SHREWSBURY & ATCHAM BOROUGH COUNCIL

CPA Self Assessment Pro-Forma September 2003

BALANCING HOUSING MARKETS

The following information is set out under the following three headings;

1.0 How well does the Council understand its housing market and from its understanding has the Council developed the right proposals to help balanc its housing market.

2.0 What are the Council’s actions and what outcomes has it achieved in helping to balance housing markets?

3.0 How well does the Council monitor its progress and impact in helping to balance housing markets and how effectively does this feed into future strategies and plans.

 

1.0 How well does the Council understand its housing market and from its understanding has the Council developed the right proposals to help balanc its housing market.

The Borough has an increasing housing market rising 4% to 42,000 dwellings between 2002 and 2003. 85% of dwellings are in private ownership and 74% owner occupied. The main challenges facing Shrewsbury and Atcham’s housing market are; -

Affordability - In the last three years the local housing market has seen a significant increase above the national average in house price inflation. (28% in 2002). With the average house price in the second quarter of 2003 being £136,000. Coupled to one of the lowest total average earnings in the Country this has led to significant issues of affordability, preventing people on low and middle incomes accessing the types of housing necessary to meet their needs.

Supported housing in particular providing for an ageing population - The demographic profile of the Borough shows an ageing population and issues of meeting housing need through supported housing, lifetime homes, aids and adaptations and single level accommodation is a challenge we face.

Homelessness - Statistics show an upward trend in homelessness; the primary cause being the loss of assured shorthold tenancy_.

Unfit private sector stock occupied by vulnerable households – The 2000 Private Sector House Condition Survey identified that unfitness was concentrated in pre 1919 stock occupied by elderly residents on low income.

The Council has a detailed research base, which provides a good understanding of the housing market and underlying socio economic drivers. The Council is informed by the English House Condition Survey and Housing Corporation Research, regional papers including particularly research undertaken by the Centre for Urban and Regional Studies, University of Birmingham and locally commissioned research including the 1999 Housing Needs Survey, and Private Sector House Condition Survey 2000. ⁴

The Census 2001 provides base line data for information on house numbers, types and tenure and is supplemented by quarterly house data updates produced in partnership with the sustainability unit at Shropshire County Council. Data on homelessness right to buy sales, aids and adaptations, and social-housing re-lets is considered quarterly and annual data collated through the Housing Statistical Returns.

A new housing need assessment is being commissioned to be complete in early 2004. This borough wide data is supplemented by parish level housing needs surveys, to help inform decisions on local housing development. The Council has recently introduced a system for routinely gathering information on house prices, private rental costs, and socio-economic data. Land availability in terms of planning permissions and houses completed is undertaken on an annual basis and the Council is completing an urban capacity study.

In the last twelve months the Council has been heavily involved in Supporting People working collectively with District, County, Health and Probation colleagues to determine need and supply of supported housing and housing support across Shropshire and the development of a county wide strategy . The needs review identified that 13% of residents within Shropshire, who currently do not receive support could require housing related support services. A joint cross agency countywide partnership undertook the Homelessness Review and developed the Homelessness Strategy and through these well developed partnerships we have commissioned research into housing and support needs of black and ethnic minorities _, adults with mental health problems and older people_. The Council in partnership with the Learning and Skills Council, Shropshire Chamber and Social Services has commissioned research into the housing and support needs for young people (2002) and through the Community Safety Partnership people fleeing domestic violence (2003).

Research is made public with the principle findings publicised in a range of reports and strategies, all of which are subject to scrutiny. Principal strategies are subject to public consultation.

The Housing Register is updated regularly to remain current and the housing allocation policy reviewed annually to ensure the limited social housing stock is targeted at those in greatest need. We are currently exploring the extension of the register to include demand for affordable to buy properties.

The 2000 Private Sector House Condition Survey provided comprehensive private stock condition data including home energy and social economic data. The condition survey of the Council housing stock undertaken in 2001 as part of the Large Scale Voluntary Transfer, informs the LSVT investment programme _. Qualitative data is also obtained through regular liaison including the Private Landlords Forum, the voluntary sector Forum on Housing and Homelessness and quarterly liaison meetings with Registered Social Landlords.

Through Council Tax records the council is able to determine the number and duration of empty properties and this data is reviewed annually as part of our empty properties strategy.

The Council can demonstrate strong links between National and Regional strategies and the development of our housing and planning strategies. The Council is willing to challenge National and Regional priorities that do not accord with local need through robust evidence based arguments.

