Select Committee on Northern Ireland Affairs Minutes of Evidence


Memorandum submitted by the Department for Social Development

1.  INTRODUCTION

  1.1  The Committee has invited written submissions on the effectiveness of current housing provision in Northern Ireland with particular emphasis on social housing.

  1.2  The background to, and the way in which the social housing programme is constructed and delivered in Northern Ireland, is different in a number of respects from any other part of the United Kingdom. It is important therefore to provide a context to the Department's response and accordingly this submission:

    —  explains the differences between Northern Ireland and Great Britain;

    —  identifies the roles, responsibilities and organisation of the Department for Social Development and other key housing players; and

    —  highlights key policy areas relevant to housing.

  The Department's comments on the specific areas to be examined by the Committee are set out in the attached annexes.

2.  GENERAL CONTEXT

Demography and geography

  2.1  The size and demographics of Northern Ireland are especially relevant to the delivery of housing related services. The region's population is growing at twice the rate of the UK, making Northern Ireland one of the fastest growing areas in Europe. Projections suggest that continued growth will ensure that the population will increase from 1.685 million to 1.835 million by 2025. This is more likely to be an under-estimate than an over-estimate, in light of possible consequences of EU enlargement in May 2004.

  2.2  The relative youth of the population supports estimates that over 160,000 new households will be formed by 2015, mostly comprising one or two persons. The size of Northern Ireland has understandably influenced the form and direction of housing policy. The appointment of the Northern Ireland Housing Executive (NIHE) as the single regional strategic housing authority for Northern Ireland in 1972 has facilitated the development of a holistic approach to housing. Within Northern Ireland there are a number of sub-regions, for example the Belfast Metropolitan Area and the Rural West, where the natural geographical features mould the settlement pattern, which tends to be focused on a main town or cluster of towns. A major part of the population is located in the Belfast Metropolitan Area (600,000); of the remainder, some live in the city of Derry (approximately 90,000) and Craigavon (nearly 60,000), but many live in towns of less than 50,000 inhabitants or in rural areas where the relative absence of villages and the dispersal of properties gives an impression of a "peopled countryside" in lowland areas.

  2.3  Recent analysis of the 2001 Census by the Office for National Statistics (ONS) indicates that broad regional comparisons across devolved administrations at territorial level are not particularly helpful. Northern Ireland could more usefully be compared to a specific region within Great Britain, such as the North East of England. This is based on the nature of sub-regional variations within Northern Ireland and on the assumption that the North East of England, with an ageing industrial centre (Newcastle), and the presence of deeply rural communities (Northumberland), represents a more appropriate comparator to Northern Ireland's size and conditions. Even so, ONS have indicated that for much of the Province there is no appropriate comparator—whilst the East of the Province has similarities to Great Britain, the area to the West, classified by the ONS as "Northern Ireland Countryside", is distinct and different from every other region in the UK.

  2.4  Providing housing in both urban and rural areas presents challenges which require the development of housing policies sensitive to the specific needs of differing client groups. These diverse needs require the Department and the NIHE to balance the range of housing related services, to ensure that social need is effectively targeted and addressed. Commonly in Great Britain the distinct needs and priorities of the communities addressed by a single Local Authority will be either urban or rural, and this enables responses to be developed that suit the particular catchment area. In Northern Ireland any policy development and implementation must take cognisance of both the urban and rural contexts within which the policy will operate.

Community divisions

  2.5  The impact of the inter-communal conflict on the delivery of housing is well documented from the effects of adopting a "colour-blind" approach to housing policy (Bollens, 1999) to the development of more complex analysis that makes connections between race, identity and politics. (Murtagh, 2001) Obvious parallels exist between the impact of sectarianism in the delivery of housing related services in Northern Ireland, and Great Britain's experience of addressing issues concerned with ethnicity and racism. Northern Ireland differs from the rest of the United Kingdom as there has been little migration of ethnic minorities into the region. The Department recognises that the provision of services to ethnic minorities is likely to become increasingly relevant as Northern Ireland's community diversifies and is progressing work in this area through the promoting social inclusion agenda.

