Annex 1
CONCLUSIONS AND RECOMMENDATIONS
1. We welcome the valuable work being undertaken
by the Promoting Social Inclusion (PSI) Working Group on Homelessness,
particularly its engagement with voluntary groups working directly
with homeless people. We urge the Minister to ensure that this
report is published without further delay. (Paragraph 32)
The Government welcomes the Sub-committee's acknowledgement
of the valuable work of the PSI Working Group on Homelessness.
The Group published its report: Promoting the Social Inclusion
of Homeless People - Addressing the Causes and Effects of Homelessness
in Northern Ireland on 4th November 2004 for a three month
period of public consultation.
2. We are concerned at the evident confusion
over the level of new social housing required in Northern Ireland
and the annual target for new build housing. It is also wrong
that the target has been arbitrarily reduced from 1,750 to 1,300
houses in the current year because funding has only been made
available for the smaller number. This is particularly unfortunate
when, despite strong evidence of escalating housing stress and
homelessness, around £37 million annually from record levels
of sales of existing Housing Executive stock is returned to the
Treasury, when that could be used for the benefit of the homeless
in Northern Ireland. (Paragraph 48)
Assessment of need: The
annual requirement of social housing has been confirmed at 1,400
- 1,500 in the Demographic Trends and Future Housing Need in
Northern Ireland, a Final Report to the NIHE by Prof Chris
Paris of University of Ulster & Dr Alan Holmans of University
of Cambridge. However the NIHE have indicated that 1,750 new
social dwellings are required each year to address the current
need as well as the back-log and geographical imbalances in demand
and supply. A working group has been established to consider
how best to integrate this locally sensitive waiting list information
with the Net Stock Model. The indications are that taking this
information into account may now further increase the new build
requirement to around 2000pa.
Target setting:
The target published in the DSD Business Plan 2004/05 reflected
the planned volume of output within the financial resources available
in that year. It did not represent an assessment of housing need.
It would have been misleading for the Government to commit to
delivering a volume of output which it knew could not be achieved
within the available resources.
Return of revenue from receipts to the Treasury:
The NIHE sets annual targets in respect of its House Sales Scheme.
The NIHE projects the amount of receipts to be generated in any
year and retains this for capital investment in its own stock.
If, however, the receipts exceed the projection the additional
money is declared as an easement for re-allocation within the
Northern Ireland Block. The NIHE may make bids for capital investment
against these additional receipts. Over recent years the House
Sales Scheme has generated receipts in excess of the NIHE's capital
requirements but the DSD has been successful in presenting the
business case for improvements to housing and this is reflected
in the retention of around 70% of receipts generated.
3. One of the conclusions of the recent Committee
of Public Accounts report, Housing the Homeless, was that "the
Department must review urgently its projections for the number
of new social housing units required, and the level of funding
needed to provide them". We support that recommendation
and urge the Minister to set clear and unequivocal targets for
new social housing provision, and to ensure the provision of an
appropriate level of funding to meet those targets. (Paragraph
49)
The Government agrees with the Sub-committee on the
importance of a thorough and robust assessment of social housing
need, and work is continuing on this issue as described in the
response to the Sub-committee's second recommendation. However,
decisions on the funding to be made available for social housing
will have to be taken against the background of all the other
competing priorities for finite public resources and the output
targets set for any given year must realistically reflect the
availability of those resources.
4. The draft Policy and Planning Statement
(PPS12) 'Housing in Settlements' has the potential to make a significant
impact on the supply of land for social and affordable housing
and was issued for a three-month consultation in November 2002.
We are extremely concerned that, almost two years later, it has
not been finalised. We urge John Spellar, Minister with responsibility
for regional development, to explore the reasons for this unacceptable
delay, and to ensure that it is finalised and issued without delay.
(Paragraph 62)
While the majority of PPS 12 has been agreed, there
remain some issues that have yet to be resolved. It is unlikely
to be published until early in 2005.