The Housing Strategy 2002-2005, Homelessness Review and Strategy 2003^10,11 and Housing Renewal Policy 2003-2005 were developed through a process of consultation with key stakeholders including landlords, RSL’s and the voluntary and community sector. Focus groups, questionnaires and the circulation of draft documents are used to capture views. A countywide Inclusive Forum has been established supported by local liaison groups to inform the development of the Supporting People Strategy ⁹.

The Council has set out the process by which consultation will be undertaken on the review of the Local Plan and on development control decisions in a draft Statement of Community Involvement . This is in advance of pending changes to planning legislation. Consideration is being given to the adoption of this model for housing strategy consultation.

The Supplementary Planning Guidance on affordable housing¹, jointly prepared by housing and planning colleagues, was widely circulated to key stakeholders at the draft stage, and feedback influenced the final approved document. Similarly planning briefs produced for all allocated sites are subject to widespread stakeholder and local community consultation.

SMART targets are detailed in the Housing Strategy action plan and performance against these targets is reported in subsequent evolutions of strategies.

Elected members have been heavily involved in the development of the principal housing priority of the provision of additional 500 units of social housing by 2006. This priority arose from the housing needs survey ⁸ and the analysis of house price/ income levels indicating a growing affordability gap. Pursuit of this priority which has been extensively debated by members has led to the development of SPG and a new approach to social housing funding using council resources introduced as a result of the abolition of LASHG.

Senior Cabinet members holding the housing and planning portfolios report quarterly to Cabinet on performance against targets ensures a high visibility of housing market issues on the political agenda.

The Community Strategy is the Council’s primary strategic document with housing and planning strategies inter-linking under it. Housing is a key priority identified within the Community Strategy and the Corporate Plan . The provision of 500 units of social housing is one of 10 big issues for the Council.

The Local Plan and Housing Strategy form part of the Council’s policy framework. The Housing Strategy is supported by the Housing Renewal Policy 2003 ¹⁸, Fuel Poverty Strategy 2002, Homelessness Strategy 2003 ¹¹, Empty Property Strategy 2000 ¹⁶, Supporting People Strategy 2003 ⁹ and Housing Best Value Action Plan 2003. ³¹

The Local Plan provides the land use policy context for the Housing Strategy and Community Strategy and sits within a broad policy framework including National and Regional Planning Guidance, Regional Transport Strategy and Regional Sustainability Action Framework.

The Local Plan allocates sufficient land to deliver the annualised housing rate set out in the Shropshire Structure Plan to 2006 and by monitoring land supply on an annual basis the Council is able to identify any shortfall in housing supply.

The Council uses Section 106 agreements to secure suitable infrastructure and community benefit including the provision of affordable housing integrated within private sector developments, open space provision, educational contributions and pedestrian/cycle links. Targets for affordable housing are justified on the basis of the 1999 Housing Needs Survey ⁸. In rural areas the Council works closely with RSLs and Parish Council’s to identify appropriate exception schemes.

Development briefs for allocated sites and some windfall sites are developed in consultation with housing and other colleagues ensuring housing type and tenure address local housing need, sustainability and community safety. Social housing is to Housing Corporation standard and Secure by Design is encouraged. A large part of the centre of Shrewsbury is conservation area and therefore design and materials are carefully regulated to protect and enhance the townscape.

The work of Shropshire Housing Officers Group (SHOG), upon which the Council is represented, is recognised by both the Housing Corporation and the Government Office of the West Midlands as representing good practise. Through this active and influential partnership the Council has worked to develop the West Mercia Sub Regional Housing Strategy informing and influenced the West Midlands Regional Housing Strategy.

The Housing Renewal Strategy is underpinned by an enforcement framework, which clearly sets out what action the council will take in respect of poor managed private sector housing, and in what circumstances such intervention will happen . The Council is also the lead authority on the Shropshire Rural Energy Watch project levering in energy efficiency commitment funding to provide discounted heating and insulation to private sector residents.

2.0 What are the Council’s actions and what outcomes has it achieved in helping to balance housing markets?

The Council is working hard towards balancing the housing market through a range of policies and actions.

In 2001 the Council restructured combining housing strategy and enabling, community safety and regeneration and sustainability into one team to give breadth to the development of housing strategies. Team members work closely with colleagues within planning policy, legal, economic development and environmental health and through the CPA process have formed an interdisciplinary Housing Markets Group. The Council has the demonstrable capacity to deliver the housing and Local Plan objectives given the size of its establishment, and invests in the training and skill development of its officers.

Significant investment in social housing through Local Authority Social Housing Grant and Housing Corporation funding has helped blunt the impact of right to buy in reducing the number of social housing units. Since April 2001 £9.6 million of Housing Corporation and Local Authority development funding has been approved. The Council quickly reviewed its financial strategy following the cessation of local authority social housing grant and has allocated £7million for the provision of social housing to 2006 through an innovative leaseback arrangement.