  2.6 The division of the community in Northern Ireland along religious and political allegiances does not exist to the same degree anywhere else in the UK or in the Republic of Ireland—it is unique. A consistent manifestation of the conflict has been residential segregation; consequently housing has continuously been at the centre of efforts to ameliorate relations within and between communities. Whilst there has been marked improvement in the housing provision in Northern Ireland creating a sound basis from which individuals and communities can actively participate in social, economic, political and cultural life, difficulties persist. Housing has become more segregated over the last 20 years; more than 70% of NIHE estates are 90% Protestant or 90% Roman Catholic. (OFMDFM, 2003)

  2.7 The Office of the First Minister and Deputy First Minister's (OFMDFM) recent consultation paper on improving relations in Northern Ireland "A Shared Future" highlighted other difficult behavioural patterns which endure; violence at inter-faces between the communities continues to affect lives, property, businesses and the delivery of public services. There is evidence that in some inter-face areas divisions are also emerging within the local communities. There has been little change in the extent of inter-community friendship patterns and although levels of tolerance and respect for diversity within each community appeared to have improved there is consensus that they have decreased recently. The impact on housing provision is stark. Surplus capacity in one area cannot easily be used to relieve need in another, if this would involve the movement of people from one communal territory to another. Territory "belonging" to one community cannot easily be used for the building of housing intended for occupation by members of the other community.

Social need

  2.8  Research conducted by OFMDFM into New Targeting Social Need and poverty in Northern Ireland indicated that the risk of poverty is greater in Northern Ireland compared to Great Britain. A number of indicators support this assertion:

    —  The proportion of working-age adults in receipt of a key or means-tested benefit is higher in NI than in GB (for both men and women).

Table 1

WORKING-AGE ADULTS IN RECEIPT OF A KEY OR MEANS-TESTED BENEFIT
NIGB
Men6.0%4.2%
Women2.2%1.6%
Source: DETI, January 2004


    —  The economic activity rate for women in NI is notably lower than in GB, and the rate for men in NI is somewhat lower.

Table 2

ECONOMIC ACTIVITY RATE
NIGB
Men80.6%84.0%
Women63.5%73.5%
Source: DETI, January 2004


    —  The unemployment rate for men in NI in Autumn 2003 was much higher than that for GB (the lower unemployment rate for women in part reflects their much lower economic activity levels, since those unable to find employment may retire into economic inactivity).

Table 3

UNEMPLOYMENT RATE
NIGB
Men8.1%5.3%
Women3.4%4.5%
Source: DETI, January 2004


    —  Unemployment figures show that more people in NI are unemployed for longer periods of time:

Table 4

UNEMPLOYMENT
Unemployed (duration)NI (%) GB (%)
Women <1year84.2 88.5
Women>1year <3 years12.4   9.7
Women> 3years  3.4   1.8
Men<1year7583.2
Men >1year,<3 years20 13.8
Men>3 years  5.1   3
Source: DETI, January 2004


    —  Fewer people in Northern Ireland are in employment than elsewhere in the UK, and their earnings are well below the UK average, somewhat below the average for the North East, though there are some regional differences—North East has higher manufacturing wages, lower financial sector wages—reflecting differences in the regional economies. This means that the ability of NI workers to afford house purchase is the lowest in the UK, resulting in pressures on the social housing sector.

Table 5

MALE AVERAGE EARNINGS (£ PER WEEK) APRIL 2001
Whole Economy ManufacturingDistribution, hotels & catering Finance and business
UK488.2 (100%)461.5 (100%) 411.3 (100%)631.2 (100%)
North East418.6 (86%) 416.1 (91%)339.9 (83%)473.6 (75%)
Northern Ireland409.2 (84%) 381.2 (83%)338.9 (82%) 498.2 (79%)
Source: ONS, 2001


    —  The overall income of NI households in social housing is about 80% of that for UK households in general, a similar ratio to that for NI households owning their house on mortgage. Although the expenditure of NI households in social housing on housing is less than half of that of similar UK households (the impact of Housing Benefit is significant here—it counts as both income and expenditure and does not pass directly through the tenant's hands), their expenditure on housing plus fuel is about 70% of the UK households. Northern Ireland households are poorer than those of the UK, but their expenditure is in some respects considerably higher. Fuel poverty is a considerable issue.