5. We recognise the potential for the planning
system, through Article 40 agreements under the Planning (Northern
Ireland) Order 1991, to contribute to the provision of social
and affordable housing and to promote mixed tenure developments,
and we urge that greater use of such agreements is made by Departments
where appropriate. (Paragraph 65)
Area Plans produced by the Department of the Environment
(DOE) are now informed by a Housing Needs Assessment prepared
by the NIHE within the context of the Housing Growth Indicators
contained in the Regional Development Strategy (RDS). In addition
plans also take account of Draft Planning Policy Statement 12
- Housing in Settlements. Draft Area Plans published within the
new policy context provided by the Regional Development Strategy
contain a policy which indicates that in considering applications
for planning permission for housing, Planning Service will seek
to ensure that, where a need is established by the NIHE, provision
is made for a suitable mix of housing types and tenures to meet
the full range of market and social housing needs. They further
indicate that implementation will be achieved where appropriate
through planning agreements to secure a proportion of social housing
in major new developments. The Belfast Metropolitan Area Plan,
which was published on 30 November 2004, is the first area plan
for which a full housing needs assessment has been prepared by
the NIHE. In addition to the above policy it also allocates a
total of approximately 110.5 hectares of land to be specifically
zoned and designated for social housing. It also indicates that
in relation to individual applications where a need for social
housing has been identified, the proportion of land or units to
be set aside for social housing will be determined by the DSD
in consultation with the NIHE. Future area plans will, where
appropriate, allocate land specifically for social housing.
It is anticipated that the issue of affordable housing
will be addressed in the forthcoming PPS 12 - Housing in Settlements,
to be published by the Department for Regional Development (DRD).
There is currently no mechanism in place for Area Plans to specifically
address this issue in respect of its housing designations. As
a result the use of planning agreements to secure affordable housing
is not considered appropriate at this point in time. In line
with the RDS, recent plans focus development at higher densities
in urban areas and promote mixed housing developments to accommodate
balanced communities. These planning measures may indirectly
make a positive contribution to affordability issues.
6. We recognise the practical difficulties
faced by the Department of the Environment in dealing with large
numbers of objections to Area Plans, but are concerned that the
2006 target for completion of all Area Plans (itself a slipped
deadline) is unlikely to be met. The establishment of Area Plans
is of critical importance in identifying land for social and affordable
housing against a background of growing need. We urge the Minister
to review the current state of all Area Plans and to take appropriate
steps to ensure that the 2006 target is achieved. The prospect
of new legislation to speed up the process of public inquiries
in the longer term is welcome but will not address the short term
difficulty. (Paragraph 71)
In recent months Planning Service has been reviewing
the rapidly increasing and unprecedented workload pressures being
faced by the Agency. The increased volume of planning applications
has led to greater demands on the Agency's resources. The workload
pressures placed on staff are outweighing the Agency's capacity
to provide a quality service. The 33,000 planning applications
submitted last year represented a 20% increase over the previous
12 months, and this year's projected 43,000 applications will
mean a further 30% increase. Processing times have inevitably
suffered as workloads have risen well in excess of forecast.
While additional staff have been recruited, further action has
been required in order to deal with the current situation. After
very careful consideration of the available options, it has been
decided to concentrate as much of the Agency's resources as possible
for a period of time on the operational side of the business,
where the pressure is greatest and where there are clear legal
obligations to be met. The aim is to reduce current pressures
and get processing times and service back to acceptable levels.
It is envisaged that the temporary re-allocation of staff will
last initially for approximately six months, during which time
the Agency will, of course, monitor progress and reassess its
overall priorities in light of the available resources.
The reallocation of staff will, however, have a knock
on effect on emerging area plans. Resources are available to
permit continued work on plans which have already been published
in draft form - Ards and Down, and Magherafelt. In addition the
Draft Belfast Metropolitan Area Plan was published on 30 November
and work will continue on alterations to the Craigavon Area Plan.
However, progress with the remaining Area Plans will be slower
than intended. It is accepted that temporarily pulling back on
the Area Plan programme raises considerable concerns -including
the implementation of housing policies in support of the Regional
Development Strategy. It is also accepted that the target date
of the end of 2006 for the provision of a full and up-to-date
suite of Area Plans is now not achievable. While it is not possible
at this stage to give a revised target date for completion of
the suite of plans, every effort will be made to ensure that any
delay is kept to a minimum. It is imperative, however, that action
is taken now to deal with the increasing and unprecedented pressures
in applications work and to use the resources available to the
Agency to provide a proper service to the public and to meet legal
obligations to them.