New Local Plan policies are beginning to deliver affordable housing on development sites with over 50 affordable homes delivered or under development as a direct result of the Local Plan policies introduced in June 2001. Within the last six months permission for the first rural exception scheme has been granted (10 units) and 14 affordable units negotiated in rural areas.

Within the last year the Council has agreed the sale at affordable values of two areas of council land for social housing development enabling the development of affordable rented housing in an otherwise unaffordable land market.

The Council has agreed new proposals to levy the maximum permissible Council tax for long-term empty properties and second homes, once the detailed regulations have been received.

The Council is exploring through Supporting People the deeper integration of housing with care and support services examining opportunities for joint commissioning with Shropshire County Council and Shropshire Primary Care Trust.

Following the housing best value review 2002 an additional £80,000 revenue was allocated to homelessness services and following adoption of the Housing Renewal Strategy £600,000 capital allocated for a three year grant and equity release programme.

Partnerships – Within the partnership framework of the Local Strategic Partnership (LSP), the Council has a number of partners through which it delivers its housing and planning aims. These include the formal partnerships of SHOG, Shropshire Planning Officers Group, Supporting People, Severnside Housing (the LSVT organisation), more informal partnerships with other RSL’s, and service level agreement with the voluntary sector including the Citizens Advice Bureau, Shrewsbury Homes for All and Housing Young People in Shropshire. These partnership arrangements are reviewed periodically to ensure effectiveness in delivering the councils objectives.

In 2001 SHOG established Shropshire Care and Repair (SCAR), the County wide Home Improvement Agency funded through a District, County, Primary Care Trust and Supporting People Partnership. As an independent agency it is able to offer benefit and financial advice and to undertake non-grant-funded work. Since forming in August 2001 the agency has assisted over 380 clients.

The Council’s private landlord’s forum boasts the regular attendance of landlords representing over 2000 properties. The Council is a member of the regional Homestamp Consortium that has agreed common standards of private sector rented housing standards across its members. The consortium also produces advice to landlords and a knowledge share for officers.

Community Leadership, equalities and social inclusion - The council can demonstrate a deliberate and robust strategic approach to handling planning applications and Local Plan revisions. Many planning applications for affordable housing are on sites that are contentious locally and the applications can be controversial. The consideration of local views are an integral part of the planning decision making process but the Council is not deflected in reaching planning decisions when non-material considerations are raised. Processes for community involvement in such decision making is set out in the Council’s Statement of Community Involvement.

Recent research into the housing and support needs of people from the black and minority ethnic community has identified areas for improvement and this is being taken forward through Supporting People.

Housing development - Within the Local Plan 60% of allocated housing sites is on brownfield land. Since 2001 73% of all dwellings have been developed on brownfield sites, consistently exceeding the regional target of 35-45% and the Local Plan target of 40%. Efficient use is being made of this land with average housing densities of 36% achieved in the urban area.

Development briefs prepared for sites give indicative housing numbers and where appropriate high housing densities are proposed. The Council works with developers and landowners to encourage housing land allocations to be taken up. Pre application discussions are actively encouraged to ensure well-planned and appropriate applications. Consultation with applicants and agents in 2000/2001 found a total of 86% to be very or fairly satisfied with the service provided by the Council. The Council has a good working relationship with County Planners, with joint working on monitoring and the development of the planning framework.

The Council is pioneering the theme of sustainability in design and energy efficiency on mixed tenure residential developments on land in Council ownership, leading by example on the standards expected in all new housing developments in the Borough.

Social/affordable housing development and partnerships - Over the last 10 years 385 units of affordable housing have been provided of mixed type, including family housing, supported housing and older person dwellings. More recently these have been primarily 2 and 3 bed family housing responding to the housing need identified in the 1999 Housing Needs Survey.

Overall the provision of affordable housing is not keeping pace with its loss through right to buy and generally provision falls some way short of need identified in the 1999 Housing Needs Survey. The Council has set itself a target of providing 500 additional units of social housing by 2006. Since LSVT in October 2001, 101 units have been provided and 208 sold.

Whilst a preferred partnership arrangement with RSLs is an objective, at the current time the Council operates a managed market approach working predominantly but not exclusively with six. The Council is working with RSL’s to develop shared equity housing schemes, with a scheme to provide 11 units currently under construction and a 40 unit scheme approved. Service level agreements have been entered into with two charities in Shrewsbury who work with private sector landlords to provide affordable private rented accommodation to homeless persons. The Council funds a bond and rent in advance scheme as well as providing grant support to these charities to enable people with little capital access housing.