Table 6

£ per weekSocial Housing Owned on mortgageOwned outright
Household IncomeNI UKNIUK NIUK
1999-2000181221 523689380 408
2000-01200235 520706379 422
2001-02208288 620765385 441
Housing Expenditure
1999-200013.632.0 55.683.817.6 30.2
2000-0117.135.5 58.696.318.0 32.3
2001-0213.2 70.120.2
Fuel Expenditure
1999-200013.39.6 16.012.616.1 11.7
2000-0113.39.6 18.313.020.1 12.8
2001-0215.7 19.918.3

NB: UK 01/02 are missing and because of the change in the way that mortgages are handled

Source: DSD, 2003

  2.9  The tables demonstrate that Northern Ireland does not enjoy the same level of economic prosperity as other parts of the United Kingdom. The headline figures show that more people are dependent upon state benefits in Northern Ireland, and that rates of economic activity are lower than in GB. The female unemployment rate in Northern Ireland is 3.4% (1.1% lower than GB) but the male level is 2.8% higher than in GB. However, there are fewer short-term unemployed people in Northern Ireland because those people who become unemployed in Northern Ireland tend to remain out of work for longer. People who are in work, whilst considerably better off than those dependent on benefits, generally suffer lower wage rates than in GB. Whilst the indicators provide only a rudimentary picture of Northern Ireland's economic position in relation to GB they do serve to illustrate that in a number of key areas Northern Ireland can still be considered disadvantaged in comparison to the UK.

3.  POLICY CONTEXT

  3.1  The Department for Social Development was established by the Departments (NI) Order 1999. The functions and various programmes within the Department are wide-ranging; they interlock in such a way as to advance and support the social development of the people of Northern Ireland.

  3.2  The Department for Social Development's mission statement is,

    "Together, tackling disadvantage, building communities". To achieve this a number of strategic objectives have been identified:

    —  To provide a fair system of financial help to those in need and to ensure that parents who live apart maintain their children; encouraging parental responsibility and improving incentives to work and save.

    —  To promote measurable improvements to housing in Northern Ireland.

    —  Tackling disadvantage amongst individuals, communities and neighbourhoods, with particular emphasis on greatest need and encouraging, developing and supporting community development.

  3.3  The Department, inter alia, administers the business of:

    —  The development of housing policy and the legislative framework to support this policy.

    —  Urban Regeneration, which includes a comprehensive approach to tackling social, economic and physical regeneration and redressing disadvantage in cities, towns and villages in Northern Ireland.

  The Department also oversees both the Northern Ireland Housing Executive (NIHE) and the Laganside Corporation, which are Non-Departmental Public Bodies, and the Rent Assessment Panel, which acts as a tribunal body.

  3.4  The Assembly's Executive Committee presented its Programme for Government to the Northern Ireland Assembly in 2001; Target 2.3.2 of the Programme set out the commitment to: "ensure that everyone has the opportunity to access decent, affordable housing in the tenure of their choice." The expressed aim of housing policies and programmes as detailed in the Programme for Government is to meet this target. Decent housing is relevant to New TSN and Promoting Social Inclusion policies through supporting the creation of a stable home environment, better health and better employment opportunities. The Programme commits the Department to work in partnership with the NIHE, Housing Associations and others in the voluntary sector, to improve the quality of accommodation generally and to increase the numbers of properties that meet special needs. Improvements in services to the homeless; traveller accommodation; energy efficiency in the social housing sector; and the number of households experiencing fuel poverty are also planned.

  3.5  The DSD Corporate Plan 2003-06 has been developed taking account of the document "Building on Progress—Priorities and Plans for 2003-06". This document builds on the work programme in the Programme for Government. The priorities identified in the Programme will be carried on by Direct Rule Ministers during suspension of the Northern Ireland Assembly as a basis for action over the coming years. These are:

    —  growing as a community;

    —  working for a Healthier people;

    —  investing in Education and Skills;

    —  securing a Competitive Economy; and

    —  developing Relations on a North/South, East/West and international basis.