7. We have noted with alarm the systemic failure
of housing associations to meet the targets for new build social
housing over recent years. The review undertaken by the Department
for Social Development of the difficulties faced by housing associations
will have a limited impact. It is our conviction that a root
and branch review of the management of social housing in Northern
Ireland is long overdue and we call on the Minister to initiate
one. (Paragraph 76)
The Government fully accepts that there have been
serious difficulties in achieving new build social housing targets
and it was precisely for this reason that the review was undertaken.
Its aim was to identify and provide solutions to the impediments
to delivery of the programme and a number of remedial measures
have been put in place. Many problems remain but it is encouraging
that last year (2003/04) saw a considerable improvement in performance
compared with the previous two years, which suggests that the
measures put in place are starting to have a beneficial impact.
The Committee has commented at length on the level of new build
in 2003/04's social housing programme, some 1140 dwellings. The
actual Development Programme target was to provide 1,575 dwellings,
including schemes for the homeless. The number of dwellings that
RHAs delivered in 2003/04 was 1,526, of which 1,140 were new build;
the remaining properties were either brought into social housing
stock via the Existing Satisfactory Purchase (ESP) facility, as
re-improvement schemes, as rehabilitation schemes or are classified
as communal or hostel accommodation.
The management of social housing has been subject
of numerous reviews and inquiries in recent years. In 2000 the
DSD commissioned Hacas Chapman Hendy to conduct a review of stock
management options. In 2001 the Northern Ireland Assembly's Social
Development Committee conducted an inquiry into housing, in 2002
the Government commissioned an independent review of the effectiveness
of the Northern Ireland Housing Programme, and in 2003 the Committee
of Public Accounts held an Inquiry into Homelessness in Northern
Ireland. Each of these reviews has been complemented by established
and on-going research, carried out or commissioned by both the
DSD and the NIHE. The Northern Ireland Affairs Committee's examination
into social housing adds to this body of work. There is a continuous
programme of policy development work in various aspects of the
housing programme and the Government will keep the need for further
reviews under consideration.
8. We believe that there would be merit in
giving the Northern Ireland Housing Executive (NIHE) oversight
of the new build programme together with a greater role on land
identification. We also call for serious consideration to be
given to returning some responsibility for the new build programme
to NIHE, with appropriate powers to raise private finance. (Paragraph
77)
The Government will consider carefully the Sub-committee's
recommendation as part of its continuous close scrutiny of the
effectiveness of the new build programme. The NIHE will continue
to play an important role in both land identification and site
assembly to support the delivery of the Social Housing Development
Programme. As regards the NIHE's ability to borrow finance privately,
the NIHE's finances, like those of all Government Departments
and Non-Departmental Public Bodies (NDBPs), are subject to normal
public borrowing rules set out by Her Majesty's Treasury.
9. We are deeply disappointed that a major
study into the future management of social housing in Northern
Ireland, commissioned in October 2000, has been the subject of
serious delay and has not yet been published. We call on the Minister
to publish the HACAS Chapman Hendy Report as a matter of urgency
to encourage wide public debate on the options for the future
management of social housing. (Paragraph 78)
The Government agrees with the Sub-committee's recommendation
and the report in its entirety has been published on the DSD website
at: http://www.dsdni.gov.uk/publications
10. The House Sales Scheme has been in operation
for 25 years and has helped many people on low incomes to become
homeowners. This is welcome. However, over the period the stock
of social houses has shrunk alarmingly and more social houses
have been sold than remain in NIHE ownership. We believe that
the recent revision of elements of the House Sales Scheme was
a missed opportunity to carry out a fundamental review of the
entire Scheme. In particular, we are greatly concerned at the
absence of any serious attempt to measure the likely impact of
the sales policy on the future provision of social housing. (Paragraph
87)
The review of the House Sales Scheme was considered
at length by Government. While the review replicated recent reviews
conducted in England and Scotland which examined the major components
of the existing house sales schemes, it went further. Through
a series of framed questions, it provided an opportunity for those
responding to the consultation to comment on all aspects of the
house sales policy including the operation of the NIHE and RHA
schemes. In particular, opinions were sought on the continuation
of the scheme. All of those who responded agreed that the scheme
should continue.