At the current time the council has not developed any key worker dwellings, as this has not been identified as a priority, however the Council does have a key worker nomination agreement with our LSVT association.

Supported Housing - The Council, working through SHOG and the countywide Supporting People mechanisms, ensures that vulnerable people are provided with appropriate housing services. Annually SHOG bid for countywide top sliced Housing Corporation Approved Development Programme funding to deliver specialist housing available across Shropshire. Through this approach SHOG has delivered supported housing for people with drug and alcohol dependency and for women’s refuges. Supported housing schemes for teenage parents, people with acquired brain injury and people with mental health difficulties are currently under development. The Countywide Supporting People capital pot has recently been verified at £6.7million a three fold increase in funding for services to vulnerable people than prior to the implementation of Supporting People.

Supporting People has recently decommissioned two services that did not strategically fit the Supporting People Strategy and has begun a review of older people services. Due to be complete in April 2004 this review is likely to lead to the reconfiguring of existing older person’s accommodation in Shrewsbury.

The Council worked with SHOG partners to develop a countywide Homelessness Strategy adopted in July 2003. The strategy was developed through extensive consultation and the council is therefore confident it reflects the needs and issues within the district. Whilst homelessness referrals continue to increase, the Council has an excellent record in not using bed and breakfast for anything other that crisis accommodation. The Council remains confident that we will not have any families in bed and breakfast accommodation by April 2004. The Council’s homelessness service continues to evolve in partnership with the LSVT and voluntary sector. The injection of additional resources in April 2003 will bring further improvements in the service.

Private sector housing - The Council offers a range of assistance including grants and an equity release scheme. Resources are targeted at residents and property types identified in greatest need through the House Condition Survey 2000 ⁴.

£293,000 revenue was allocated in 2002/03 and 2003/04 for disabled facility grants. Coupled to a £250,000 capital allocation this enabled the Council to provide over 60 adaptations in 2002/03, 50% more than in previous years. Shropshire Care and Repair Home Improvement Agency assist residents with funding for adaptations from social services, the private sector and charities. The agency is currently developing its services to include a handyperson scheme and a home from hospital service.

We estimate that there are 394 Houses in Multiple Occupation across the Borough and in the last 3 years 29 have been inspected and brought up to standard.

There are 72 long-term empty properties in the Borough and through our empty property strategy we aim to bring 5 a year back into productive use. The Rural Energy Watch programme continues to deliver with 246 households benefiting in 2002/03 putting the Borough Council well on target to achieve a 30% improvement in energy efficiency by 2010.

3.0 How well does the Council monitor its progress and impact in helping to balance housing markets and how effectively does this feed into future strategies and plans.

Housing investment is managed through the Housing Corporation Housing Investment Management System providing clear information of spend profiles and key stages for housing schemes.

Quarterly performance monitoring through the corporate performance management system enables the Council to check progress respond to emerging issues and assess the impact of its policies. Monitoring, research and consultation inform future policy direction.

Local Plan monitoring - In conjunction with Shropshire County Council the Council annually monitors housing supply providing information on build rates, house types, bedroom numbers, densities, provision of affordable housing, percentage development on brownfield sites, windfall provision and additions and losses to total housing stock. By monitoring land supply on an annual basis the Council is able to identify any shortfall in housing supply. Where this requires the Borough Council to allocate additional land for housing development, this can be accommodated through regular plan reviews.

The adopted Local Plan includes a series of targets and indicators relating to a broad range of planning policies, allowing the impact of many of the policies to be evaluated. In addition, the plan was subject to an environmental appraisal during its preparation and as part of the current review a more detailed Sustainability Appraisal / Strategic Environmental Assessment is being undertaken

Providing affordable homes is a key issue in the Local Plan review and policies will be reviewed in the light of the revised PPG3 and housing need assessment due in 2004.

Housing Strategy/Private Sector Housing action plans - The Housing Strategy 2002 –2005 ¹⁷ contains a detailed action plan with SMART objectives. Performance against these objectives is reported to members annually through the service manager’s annual report of housing strategy updates. Progress on additional social housing is reported monthly to Cabinet in public papers.

The performance of the Councils contractors providing homelessness and housing needs register services is reported to members and officers at quarterly liaison meetings. Quarterly meeting with Registered Social Landlords receive reports on the progress of development schemes.

All clients in receipt of housing assistance e.g. grants are given the opportunity to feedback and since April 1999, 84% of clients have rated the service they receive as excellent.