  3.6  Most of the Department's responsibilities come within the growing as a community priority. How the Department delivers its services is set out in the Public Service Agreement (PSA); published with Priorities and Plans. The PSA is further developed in the Service Delivery Agreement (SDA). The Department has also developed Reform Plans in six key areas. Three relate to the Welfare Reform and Modernisation Programme; two Housing reform initiatives are being taken forward and a long-term approach will be developed for Urban and Community Renewal.

4.  ROLES AND RESPONSIBILITIES

  4.1  The Department for Social Development progresses housing strategies and programmes in partnership with the NIHE, registered Housing Associations and a range of stakeholders. The Department for Social Development and the NIHE work together within the parameters of:

    (a) Legislation.

    (b) Directives.

    (c) Dossier of Controls.

    (d) Framework Document.

      4.2  The NIHE comprises a 10 member Board, appointed by the Department, including a Chairman and vice-Chairman, and is supported by a Chief Executive and around 3,000 staff. The NIHE, which is a Non-Departmental Public Body, is the sole assessor of social housing need in Northern Ireland while the Department sets, controls and monitors the programme to meet that need, which is delivered by Housing Associations.

      4.3  Housing Associations are required to register with the Registrar of Credit Unions as an Industrial & Provident Society and then with the Department for Social Development before they can access government funding. In addition, before a submission for registration with the Department can be considered, a number of criteria must be demonstrated, for example, the ability to fulfil statutory requirements, to exercise sufficient control, to achieve managerial efficiency and promote equal opportunities. These are routinely monitored and punitive actions instigated if criteria are not strictly adhered to. The Department has issued the Housing Association Guide which details the standards across the range of issues that Housing Associations are compelled to adhere to including design and administrative requirements. The Director of Housing within the Department for Social Development periodically issues Circulars which the Housing Associations are obliged to follow.

      4.4  In summary, the Department is responsible for the financial, policy and legislative programme relating to social housing matters and for monitoring the delivery of social housing services by the NIHE and registered Housing Associations. All housing activities are subject to the scrutiny of the Northern Ireland Audit Office, as well as the Department's Internal Audit. The NIHE, with registered Housing Associations, is responsible for the delivery of the social housing policies and programmes.

    Table 7

    DSD HOUSING BUDGET—2003-04 and 2004-05

2003-042004-05
Capital
NIHE Expenditure (Improvements to Existing Stock, Land Purchase & SPED*) 142.5102.5
Revenue
NIHE Expenditure417 415
Private Sector House Renovation Grants   41  43
Housing Association Expenditure  83   77.7
NICHA**    8    5.3
Supporting People  48   52
Departmental Running Costs    2     2
Total599 595
Grand Total741.5 697.5

*Scheme for the Purchase of Evacuated Dwellings
**Northern Ireland Co-ownership Housing Association

5.  LINKAGES WITH OTHER POLICY AREAS

Regional Development

  5.1  The Department for Regional Development's (DRD) Regional Development Strategy—"Shaping Our Future"—takes a long-term perspective and sets out the strategic approach to the distribution and form of housing throughout Northern Ireland. The Strategy sets out the main drivers of change in Northern Ireland with the aim of ensuring that housing, and its critical relationships with employment, transport and the environment, are managed within the principles of sustainable development.

  5.2  Under the provisions of the Strategic Planning (NI) Order 1999, DRD has responsibility for implementing the Strategy. Under the Planning (Amendment) (NI) Order 2003, the Department for Social Development and the Department of the Environment are required to ensure that any development plans are in general conformity with the Strategy. The Strategy discusses the management and distribution of housing growth in line with the Spatial Development Strategy which advocates development of the Belfast Metropolitan Area, the Northwest and main towns located on key and link transport corridors.

  5.3  The Regional Development Strategy (RDS) identifies three major housing related themes: the management of housing need; support for urban renaissance and the achievement of balanced communities. The primary demographic factors affecting change can be summarised as a rapidly growing and youthful population with an increased incidence of smaller households. The current regional growth rate is twice that of the UK rate, resulting in the projected need for up to 160,000 additional dwellings by 2015 and possibly up to 250,000 additional dwellings by 2025.