As regards the waiting lists recent research carried
out by the NIHE concludes that there is no adverse impact in the
short term and suggests that Government intervention in a number
key areas can mitigate any negative impacts in the longer-term.
The new scheme includes arrangements to assist RHAs to repurchase
properties should these become available for sale.
11.We also found no indication that in undertaking
the review of the House Sales Scheme, the Department for Social
Development has given consideration to the recent authoritative
research commissioned by the NIHE and carried out by the University
of Ulster and the University of Birmingham. That research had
called for consideration of a range of alternative sales options.
(Paragraph 88)
The Government was fully aware of the Universities
research during the process of reviewing the scheme and drafts
of the report were requested during the review period to inform
its deliberations. The Government took note of the fact that
the research highlighted the success of the NIHE's sales scheme
and of its suggestion that the link between house sales and waiting
lists was complex. The Government considered and but did not
proceed with proposals for further measures to assist those who
may be unable to purchase their homes, to become homeowners.
The Government also rejected the suggestion that it would be unwise
to introduce any changes to the discount arrangements. Similar
reviews carried out in other parts of the United Kingdom recommended
changes to discount caps and independent research into the NIHE's
House Sales Scheme concluded that those who had already purchased
their properties might still have done so had the discount offered
been lower. While the report suggested that alternatives to the
current scheme be considered, it did so in the context of making
it easier for tenants to purchase rather than retaining the stock
of social housing.
12. We welcome the research being taken forward
by NIHE of existing co-ownership participants to consider if alternative
options were available to purchasing a home through the co-ownership
scheme. This should provide evidence for the first time of the
impact of the co-ownership scheme on social housing waiting lists.
(Paragraph 92)
The Government notes the Sub-committee's comments
on this issue. The Government agrees that it is important to
assess the impact of the Co-ownership Scheme on other aspects
of housing policy so that adjustments can be made to the scheme
where appropriate to ensure its continued effectiveness and appropriateness.
13. We recommend that consideration is given
to the merits of assessing all applicants for co-ownership under
the common selection scheme to ensure that the scheme is addressing
real need and having an impact on waiting lists. (Paragraph 93)
Potential Northern Ireland Co-ownership Housing Association
(NICHA) participants are not assessed under the Common Selection
Scheme because NICHA is seeking to obtain different information
about the applicant than that required under the Common Selection
Scheme. The Common Selection Scheme is used to determine an applicant's
eligibility for social housing and to prioritise the applicant
on the waiting list. NICHA's application process, however, is
aimed at determining whether the applicant has the financial means
to become a homeowner through the conventional route, rather than
by way of shared ownership. The NIHE's research, commissioned
by the DSD, will examine the relationship between NICHA participants
and the Waiting List by investigating what alternatives the participant
might have chosen in the absence of the co-ownership scheme.
14. We are concerned at the erratic and uncertain
level of funding provided for co-ownership over recent years.
In view of its success, and given the Northern Ireland Co-ownership
Housing Association's contention that it is a net contributor
to the social housing budget, we find this approach difficult
to understand. We recommend that a realistic and sustained level
of funding is provided to ensure that the co-ownership scheme
can continue to develop (Paragraph 96)
The Government acknowledges the contribution of the
Co-ownership Scheme to promoting affordable housing in Northern
Ireland and has consistently given it a high priority in this
regard. However, in order to address a situation in which the
Association was amassing considerable reserves it was decided,
some years ago, to reduce the baseline grant available to encourage
the Association to recycle its surpluses. This has proved to
be an effective means of resourcing NICHA's activities and its
income now continues to be supplemented in this way. The Government
realises, of course, that the scheme still requires a considerable
amount of Government grant. Independent research was commissioned
in 2002/03 to evaluate the cost-effectiveness of the scheme and
the findings were used to justify bids for additional resources.
