Written evidence submitted by Centre for Ageing Better [HCE 031]

Housing Conditions in England | HCLG inquiry
Written evidence from the Centre for Ageing Better

About the Centre for Ageing Better

1. The Centre for Ageing Better works on evidence and policy solutions to tackle inequalities in ageing. We are working to make our homes, workplaces and communities inclusive of older people, as well as building an Age-friendly Movement so that society sees ageing in a more positive and realistic way. We are a charitable foundation that is part of the government’s What Works Network.

2. Our research has identified and focused on the critical part the standards of housing play as a foundation for a decent life. Living in a home that is safe and supports good health means a longer, healthier and more fulfilling life.

3. In this submission, we draw on recent research and evidence to present an overview of housing conditions in England. We look at the prevalence of non-decent homes as well as hazards such as damp, cold and fall risks.

Overarching

4. Most people want to live in their own homes, in the communities they belong to, for as long as possible. But far too many older people are currently living in homes that are endangering their lives.

5. The Centre for Ageing Better’s 2025 State of Ageing report reveals that 3.5 million homes in England are classified as non-decent. That represents about 14% of the total housing stock and means 7.5 million people of all ages are living in a non-decent home in England – this figure includes 2.3 million people aged 55 and over as well as 1.5 million children.[1]

6. The condition of homes varies significantly by region. In London, only 10% of owner-occupied homes headed by someone aged 55+ are non-decent whereas in the East Midlands, this figure rises to 21%.[2]

7. Income plays a major role, with older owner-occupiers in the poorest 20% of income distribution twice as likely to live in non-decent homes as those in the richest 20%.[3]

8. Hazards such as damp, mould and condensation are widespread[4]:
• 6 million homes in England, a quarter of all homes, report issues with condensation, damp or mould.
• Concerningly, among households headed by someone aged 55-64 with a long-term illness or disability, almost a third of homes experience these issues.

9. After decades of failure to invest in our existing housing stock, the UK now has amongst the leakiest and draughtiest homes in Europe:
• The UK has the oldest housing stock in Europe, with 38% of its homes dating from before 1946.[5]
• There are 6 million households in fuel poverty in the UK.[6]
• UK homes lose heat up to three times as fast as comparable Western European neighbours such as Germany.[7]
• The average energy efficiency of UK homes has steadily improved over time, but the rate of improvement has slowed since 2014.[8]
• Over the past decade, £2.3bn in private sector home improvement grants has been removed by the government, leading to hundreds of thousands of fewer homes being repaired.[9]

Health consequences

10. Homes that are too cold or hot can lead to serious illness and health consequences.

11. For many, living in a dangerous home will be life-limiting – and for some, it will even kill them. Non-decent homes restrict people’s life chances and hurt our nation’s health. They also harm the economy, limit productivity, and needlessly cost the NHS and social care billions each year.

12. Older people and children are most vulnerable to the health consequences of living in a damp, cold, hazardous home, with millions experiencing respiratory conditions such as asthma, heart conditions, and falls in the home that have life-changing consequences. 4.5 million people aged 50 and over in England today have a health condition that is put at risk by their living conditions. The highest proportion of older people with these health and housing problems are living in the rented sector; however, the largest number – 2.2 million – own their home.[10]

Government attention

13. With more than 80% of the homes that will exist in 2050 having already been built, it is vital that government pays close attention to the state of existing homes to ensure they are not damaging people’s health. Everyone stands to benefit from investment in our housing stock through healthier and longer lives, reduced burden on health and social care services, and more jobs and skills in the economy.

14. Collectively, the proposed changes to the Decent Homes Standard, its extension to the private rented sector, Awaab’s Law, the Renters’ Rights Bill, and the Warm Homes Plan have the potential to make a significant difference to housing conditions in England. However, Government must look at ensuring that there are a specific set of interventions for older homeowners on low incomes.

15. That so many millions of people continue to live in non-decent homes in England should concern us all and should compel Government to take action.

Recommendations

16. Through the upcoming cross-cutting housing strategy, the Government should commit to tackling poor-quality existing housing stock. The strategy should:

• be underpinned by a clear recognition of the link between housing and health,
• aim to address inequalities in housing standards, and
• recognise the changing needs of our rapidly ageing population to ensure older people can live safely and independently in their own homes for as long as possible.

17. The strategy must also be backed by sufficient, long-term funding and include a mechanism for delivery at a local level, such as the Good Home Hub model which we are piloting in partnership with Lincolnshire County Council. We believe the Government should create a national network of ‘Good Home Hubs’ and this network would help the roll-out of important initiatives such as the Warm Homes Plan. 

Social housing sector

18. Since the introduction of a Decent Homes Standard in the 2000s, the proportion of homes in the social housing sector that are classified as non-decent has fallen over time. The number of non-decent homes in the social rented sector is now 62% lower than 2006[11] – when the last update to the Decent Homes Standard took place. However, 10% of homes in the social housing sector still fail to meet the Decent Homes Standard.[12]

19. Our 2025 State of Ageing looked at the number of social rented homes that are non-decent by age of household head[13]:
• Household head aged 54 and below: 204,000 non-decent social rented homes
• Household head aged 55-64: 92,000 non-decent social rented homes
• Household head aged 65-74: 51,000 non-decent social rented homes
• Household head aged 75 and over: 69,000 non-decent social rented homes.

20. The fall in non-decent homes in the social housing sector represents a significant success of the introduction of the Decent Homes Standard, with social landlords responsible for ensuring that their properties meet the minimum criteria.