  5.4  DRD also has a responsibility under the Strategic Planning (Northern Ireland) Order 1999 to prepare strategic planning policy to assist in the implementation of the RDS. This is being achieved through the preparation of a series of Planning Policy Statements (PPS), which dovetail with those prepared by the Department of the Environment (DOE). One of the most significant of these in relation to housing is PPS12 "Housing in Settlements". This introduces the whole "Plan, Monitor and Manage" process to ensure the delivery of the right amount of housing of the right type in the correct location and at the right time. This involves the introduction of housing needs assessment, urban capacity studies and a phasing approach to development plans which are the main vehicle for the delivery of housing.

Planning

  5.5  The linkages between housing and planning are further detailed in publications from the Department of the Environment such as The Planning Strategy for Rural Northern Ireland and various Planning Policy Statements (PPSs) that set out policies on land use and other planning matters and apply to the whole of Northern Ireland. PPSs are gradually replacing the policy provisions of the Rural Planning Strategy. Those of greatest relevance to housing include PPS 7 "Quality Residential Environments" (June 2001) and PPS 8 "Open Space, Sport and Recreation" (Feb 2004). Supplementary guidance which complements these PPSs can also be found in the Creating Places Design Guide (May 2000) and Development Control Advice Note 8 "Housing in Existing Urban Areas" (June 2002). Development plans prepared by the Department of the Environment provide the statutory land use framework within which regeneration takes place. Regeneration is the responsibility of the Department for Social Development.

Health and Social Services

  5.6  The publication of the Investing for Health Strategy provides another example of significant interdepartmental working. Although the lead Department responsible for this strategy is the Department for Health Social Services and Public Safety (DHSSPS), all NI Departments were involved in the Strategy's development and remain committed to its implementation through the Ministerial Group on Public Health. The Strategy recognises that good quality housing and associated services can contribute significantly to the general health of individuals and communities. Therefore, the contribution that DSD can make towards the achievement of the Strategy through the provision of social housing is substantial. Actions required to support those on low-incomes and in greatest need include:

    —  Remedying unfitness in the social and private sector housing.

    —  Assisting homeless people.

    —  Increasing adaptations to existing houses to make them accessible to people with disabilities.

    —  Providing more special needs housing for disabled people and other vulnerable groups.

    —  Developing appropriate accommodation to meet the needs of Travellers.

    —  Improving energy conservation and reducing fuel poverty.

    —  Designing safety into housing provision.

  5.7  Some of the themes identified in the Investing for Health Strategy appear in other cross-departmental initiatives. A recent example of interdepartmental activity to address a specific issue is the publication of a consultation paper on a Fuel Poverty Strategy. This required input from DHSSPS from the health side, the Department of Enterprise Trade and Investment (DETI) on energy matters and The Department of Finance and Personnel (DFP) on building regulations.

Community Relations

  5.8  The Department and its Non-Departmental Public Bodies are required under the Northern Ireland Act (1998) to prepare Equality Schemes for ratification by the Equality Commission for Northern Ireland. Section 75 (2) also places a duty on public bodies to "have regard to the desirability of promoting good relations between persons of different religious belief, political opinion or racial group". The NIHE has also produced a Community Relations Strategy which details how the NIHE can support integration where it exists and facilitate further integration where there is a desire. The Department and the NIHE are required to prepare annual reports on their Equality Schemes to facilitate the Commission's monitoring of the Department's performance. A strategy for developing activity across Departments has been produced by the Community Relations Unit of the OFMDFM. This document sets out the policy aims, implications for action and how any action should be monitored and evaluated.

  5.9  During 2003, the Community Relations Unit of the OFMDFM also published a consultation document on improving relations in Northern Ireland. Respondents urged Government to take action to reduce tension and conflict at interface areas and to support the development of integrated/shared communities where people wish to learn, live, work and play together. Government is currently considering the outcome of the consultation and will bring forward proposals later this year for a new cross-Departmental strategy and framework to promote better relations between and within communities in Northern Ireland.