Additional funding has been made available to NICHA during 2004/05
and consideration is now being given to NICHA's funding levels
over the three-year period of Budget 2004, on which final decisions
will be announced in the near future.
15. The Northern Ireland Co-ownership Scheme,
operated by the Northern Ireland Co-ownership Housing Association,
has an impressive record having helped around 18,000 people into
home ownership over the past 26 years. Its main strength is that
there is a single scheme in Northern Ireland operated by a single
organisation with a proven track record. We believe that the
success of the Co-ownership Scheme in Northern Ireland provides
a valuable example for the Housing Corporation in its consideration
of how to improve the shared ownership scheme in England. (Paragraph
98)
The Government welcomes the Sub-committee's comments
about the Co-ownership Scheme and will work closely with the Housing
Corporation in England to assist it to learn any lessons from
Northern Ireland about promoting shared ownership.
16. In view of the concerns expressed about
the escalating cost of housing benefit in recent years, we welcome
the Department's research into the relationship between housing
benefit levels and expansion of private renting. (Paragraph 103)
The Government welcomes the Sub-committee's comments.
It is important that the way in which scarce public resources
are used is continuously examined to establish whether any changes
in policy direction are necessary to improve efficiency and cost-effectiveness.
17. We recognise the increasingly important
role played by the private rented sector in meeting housing need
across Northern Ireland, and we particularly welcome the recent
publication of the strategic framework for the sector by the Department
for Social Development and NIHE. We were pleased to see that
the strategy has been developed in consultation with relevant
stakeholders and that there appears to be a high degree of commitment
on the part of government to its implementation. (Paragraph 106)
The Government welcomes the Sub-committee's endorsement
of the new strategic framework for the private rented sector.
18. Some concerns have been expressed to us
about the level of fitness standards to be used in the proposed
new legislation to improve housing conditions in the private sector;
and there was also a call for provision of rent guaranteed tenancy
deposit schemes which could assist homeless people in gaining
access to the private rented sector. We welcome the prospect
of legislative proposals and will wish to scrutinise these in
due course. (Paragraph 107)
Draft legislation will be published early in the
New Year that includes measures intended to improve tenants' rights
across the Private Rented Sector by using a range of mechanisms,
for example, rent controls will be implemented to affect greater
improvements in house condition in the sector. There are currently
three Rent Deposit Guarantee Schemes available in Northern Ireland.
Each is funded by the NIHE but managed by The Simon Community,
Smartmove and Triangle respectively. The NIHE is currently evaluating
the services and their findings will be considered in the context
of legislative proposals.
19. Fuel poverty is recognised as a major
problem in Northern Ireland. The high level of Northern Ireland
Housing Executive homes that would have failed to meet the Decent
Homes Standard on thermal comfort grounds is a cause for considerable
concern. We welcome the development of a Fuel Poverty Strategy
and the ongoing action being taken to tackle the issue through
fuel switching. (Paragraph 112)
The Government welcomes the Sub-committee's endorsement
of the development of a Fuel Poverty Strategy in Northern Ireland.
The new strategy, Ending Fuel Poverty: A Fuel Poverty
Strategy for Northern Ireland, was published on the 23rd
November 2004.
20. We call on the Minister to develop and
introduce as a matter of urgency a comprehensive and challenging
housing quality standard for Northern Ireland with appropriate
targets and funding. (Paragraph 114)
The Government introduced the Decent Homes Standard
in Northern Ireland in May 2004 with a target to ensure that all
social housing meets the standard by 2010.
21. We recognise the substantial benefits
for people with disabilities in having all new dwellings built
to Lifetime Homes standard as well as the potential longer term
savings on the cost of adaptations. We call on Ian Pearson, the
Minister with responsibility for Finance and Personnel, to introduce
the Lifetime Homes standard as soon as possible by amending the
relevant building regulations (Paragraph 118)
The Government is committed to facilitating all people
within the built environment and has, since 1984, made specific
provision (Part R) for disabled people in the Northern Ireland
Building Regulations. All new dwellings that are designed to
the current Building Regulations standards provide a level of
accessibility referred to as "visitability" standard.
