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
| NI | GB
|
| Men | 6.0% | 4.2%
|
| Women | 2.2% | 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
| NI | GB
|
| Men | 80.6% | 84.0%
|
| Women | 63.5% | 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
| NI | GB
|
| Men | 8.1% | 5.3%
|
| Women | 3.4% | 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 <1year | 84.2 |
88.5 |
| Women>1year <3 years | 12.4
| 9.7 |
| Women> 3years | 3.4
| 1.8 |
| Men<1year | 75 | 83.2
|
| Men >1year,<3 years | 20
| 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 |
Manufacturing | Distribution, hotels & catering
| Finance and business |
| UK | 488.2 (100%) | 461.5 (100%)
| 411.3 (100%) | 631.2 (100%)
|
| North East | 418.6 (86%) |
416.1 (91%) | 339.9 (83%) | 473.6 (75%)
|
| Northern Ireland | 409.2 (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 week | Social Housing
| Owned on mortgage | Owned outright
|
| Household Income | NI
| UK | NI | UK
| NI | UK |
| 1999-2000 | 181 | 221
| 523 | 689 | 380
| 408 |
| 2000-01 | 200 | 235
| 520 | 706 | 379
| 422 |
| 2001-02 | 208 | 288
| 620 | 765 | 385
| 441 |
| Housing Expenditure |
| | | |
|
| 1999-2000 | 13.6 | 32.0
| 55.6 | 83.8 | 17.6
| 30.2 |
| 2000-01 | 17.1 | 35.5
| 58.6 | 96.3 | 18.0
| 32.3 |
| 2001-02 | 13.2 |
| 70.1 | | 20.2
| |
| Fuel Expenditure | |
| | |
| |
| 1999-2000 | 13.3 | 9.6
| 16.0 | 12.6 | 16.1
| 11.7 |
| 2000-01 | 13.3 | 9.6
| 18.3 | 13.0 | 20.1
| 12.8 |
| 2001-02 | 15.7 |
| 19.9 | | 18.3
| |
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:
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
| 2003-04 | 2004-05
|
| Capital | |
|
| NIHE Expenditure (Improvements to Existing Stock, Land Purchase & SPED*)
| 142.5 | 102.5 |
| Revenue | |
|
| NIHE Expenditure | 417 |
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 |
| Total | 599 |
595 |
| Grand Total | 741.5
| 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
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:
| Year | Private Rented Sector (£m)
| % Increase | Housing Association (£m)
| % Increase | NI Housing Executive (£m)
| % Change | Total
| % Change |
| 1999-2000 | 83.9 |
| 23.4 | | 206.4
| | 313.7 | |
| 2000-01 | 83.5 | -0.4%
| 32.5 | 38.8% | 202.0
| -2.1% | 318.0 | 1.4%
|
| 2001-02 | 90.9 | 8.9%
| 36.6 | 12.6% | 199.6
| -1.2% | 327.1 | 2.9%
|
| 2002-03 | 110.1 | 21.1%
| 42.8 | 16.9% | 199.1
| -0.3% | 352.0 | 7.6%
|
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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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