Most of the emphasis in recording is on quantitative information. With an increasing emphasis on affordable homes the Council will need to establish more robust mechanisms to monitor the quality of developments and impact of design principles in a more systematic way.

Learning and development – The Council regularly shares best practice with other similar authorities through SHOG. Officers are currently discussing with the Housing Corporation methods to share information on our innovative leaseback scheme. Best practice on planning issues is shared locally through the District Planning Policy Officers Group and Development Control Officers Group.

Through various consultation exercises on draft plans, SPG or development briefs all comments received are always reported to the Council and influence the final approved documents. The recent Key Issues Paper asks a series of questions relating to how the borough should progress is housing policies and responses are being considered alongside statutory guidance.

The Council has undertaken two Best Value Reviews of housing services in 2001 and 2002, prior to and following LSVT. The first review was audited by Inspectors of the Audit Commission Best Value (Housing) Inspectorate and graded 1 star likely to improve, and the second by members of the Council Best Value Sub Committee.

Following increasing concerns regarding affordability the Council has set out clearly its approach to the provision of affordable homes through Supplementary Planning Guidance. Working with developers and Registered Social Landlords in developing the SPG the shared learning has resulted in a more focussed and structured approach.

Through reviewing experiences in delivering affordable homes opportunities for learning have been identified by housing planning and legal colleagues.

Methods for gathering and assessing best practise – In drafting planning policies and SPG officers regular seek to identify best practice from both within the County and nationally.

The best value reviews provided a good point in time assessment of best practise whilst publications by the Housing Corporation and housing press provide ongoing examples of good practise. The annual Institute of Housing Conference, Beacon days and training opportunities all provide opportunities to gather and assess good practise.

Efforts are also being made to improve the involvement of stakeholders in developing the Housing Strategy and consideration is being given to hosting a housing strategy stakeholder event to seek wider views and perspectives.

Overall the Council has a comprehensive and sound understanding of the local housing market within the wider social and economic framework. The Council has adopted a flexible and robust set of policies towards balancing the housing market and these are kept under regular review. The housing market remains extremely dynamic and we are continually challenged to develop approaches in such a changing environment.

1  Provision of Affordable Housing within Residential      Developments, Supplementary Planning Guidance Shrewsbury and Atcham Borough Council 2003.

2  Census 2001.

3 Homelessness Review Shrewsbury and Atcham Borough Council 2003.

4 Shrewsbury and Atcham Private Sector House Condition Survey, Marchavon, 2000.

5  Rural Housing Markets 2002 CURS.

6 The West Midlands Housing Markets: Changing Demand, Decentralisation and Urban Regeneration, CURS.

7  Affordability and Housing Needs in the West Midlands 2003 (Draft) CURS.

8 Modelling Housing Needs in Shrewsbury and Atcham Borough, ORS ltd 1999.

9  Shropshire Supporting People Shadow Strategy 2003-2004.

10 Homelessness Review Shrewsbury and Atcham Borough Council 2003.

11 Shrewsbury and Atcham Homelessness Strategy 2003-2008.

12 Supporting People : Assessing the needs of BME groups in Shropshire, University of Wolverhampton 2003.

13 Supported housing and housing related services for adults with mental health problems in Shropshire County. Shropshire County Council 2003.

14 Housing and Community Care Strategy for Older People, SHOG 2000.

15 Stock Condition Survey Shrewsbury and Atcham Borough Council, Rand Associates 2001.

16 Empty Homes and Wasted Property, Marches HA 1999.

17 Shrewsbury and Atcham Borough Council Housing Strategy 2002 to 2005.

18 Shrewsbury and Atcham Borough Council Housing Renewal Policy 2003 -2005

19 Shrewsbury and Atcham Borough Local Plan 2001

20 Shrewsbury and Atcham Borough Local Plan Review, Statement of Community Involvement, July 2003.

21 SABC Cabinet minute 96/03 19th May 2003

22 Community Strategy, Shrewsbury and Atcham Borough 2002-2012.

23 Shrewsbury and Atcham Corporate Plan 2002-2007

24 Transport Priorities for the west Midlands WMRA June 2002

25 Quality of life the future starts here - a sustainability strategy for the West Midlands. WMRA

26 The Shropshire and Telford & Wrekin Joint Structure Plan 1996-2011 - Nov. 2002

27 Housing and Pollution Enforcement Framework 2003, Shrewsbury and Atcham Borough Council.

28 Association for the Conservation Of energy report to the DTLR 2002

29 SABC Scoping report July 2003.

30 Shrewsbury and Atcham Borough Council Best Value Review of Housing Services 2001

31 Shrewsbury and Atcham Borough Council Housing Strategy and Enabling Best Value Review 2003