Research into and consideration of the practicality of incorporating
the Lifetime Homes Standard into the Building Regulations is currently
being undertaken by the Office of the Deputy Prime Minister (ODPM).
In association with the ODPM review, the Joseph Rowntree Foundation
is actively reviewing the present Lifetime Homes Standard. The
Department of Finance and Personnel will re-examine its building
regulations in relation to the Lifetime Homes standard in light
of this research and review. Any proposal to amend the regulations
will be subject to a full public consultation and a Regulatory
Impact Assessment will be prepared setting out the costs and benefits
of any proposed amendment.
22. We welcome the assurance that the work
of the Sustainable Buildings Task Force in Great Britain is being
monitored. We urge Angela Smith, the Minister with responsibility
for the Environment, in consultation with other Departments, to
consider making a public commitment to extend the Code for Sustainable
Building to Northern Ireland at the earliest opportunity. (Paragraph
124)
The processes of constructing, maintaining and occupying
buildings including housing is believed to contribute nearly 50%
of UK CO2 gas emissions. CO2 emissions are a significant factor
in climate change and air pollution from which occupants of social
housing are often at greatest risk. The Code for Sustainable
Buildings, produced by the Sustainable Buildings Task Group established
to promote sustainable development in the building industry through
improved environmental performance (e.g. energy, waste, water
and materials), is a welcome and positive initiative to combat
related issues. The Code clearly has potential value to Northern
Ireland where social housing is an important element of the sustainable
development strategy now being progressed. However the implications
will take time to emerge and the Code is in the early stages of
development. Demonstration schemes in the Thames Gateway and
various other assessments anticipated for completion towards the
end of 2005 will provide evidence to support the advancement of
the Code. Government will monitor developments closely and liase
with statutory, voluntary and private sector organisations with
an overlapping interest in the Code.
23. Our inquiry has shown the dedication and
commitment of many in the housing sector. This has resulted in
difficulties with the new build programme being tackled, innovative
work by Northern Ireland Housing Executive to pilot integrated
housing schemes and strategy development for the private rented
sector, fuel poverty, and other issues. But much more remains
to be done. (Paragraph 125)
The Government welcomes the acknowledgement by the
Sub-committee of the commitment of all those involved in housing
to deliver effective housing services to the people of Northern
Ireland. It accepts that more work is needed across a wide range
of areas and remains committed to working with its many partners
in the statutory, voluntary and private sectors to continue to
improve housing services.
24. If urgent action is not taken a crisis
in the supply of social housing seems inevitable. The number
of people on the Common Waiting List has increased significantly,
particularly those who are in housing stress and those who are
homeless. 26,700 people are currently seeking social housing,
of whom nearly half are in housing stress. The number of homeless
households increased by 16% last year to 16,426. At the same time,
the supply of social housing is falling dramatically due mainly
to house sales where the number sold exceeds the remaining NIHE
stock. The present situation has been exacerbated through the
failure over recent years to meet the targets for new building.
A balance of supply and demand needs to be achieved as a matter
of urgency. (Paragraph 126)
Although the Common Waiting List has increased over
recent years, NIHE and RHAs are still managing to house the majority
of those applicants, some 77%, within one year of joining the
Waiting List. There are significant in and out-flows on the Waiting
List, however the Government accepts that there is a small number
of individuals and families that remain on the list for some time.
2.63% of applicants for social housing have been waiting for
longer than four years. This is attributable in part to the increasing
number of applicants who would prefer to live in areas of high
demand (particularly evident in North and West Belfast and the
West Bank of the Foyle in Londonderry) and the increased number
of applicants with complex needs; in the past three years 2,486
cases have special circumstances that require intensive care and
support. This need may be met in a specialist housing scheme,
where additional support or care services are provided, or in
general housing where a tailored support and care package has
been arranged.
