0 Terrace (including end
31.2
terrace) house or bungalow
29.4
28.9
30.0
Flat, maisonette or apartment
% of houseolds
24.5
in purpose-built block of flats
25.0
22.4
22.2
or tenement
19.0
20.0 Flat, maisonette or apartment
16.4
in part of a converted or
15.0 shared house (including
bed-sits)
10.5
9.7
10.0 Flat, maisonette or apartment
in a commercial building
3.8
5.0
2.9
Caravan or other mobile
1.5
1.0
1.0
0.7
0.4
0.4
0.5
0.4
0.1
0.1
or temporary structure
0.0
Norfolk Norwich England Shared dwelling
Source: Census 2011
Figure 3 shows that 7.6 of households in Norwich are in accommodation that is overcrowded
compared to Norfolk where over 80 per cent of households were under-occupying their
accommodation.
Figure 3 – Occupancy rating (rooms)
70 Occupancy rating (rooms) of +2
or more
59
60
Occupancy rating (rooms) of +1
49.7
50 Occupancy ratiing (rooms) of 0
% of houseolds
43.3
Occupancy rating (rooms) of -1
40 Occupancy rating (rooms) of -2
or less
30
25.1
22.9
24
22.1
18.6
20
14.5
10
6.4
6.1
3.5
2.3
1.5
0.9
0
Norwich Norfolk England
Source: Census 2011
27 Housing strategy 2013-20185. Housing need, supply and demand The JCS for Broadland, Norwich and South
Norfolk identifies a requirement to deliver
The 2011 up-date of the Strategic 21,000 new dwellings between 2008 and
Housing Market Assessment shows that: 2026. In the city of Norwich itself, the JCS
• The five year housing requirement is requires at least 8,600 dwellings, of which
6,021 (1,204 p.a.), a rise of 7 per cent 5,600 are currently allocated or have
compared to 5,612 (1,122 p.a.) in 2006. planning permission.
• The annual affordable housing One of the main drivers behind housing
requirement is 662 homes (53 per need and demand is the changing number
cent) compared to 623 in 2006, a of households. The 2011 interim household
rise of 6 per cent. projections show the number of households
in Norwich is projected to rise to 66,000
•The percentage of need that can be by 2021, a rise of 9.9 per cent. This is a
met through market housing is 45 per lower number of households than suggested
cent compared to a need for social by the 2008 based projections which
housing of 53 per cent and intermediate informed the adopted JCS. However, these
of two per cent. projections add to a range of evidence that,
• In terms of property size, 52 per cent of taken together, demonstrates that the
the net social housing requirement is for housing targets in the adopted JCS remain
one-bedroom properties and 38 per cent reasonable. Indeed, the difference between
for two and three bedroom properties the adopted JCS housing targets and these
projections represents 2 to 3 years
There is a requirement for 8 pitches additional supply.
to meet the accommodation needs of
Gypsies and Travellers by 20164. The However, as illustrated by Table 5 below,
Greater Norwich Gypsy and Traveller the annual number of housing completions
Accommodation Assessment (February has fallen in recent years owing to the
2012) also states that while there are economic downturn, a trend which
housing needs on the existing Showmen’s site continued in 2011-2012. Indeed, the figure
in Norwich, the search area for Showmen of 280 housing completions is the lowest
is very wide. Many Showmen would ideally since the early 1990s. The shortfall in
like to live more centrally in England for completions has in turn led to a rise in
work purposes. Therefore, unmet housing need, a trend which is
the existing and future housing needs likely to continue in line with under-supply.
on the site do not necessarily have to be
met in Greater Norwich and are more
likely to be met outside the sub-region.
4
Greater Norwich Gypsy and Traveller Accommodation Assessment, 2012.
28 Housing strategy 2013-2018Table 5 – Housing completions
Year Total supply Affordable supply
2006-07 954 293
2007-08 1040 283
2008-09 527 246
2009-10 399 120
2010-11 377 118
2011-12 280 171
Total 3,577 1,412
The effect of the under-supply of affordable homes has been exacerbated by the reduction in
existing stock through the sale of council homes under the right to buy. Figure 45 below shows that
sales reached a peak of 400 per annum in 2002-03, falling to 150 in 2006-07 and 37 in 2011-12.
Figure 4 – Council homes sold through Right to Buy 2001-2002 to 2011-2012
450
406 415
390
400
Number of homes sold
350
300 271
250
200
150
138
136
100
71
50 36 36 37
16
0
2001-2 2002-3 2003-4 2004-5 2005-6 2006-7 2007-8 2008-9 2009-10 20010-11 20011-12
Year
We also need to address a mismatch between need and supply in terms of the size of
accommodation. For example, 52 per cent of the net social housing requirement is for one-
bedroom accommodation, yet only 21 per cent of the existing council stock is one-bedroom.
It is anticipated that the demographic changes combined with housing benefit changes will
further increase demand for smaller units, in particular one-bedroom accommodation.