Neighbourhood Renewal

  5.10  Housing is also a central component of the Department's Neighbourhood Renewal Strategy "People and Place" which details the role of different Government departments and the role of the NIHE as a key strategic partner in the neighbourhood partnership structures. The Neighbourhood Renewal Strategy aims to target the most acute deprivation by focusing resources on areas where it is most intense. A long-term view is being taken and the strategy will commit to a 7-10 year planning and implementation time-scale so that sustainable renewal and stability can be achieved. It will take an integrated approach to solve the multi-dimensional nature of deprivation and Government departments and public agencies will be encouraged to place regeneration at the centre of their programmes of work. The strategy seeks to empower communities to drive forward regeneration of their areas and also to involve the private sector to encourage it to make a contribution to regeneration by investing in disadvantaged areas. The Neighbourhood Renewal Strategy also aims to address community division and tension which adds to the burden of deprivation suffered by many communities. A partnership approach both within and between communities and between Government agencies and deprived communities will be encouraged within the framework of "Partners for Change", Government's strategy for support of the voluntary sector.

Rurality

  5.11  Housing, like other policy areas, is benefiting from innovative work being taken forward by OFMDFM to understand the specific and particular needs of rural communities. All policies during development are subject to an Integrated Impact Assessment during which the issue of rurality is examined in depth. The cross-cutting nature of the Department's activities is demonstrated by past and current support for projects designed to address the sometimes very specific needs of rural communities. For example, the application of alternative forms of energy production and new methods for conserving energy in property types prevalent in rural areas is being taken forward by a cross-sectoral group with financial and professional support from DSD.

6.  RECENT DEVELOPMENTS IN HOUSING IN NORTHERN IRELAND

  6.1  A Review of the Effectiveness of the Housing Programme commissioned by DSD, OFMDFM, and DFP was conducted by consultants DTZ Pieda. The study, which was completed in 2002, was part of a comprehensive review of the need for and the effectiveness of the use of public sector resources for housing in Northern Ireland. The terms of reference focused on the effectiveness of the programme in meeting its objectives, the continued relevance of those objectives, the analysis of the outputs and outcomes delivered and reporting on any obstacles to the achievement of the programme objectives. On the basis of studies conducted into NIHE Capital and current expenditure, grant aid to the improvement, repair and adaptation of privately owned houses as governed by the Housing (NI) Order 1992, grant aid to Housing Associations for the provision of social rented housing, and support to house purchase through the Co-ownership Housing Association the report concluded that, "Housing expenditure has been effective in addressing need and has been commensurate with the levels of need." (DTZ Pieda, 2002)

  6.2  The DTZ Pieda report highlighted areas where further investigation would be beneficial and these have been the subjects of subsequent reviews. These reviews have either been completed or are with the Department for consideration:

    —  the Net Costs of the Social Housing Programme;

    —  the recent rise in unit costs of social housing provision;

    —  long-term projections of housing need; and

    —  the NIHE's investment programme.

  6.3  The Northern Ireland Assembly's Social Development Committee Inquiry into Housing in Northern Ireland represented the first local, cross-party analysis of housing issues for decades. Following a presentation of the Housing Bill proposals by the Department to the Social Development Committee, and within the context of those proposals, the Committee decided to consult widely on a number of policy areas namely:

    —  private sector renewal and proposal to move from a mandatory to a discretionary grants system;

    —  houses in multiple occupation and the regulation of the private rented sector;

    —  the right to buy for Housing Association tenants;

    —  large scale voluntary transfer and the role of the NIHE;

    —  anti-social behaviour; and

    —  homelessness.

  Subsequently, the Committee decided to deal separately with, and report later on, Anti-Social Behaviour and Homelessness.

  6.4  The provisions to be included in the Housing Bill were approved by the Assembly's Executive Committee and published for consultation. For the most part respondents to the consultation exercise supported the proposals included in the Order. The Bill was introduced in the Assembly on 25 June 2002 and cleared its Second Stage on 3 July 2002. It was half way through its Committee Stage, which was being taken by the Assembly's Social Development Committee, when the Assembly was suspended on 14 October 2002.