Social housing is not the only source of housing
accessible to those on the Waiting List. The private rented sector
has shown consistent growth in recent years and many potential
social housing tenants are choosing to live in that sector demonstrated
by the increased level of Housing Benefit paid to private sector
landlords. Considerable work undertaken by the DSD and the NIHE
has produced a comprehensive strategy aimed at supporting and
regulating the sector to ensure that it can play an appropriate
role in meeting housing need. In addition, private sector construction
has remained strong across Northern Ireland with considerable
growth in the Belfast Metropolitan Area and the North West. Some
12,706 dwellings were commissioned by the private sector during
2003/04. Whilst there are signs of affordability problems emerging
for first time buyers and those on low-incomes in some localities,
the overall affordability situation in Northern Ireland is much
healthier than in many other parts of the United Kingdom. Government's
support for the Northern Ireland Co-ownership Housing Association
(NICHA) has gone some way to alleviating affordability issues,
with some 18,000 participants having benefited from the scheme
and 13,000 stair-casing to full home-ownership.
Achieving the levels of new build social housing
required has been difficult in recent years. The Government fully
acknowledges these difficulties and recognises the challenges
that the development process presents for the voluntary housing
movement. A range of measures have been introduced in the shorter-term
to effect improvements in delivery, however in the longer-term
actions across a number of sectors will support the supply of
social and affordable houses. The implementation of the suite
of planning policy statements and progress towards full Area Plan
coverage for Northern Ireland will influence all aspects of development
from the property type, the scheme size, the tenure mix, the location,
the design and layout, access to open spaces and to amenities
supporting the development of sustainable communities.
As for achieving a balance between supply and demand,
the Government will continue to explore new policy proposals that
could potentially improve the delivery of new social housing in
Northern Ireland. The introduction of new agents to the delivery
of the social housing Development Programme will be considered.
Measures to encourage greater private sector involvement in the
delivery of social housing contained in the Housing Act, for example,
could support improvements in both the supply and quality of social
housing. Strategic partnerships between Government, communities,
the voluntary sector and the private sector may be a route to
achieve this and are worthy of further consideration.
25. The general perception that the overall
quality of housing in Northern Ireland is good masks problems
such as high levels of unfitness in the private rented sector
and high levels of fuel poverty. The absence of a challenging
quality standard in the social housing sector is a cause for concern.
(Paragraph 127)
The quality of housing in Northern Ireland has improved
considerably since monitoring through periodic House Condition
Surveys began in 1972. Successive House Condition Surveys demonstrate
continuous improvement. The Committee has focused attention on
two areas where, despite substantial efforts from the Government
during the intervening years, difficulties persist. There is
a clear association between levels of unfitness and tenure. Nearly
half (44%) of unfit properties are vacant, in fact only 2.9% of
occupied properties are unfit. The Committee correctly points
out that within properties classified as unfit 8.7% are in the
private rented sector. The Government has recognised that targeted
action is required to tackle widespread inconsistencies across
the sector in terms of tenants' rights, rent control and unfitness.
Regional strategies to support the private rented sector have
been advanced by both the NIHE, as regional housing authority,
and the DSD. The DSD acknowledges the role of the sector in
meeting the housing needs, particularly in areas where there is
a high demand for social housing. The sector now accounts for
7.6% of the total housing stock. The only legislation relating
to the sector is the 1978 Rent Order, however this applies to
a limited number of properties and in many cases acts as a barrier
rather than a catalyst for improving conditions. This is supported
by evidence that demonstrates that the highest levels of unfitness
can be found in properties to which the Rent Order applies. The
DSD is progressing legislation to improve tenants' rights across
the private rented sector and to use rent control as a means to
raise levels of fitness. The legislation, which is scheduled to
be published in draft form for consultation early in 2005, will
support practical measures to improve conditions and enable the
sector to act as a viable and affordable alternative to social
housing for those in need.