21. Considering the positive impact that the introduction of the Decent Homes Standard had on the quality of housing in the social rented sector, we believe that the proposed changes to the Decent Homes Standard will strengthen this further. Critically, the proposal to reflect the true condition of a home’s key components rather than just their age has the potential to make the Decent Homes Standard even more impactful.

22. Furthermore, the requirements under Awaab’s Law that are being phased in will also improve conditions in the sector and compel landlords to act quickly as issues arise. We particularly welcome the expanded range of hazards that Awaab’s Law will apply to such as cold and heat, falls, and hygiene hazards. These are key issues for older people and people living with a disability or an existing medical conditions.

23. In addition to these new regulations, we would like to see the Government establish a network of Good Home Hubs to support tenants and landlords of all tenure types to access trusted advice and support and provide greater confidence about the changes to make to their homes.

Private rented sector

24. Our assessment is that the Renters’ Rights Bill along with the extension of the Decent Homes Standard and Awaab’s Law will substantially improve conditions in the private rented sector. Together, these have the potential to transform housing conditions in the private rented sector in a way that is comparable to the major improvement of conditions in the social rented sector following the introduction of the Decent Homes Standard in the 2000s.

25. The protections for tenants against Section 21 ‘no fault evictions’, longer notice periods for evictions, and restrictions on rent being paid in advance are particularly welcome. We would like there to be a prominent public awareness campaign to ensure that both tenants and landlords understand the provisions of the Bill.

26. We also welcome the creation of a private rented sector database that will help landlords and tenants understand their rights and obligations. However, we would like the database to be more ambitious and useful to tenants and prospective tenants by providing information about the condition and accessibility of the property and by enabling verification of compliance and improvement works.

27. Despite the significant promise of these measures, their success will be determined by how effectively they are implemented. Some landlords may be reluctant or slow to improve the condition of their rented properties due to perception of cost or misunderstanding of the expectations. Good Home Hubs can support landlords and tenants to understand the new requirements and help identify solutions to support home improvement work.

28. Government must also ensure that local authorities have adequate funding and support to enforce the new regulations. A more ambitious database might help democratise this process and create more transparency for all parties.

New-build homes

29. It is vital that new homes and neighbourhoods built today support residents to live healthy and fulfilling lives. Standards for new homes need to be simple, consistent and guarantee that all new homes are safe and healthy places for people to live. Good quality homes mean longer, healthier and more fulfilling lives for everyone, as well as reduced burden on health and social care services.

30. The Centre for Ageing Better supports the Town and Country Planning Association’s (TCPA) Campaign for Healthy Homes, highlighting the need for new homes to be built to high standards. The TCPA’s 12 Healthy Homes Principles should be a benchmark for quality.[14]

31. With an ageing population, it is essential that new homes are built to be accessible and adaptable. By 2065, it is projected that 26% of the population will be aged 65 and over[15], and 1 in 5 people in the UK already live with a disability[16]. The quality of new build homes should also be assessed through suitability to changing demographics. Building more accessible and adaptable homes is vital to this.

32. Accessible homes help people with mobility issues or disabilities live independently and safely. Everyone can benefit, including families using prams and anyone who has older people or friends with mobility issues visiting them.

33. Adaptable homes provide flexibility for people to modify their home as their needs change over time. Most people want to remain in their own home as they get older and adaptations help avoid injuries and falls.

34. Building more accessible homes can have positive impacts both socially and economically, including:
• Increased independence and less reliance on health and social care services
• Savings to the NHS from fewer falls and other injuries around the home
• Improved mental health and wellbeing for Disabled people
• Reductions in costs of retrofitting homes to suit needs, which is more costly than making them part of the original design.

35. There is currently a large ‘accessibility gap’ between the number of homes that are fully accessible and the number of disabled people. Just 13% of homes in England have all four basic accessibility criteria that help make a home visitable for most people.[17] There are also stark regional differences in the availability of accessible homes. Only 4% of homes in the North East and the East Midlands have all four basic accessibility features that make a home visitable for most people. In contrast, 23% of homes in London have these features.[18] The higher figure in London is likely a result of the London Plan which requires higher accessibility standards for new build homes.[19]

36. There are also currently low levels of basic home adaptations across England despite our ageing population, with just 7% of homes containing grabrails as an example.[20]

37. We recommend that Part M4(2) of the Building Regulations becomes the national baseline standard for new build homes, making homes easier to use and adapt over time.

38. In 2022, the previous government announced, following a consultation, that it was “committed to raising accessibility standards for new homes” and that “the most appropriate way forward is to mandate the current M4(2) requirement in Building Regulations as a minimum standard for all new homes”. However, this has never materialised, despite 98% of respondents to the consultation supporting the government’s intention to raise accessibility standards of new homes.[21]

39. The Housing Made for Everyone (HoME) Coalition, co-chaired by the Centre for Ageing Better and Habinteg, estimates that as many as 885,000 more people could now be living in accessible and adaptable properties if the higher M4(2) standard had been delivered in 2022 when that announcement was made.[22]

40. Furthermore, polling by the Centre for Ageing Better shows that 66% of people think they would have problems moving around their current homes and carrying out everyday tasks without major adaptations to their property if they developed a health issue or serious injury. The same polling shows that 77% of people think all new homes should be built to a standard that allows people to live independently as they age or if they become disabled.[23]

41. We have been told by builders and developers that they would welcome a national framework for accessible homes rather than the current patchwork landscape where required accessibility standards vary by local area. They consider a national policy to be a more level playing field and therefore easier to plan designs and developments.

42. The Government has confirmed that they are reviewing their policy on the accessibility of new build homes, but many months have passed without any progress. We urge the Government to avoid any further delays and outline their policy on accessible new build homes so that builders and developers have clarity.