  6.5  Following suspension, the legislation passed to Westminster and was enacted as the Housing (Northern Ireland) Order 2003 on 27 February 2003. This Order is the first Northern Ireland primary housing legislation since 1992. As such it is a large Order and it covers a wide range of issues. Its main provisions introduce a range of measures to deal with anti-social behaviour affecting people living in social housing; provide a private sector housing grants regime; enable the NIHE to provide caravan sites for Irish Travellers; and make provision for a registration scheme for Houses in Multiple Occupation. The Order also deals with a variety of miscellaneous housing matters including the provision of statutory cover for repair and compensation schemes administered by the NIHE; the provision of a House Sales Scheme by Registered Housing Associations; and the updating of various other provisions. All of the provisions, except for the House Sales Scheme for Housing Associations, have been, or will be, brought in on a variety of dates between 1 June 2003 and 1 April 2004.

  6.6  The Department continues to keep developments in Great Britain and the Republic of Ireland under review and further housing legislation is planned relating to the Private Rented Sector and to strengthen anti-social behaviour provisions.

7.  TOPICAL HOUSING ISSUES

Consultation on Anti-Social Behaviour Orders and proposed partnership between PSNI and NIHE

  7.1  The Department has responded to a consultation document "Measures to tackle Anti-Social Behaviour in Northern Ireland" issued by the Northern Ireland Office's Criminal Justice Policy Branch. Anti-Social Behaviour Orders (ABSOs) were introduced in England under the Crime and Disorder Act 1998. ABSOs are a type of injunction designed to restrain individuals, including children, from behaviour which, while not necessarily criminal, causes alarm, distress or harassment to one or more people not in the same household as the individual causing it. In England, ABSOs are operated on a partnership basis by police forces and local authorities. The Department's response:

    —  welcomed ABSOs as an initiative that would help deal with anti-social behaviour;

    —  expressed support for the development of a partnership between the Police Service for Northern Ireland and the Housing Executive (and, in due course registered Housing Associations) for the purpose of applying ABSOs, and

    —  emphasised that District Councils should also be fully involved in any such partnership.

Draft Fuel Poverty Strategy

  7.2  Fuel poverty is the situation in which a home cannot be heated to an acceptable temperature for reasons of cost. The 2001 Northern Ireland House Condition Survey found that 203,000 households here (33%) suffer fuel poverty. Chief among the causes of this problem are low household income, high energy costs and poor energy efficiency. The UK Fuel Poverty Strategy (November 2001) committed the Department for Social Development to producing a separate strategy for Northern Ireland. DSD issued its consultation paper "Towards a Fuel Poverty Strategy for Northern Ireland" in October 2003, and the consultation period ended on 31 December. Consultation included participative events, managed by the fuel poverty charity National Energy Action, funded by DSD.

  7.3  The consultation paper described the causes, effects and extent of fuel poverty in Northern Ireland, sought to agree a definition of the problem, and discussed the ongoing work of a range of organisations that help to address it. The Department has proposed to tackle fuel poverty by leading a partnership of the relevant statutory agencies, private sector interests and voluntary/community sector groups. There was a broad welcome for this approach. The responses are now being analysed with a view to production of the final strategy by the end of March, the strategy will be published shortly afterwards.

Review of Private Rented Sector

  7.4  The private rented sector plays a very important role in meeting the housing needs particularly in areas where there is a high demand for social housing and the sector now accounts for 7.6% of the total housing stock.

  7.5  While it has the potential to complement the stock of social houses, there are widespread inconsistencies across the sector in terms of tenants' rights, rent control and unfitness. In order to address these difficulties the Department for Social Development has carried out a review of the private rented sector legislation and the Housing Executive is developing a strategy for the sector, the overall aim being to ensure that the sector can play a meaningful role as a viable and affordable alternative to social housing for those in need, whilst recognising the rapidly increasing costs of housing benefits to private sector tenants as shown by the following table:
YearPrivate Rented Sector (£m) % Increase Housing Association (£m) % IncreaseNI Housing Executive (£m) % ChangeTotal % Change
1999-200083.9 23.4206.4 313.7
2000-0183.5-0.4% 32.538.8%202.0 -2.1%318.01.4%
2001-0290.98.9% 36.612.6%199.6 -1.2%327.12.9%
2002-03110.121.1% 42.816.9%199.1 -0.3%352.07.6%


PSI Working Group on Homelessness

  7.6  The Assembly's Social Development Committee prepared a report on homelessness in 2002 that made a number of recommendations relevant to the work of the Department and the NIHE. The NIHE responded to the Committee's report by publishing its Homelessness Strategy later that year. This set out recommendations which would form the basis of an implementation plan to be delivered over the next few years. The NIHE Strategy broadly reflects the current approach within Great Britain, ie homelessness strategies, cross-departmental and cross-sector working, a reduction in the use of bed and breakfast, and additional hostel type provision.