5
able 648: Social Housing Sales: Local Authority stock sold, including Large Scale Voluntary Transfers
T
https://www.gov.uk/government/uploads/system/uploads/attachment_data/file/200033/Table_648.xls
29 Housing strategy 2013-2018Relevant local strategies and plans 6. Socio-economic factors
JCS. The JCS for Broadland, Norwich and • The median annual gross pay for
South Norfolk covers the period 2008 to full-time workers is £23,539 compared
2026 and sets out the spatial policy to to £26,615 for England. Between 2010
ensure that the future demand for jobs and 2011, median resident earnings for
and homes is met in a sustainable way. full-time workers in Norwich declined
by 5 per cent; at the regional level
Local plan for Norwich. The current
earnings increased by 2 per cent and at
adopted local plan is the 2004 City of
the national level earnings fell by 1 per
Norwich Replacement Local Plan. This
cent. Average (mean) gross earnings
will be superseded by the emerging
are £27,556 p.a. compared to £33,661
Development Management Policies
for England. Lower quartile earnings for
plan and Site Allocations plan, both
full time workers are £16,718 compared
of which are expected to be adopted
to £18,720 for England6.
in late 2013/early 2014.
• 17 per cent of the population are
Economic strategy. There has been
income deprived (Indices of Multiple
significant policy and economic change since
Deprivation, 2010).
the existing Economic Strategy for Greater
Norwich was published. A revised document • The average net income of new Norwich
for Norwich is in preparation and will be City Council tenants during 2011 was
subject to consultation in spring 2013. £174.69 p/w (£756.99 per month)7.
Strategic Housing Market Assessment • Norwich is ranked 70th most deprived
(SHMA). The SHMA draws on a range of of the 354 local authorities in England8,
information to provide an assessment of with 23 lower super output areas
the local housing market, including local (LSOAs) in the most deprived quintile
housing need. The full SHMA was published in England. Around 13,000 people in
in 2006 and up-dated in 2009 and 2011. Norwich (9.4 per cent of the population)
live in the most deprived 10 per cent
Local Investment Plan and Programme
of LSOAs and 32 per cent of children
(LIPP). The LIPP sets out the key packages
are affected by income deprivation.
and projects identified as necessary for the
sustainable delivery of high levels of housing • The low levels of household income are
and job growth in Broadland, Norwich and reflected in the high proportion of social
South Norfolk. The LIPP focuses on delivery and private sector tenants who receive
of the major housing locations and the housing benefit. Just over seventy-two
strategic employment sites in the Norwich per cent (14,280) of households in social
Policy Area, but also identifies strategic housing receive housing benefit and
infrastructure need elsewhere. It includes 24.66 (2,990) per cent of households
a strong evidence base for the proposed in the private rented sector9. The
investments, an explanation of the process proportion of households in social
of developing the LIPP and a description housing who are receiving housing
of the main packages and projects and benefit is comparable with that for
how they link back to the evidence base. England and Wales (73.02 per cent).
6
Annual Survey of Hours and Earnings, 2011, Table 8.7a
7
CORE (Continuous Recording of Lettings & Sales), General Needs New Lettings, Summary Statistics, April 2011-March
2012 Interim Final
8
Indices of Multiple Deprivation 2010
9
Census 2011 tenure by household data. Table 3, Housing Benefit Recipients by Region and Local Authority by tenure and passport status,
November 2012. https://www.gov.uk/government/uploads/system/uploads/attachment_data/file/177123/hbctb_release_feb13.xls
30 Housing strategy 2013-2018• Job Seekers Allowance (JSA) Table 6 shows that individuals in Norwich
unemployment in Norwich is 4.9 affected by the combined effects of
per cent compared to 3 per cent in welfare reform will lose a total £46m per
the East of England region10. Yet, the year. All households living in the private
average masks the variation between rented sector in receipt of Local Housing
Norwich wards, as illustrated by the Allowance have been affected by the
5.6 per cent difference between Eaton changes made in 2011. Nearly 19 per cent11
(the lowest) and Mile Cross and Mancroft of households living in social housing and
(the highest). Thirty-two per cent of JSA in receipt of housing benefit have been
claimants have been unemployed for affected by reductions in housing benefit
longer than 12 months, compared to for under-occupying their home by one
28 per cent nationally. bedroom or more. The benefit cap12
will be introduced from July 2013 and is
• A total of 28.5 per cent of all JSA expected to affect 100 households who
claimants are aged 18-24 (1,210), 6.1 will lose around £4,600 per year from
per cent of the18-24 age group. This their housing benefit and be at increased
means about one in 20 of 18-24 year risk of falling into rent arrears.
olds is JSA unemployed, lower than
the national figure of 6.7 per cent.
• In April 2013, around 11.5 per cent
(328) of 16-18 year olds in Norwich
were recorded as being Not in
Education, Employment or Training
(NEET) compared to 9.7 per cent in
April 2012. Norwich has the highest
numbers and percentage of 16 to
18 year olds recorded as NEET of
all Norfolk districts. Nationally, the
proportion stands at 5.6 per cent.
10 Norwich Economic Barometer, May 2013
11 Based on DWP data on number of households in social housing in receipt of housing benefit: Table 3, Housing Benefit
Recipients by Region and Local Authority by tenure and passport status, November 2012. Census 2011 tenure by
household data
12 Welfare benefits will be capped at the average household earned income (projected to be approx £500 per week,
£26,000 per year for couples and lone parents, and £350 per week for single people without children). The cap will not
reflect the variations in income and rental costs across the country and any money over and above it will be reduced from
the housing costs element.
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