The Government published Ending Fuel Poverty:
A Fuel Poverty Strategy for Northern Ireland on 23 November
2004. The strategy sets a challenging target to eradicate fuel
poverty for all vulnerable groups and those who live in social
housing by 2010 and in non-vulnerable households by 2016. The
Strategy recognises the cross-cutting nature of the issue and
commits the Government to working in cross-sectoral partnerships
to address the issue. Further to the Decent Homes Standard which
will assist efforts to address fuel poverty, consideration has
been given to the introduction of a standard similar to the Housing
Health and Safety Rating System in England where the proposals
for enforcement are currently under consultation. Departmental
officials and NIHE staff have also been monitoring developments
in the other devolved administrations. The NIHE is conducting
a small-scale pilot programme to determine any resource issues
attached to the proposed policy. The Government will consider
the findings of this study in the context of proposals on energy
emerging from Europe.
26. Our greatest concern is that policies
on many housing issues such as the house sales scheme, the co-ownership
scheme, and the private rented sector have been developed in isolation
with insufficient assessment of their overall impact on the general
provision of housing in Northern Ireland. In addition, responsibility
for housing issues ranges across at least four departments which
makes co-ordination across government difficult. The Social Development
Minister indicated that a number of the issues we raised were
the responsibility of Ministerial colleagues. (Paragraph 128)
The Government notes the Sub-committee's concerns
and agrees that the spread of responsibility across different
departments for issues affecting housing policy makes it essential
that arrangements are in place for close cooperation between those
departments to support the development and implementation of effective
policies for housing. To date such arrangements have worked well
but their success requires a continuing effort and commitment
on the part of all concerned.
27. We call on the Government to develop a
strong and inclusive regional housing strategy setting out a vision
for housing in Northern Ireland along the lines, for example,
of the National Housing Strategy for Wales. The fundamental objective
must be to ensure that housing strategy development and delivery
is fully co-ordinated with all other key regional and local policies
and strategies (Paragraph 129)
The Government shares the Sub-committee's view on
the fundamental objective of housing strategy development and
delivery. The context in which the Government's spending plans
are taken forward, ranging from the Government's overall commitments
set out in Priorities and Budget 2004-2006, the associated
Public Service Agreements, down to departmental corporate and
business plans identify and reflect the priority and commitment
accorded to this.
The Government agrees with the Sub-committee that
housing is an issue that transcends Departmental responsibilities;
for example, there are established linkages between housing and
health, educational attainment, economic regeneration, the environment,
and community development. This reinforces the need for co-ordination
across Government.
The DSD continues to work closely with the NIHE,
as regional housing authority, to develop a suite of complementary
strategies, policies and programmes that target social need and
progress the strategic objectives. In the coming months these
will interlink with the Regional Development Strategy, the suite
of planning policy statements and the development of Area Plans
as work on these issues emerges.
In partnership, with the NIHE and other key stakeholders,
regional strategies have already been produced to address cross-cutting
issues, for example:
Renting Privately - A Strategic Framework - May 2004
A Fuel Poverty Strategy for Northern Ireland
The Homelessness Strategy
People and Place - Neighbourhood Renewal Strategy
In addition, a series of sectoral studies and pilot
schemes have been undertaken and local strategies developed where
appropriate, for example: The North Belfast Housing Strategy,
Greater West Belfast Housing Strategy and The Derry/Londonderry
Housing Strategy. The DSD and the NIHE have commissioned or conducted
research on a range of issues to support policy development including:
a comprehensive needs and effectiveness review, housing and health,
housing and community relations, affordability, an evaluation
of the House Sales policy and co-ownership scheme. In all of
this work the emphasis has been on making and strengthening the
links with related policy areas that may be the primary responsibility
of other departments or agencies, and on ensuring that all of
these policies are mutually supportive.
The crosscutting nature of much of the Department's
work is recognised in its policy and strategy documents and they
provide the umbrella under which housing, together with other
issues, can be progressed. This corresponds with the vision that
the Welsh Assembly Government (WAG) have advanced for the delivery
of housing services which also recognises the established connections
between poor housing and poverty, deprivation, crime and anti-social
behaviour, educational underachievement and ill health. The Government
acknowledges that there will housing related issues common to
all jurisdictions and recognises the importance of monitoring
any new initiatives for possible read-across to Northern Ireland.
However Government is mindful that there are housing issues unique
to Northern Ireland that require specific, targeted Government
intervention.
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