  7.7  Within the context of Northern Ireland's New Targeting Social Need initiative, homeless people were identified as a socially excluded group. In 2003, following the publication of the NIHE's Homelessness Strategy, a Promoting Social Inclusion working group on homelessness was established. It is recognised that the underlying causes of homelessness are varied, and that prevention cannot be achieved by simply meeting housing need, so effective delivery of health and social services, education, employment and training services, and welfare benefits to people who are at risk of homelessness is also required.

  7.8  The group is tasked with developing an inter-departmental and cross-sectoral response to homelessness, with the aim of supporting government departments and other agencies in working together to ensure that the risk of homelessness is reduced and that the full range of support services is accessible to people experiencing homelessness. The group will produce a draft policy and strategy document for consultation in 2004, with a final report to Ministers by March 2005.

Management of the New Build Social Housing Programme

  7.9  There are three key stakeholders in the delivery of the social housing programme: the Department, in terms of funding and scheme approval, the NIHE in the assessment of need and Housing Associations as providers of new build housing. Whilst these are the principal organisations involved, the programme is heavily dependent on a number of "outside" factors, for example, land availability, planning and other statutory approvals, building costs and funding.

  7.10  The Department has not met its annual target for new build starts in recent years. The reasons for this are many and varied but, as often as not, centre around the management of a complex process in taking forward a new build programme from the start ie from site identification to when a contractor goes on site. The delivery of the new build programme is, and will remain, a high priority for the Department. Action has been taken to address many of the problems associated with the programme, as outlined in Annex 2. This is already paying dividends and will, in the future, bring greater security to the delivery of the programme.

Extension of the House Sales Scheme to Housing Associations

  7.11  A number of Housing Associations already operate a voluntary house sales scheme similar to the NIHE's scheme. The Housing (Northern Ireland) Order 2003 enables the Department to make a scheme for Housing Associations. It is the Department's intention to introduce a house sales scheme that will apply to all tenants of social housing.

  7.12  Consideration is currently being given to the terms and conditions that should apply to such a scheme.

Foyers

  7.13  Foyers, developed in France, were introduced in the UK in 1992 as a direct result of a joint initiative by the voluntary sector, business and Government. By 1997, 46 Foyers were operational. There are now over 100 with a further 150 under development. Each Foyer is a separate locally based project designed to meet the needs of disadvantaged young people and help them achieve personal and economic independence. Since their inception Foyers have demonstrated consistent success in enabling disadvantaged young people to achieve independence.

  7.14  Within the Northern Ireland Foyer movement there are four operational Foyers located in Belfast (2), Londonderry and Lurgan. All four have success stories to tell and there is no doubt that the Foyers have been of considerable benefit in the fight against social exclusion, deprivation, and alienation.

Group Housing Schemes

  7.15  Much of the disadvantage that Irish Travellers experience are related to their poor living conditions. It is recognised that the provision of good quality accommodation is the basis from which many of the problems such as ill health, unemployment and poor educational attainment can be tackled. A recently completed Traveller accommodation needs assessment indicated that a significant number wish to live in Group Housing schemes designed to cater for extended family groups and facilitate their specific cultural traditions. Four pilot group-housing schemes are in various stages of development and a 5-year programme of future schemes has been drawn up. The schemes require lower densities and the provision of additional facilities making them more costly than traditional housing.

8.  CONCLUSION

  8.1  Whilst there are certain similarities in the provision of social housing between Northern Ireland and Great Britain there are also unique features that set Northern Ireland apart.

  8.2  Meeting the Government's objective of ensuring that everyone has the opportunity to access decent, affordable housing in the tenure of their choice is dependent on the interaction of a wide range of policies, practices and procedures by key housing stakeholders.

  8.3  The successful delivery of a new build social housing programme to meet urgent housing need remains a high priority for the Department.


 
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Prepared 26 October 2004