Written evidence submitted by Habinteg [HOP 029]

Introduction

1. Habinteg is a housing provider with more than 40 years’ experience of providing inclusive and accessible homes and services. We developed and still champion the Lifetime Homes Standard and the Wheelchair Housing Design Guide. Our specialist technical team, the Centre for Accessible Environments, conduct research, consultancy and training around access and inclusion with a wide range of partner organisations.

2. As an accessible housing provider, we understand the importance of learning from the experiences and requirements of our tenants. We campaign for inclusion and awareness, and encourage positive representation of disabled people using the social model of disability.

3. Our most recent data shows that 32% of our tenants are 65 and over. 

Summary

4. Only 7% of housing in England meets basic accessibility standards. While specialist retirement properties have a role to play, most older people will continue to live  in mainstream housing as the population ages. Building all homes to suitable accessible and easily adaptable standard (Building Regulations Part M4 2 and 3) and ensuring proper funding for adaptations and retrofit of the existing housing stock through Disabled Facilities Grants will help to make an inclusive housing plan.

5. Delayed hospital discharge - We believe a key part of the solution lies in the accessibility and adaptability of homes. Health, housing and social care partnerships must be developed to make the case for greater collaboration in practice.

6. There is no ‘one size fits all’ policy response to addressing the housing demands of older people. Providing a choice of accessible and easily adaptable properties in vibrant communities will provide attractive options for older people looking to age in place and ‘right-size’. For many older people, ‘specialist’ housing options are unappealing. Greater choice of homes that can adapt to life’s changing needs will be attractive.

The adequacy of provision of homes for older people and the challenges people face in accessing housing which meets their needs.

7. Many people require adaptations or support in later life, however we believe that getting older should not result in an end to independence.

8. Habinteg and Ipsos MORI research found that – when asked about what kind of housing options people would prefer to live in if they needed care or support at some point later in their lives – 50% of people said they would most favour staying in their current home with some adaptations to allow them to live independently.[1]

9. Despite a clear demand for accessible housing, there is a significant shortage of accessible homes in the UK. The latest English Housing Survey[2] shows that just 7% of homes in England meet basic accessibility features.

10. Research from Habinteg and Papworth Trust shows that there are 1.8 million disabled people with an accessible housing need[3] with around 300,000 disabled adults having an unmet accessible housing need. The figures do not include families with disabled children and rely on self-reporting of accessibility and mobility needs, which often underestimate the number given the reluctance of many older people to describe age related issues as ‘disability’ issues, so they should be taken as a bare minimum indicator of the true scale of need.[4]

11. Building regulations provide technical access standards – Part M Category 1, 2 and 3, however Category 1 is the only standard which is mandatory. Category 2 includes specifications which make homes more accessible and easily adaptable, however as this is an optional standard it is often not deployed.

12. Category 1 therefore remains the default standard for new homes meaning that local authorities can build to a baseline policy for new homes that many disabled people, older people, families with young children and others will find it impossible or difficult to live in. Such homes will be designed in ways that create restrictions to mobility – design flaws that could be easily avoided. Such disabling barriers have major impacts on independence, wellbeing, inequality and health.[5]

Adaptations to the existing housing stock - Disabled Facilities Grants (DFG)

13. Local authorities must ensure that Disabled Facilities Grant (DFG) funding is safeguarded and older and disabled people continue to get support accessing it when it is needed.

14. Research by the London School of Economics in 2012 found that every £1 spent on DFGs is worth more than £2 in care savings and quality of life gains.[6]

15. We welcomed the Government’s announcement in the Better Care Fund (BCF) 2016/17 Policy Framework indicating a rise in the money available for future home adaptations, (increasing from £220m in 2015-16 to £394m in 2016-17).  However, this funding is not ring-fenced so there is a risk that it may not reach its intended user.

16. Local authorities remain legally obliged to consider and fund DFGs. Although in the past they were required to contribute additional funds to the cost of DFGs, they have for some time been under no such obligation. We’re concerned that budget cuts could put pressure on any ‘top up’ resource available.

17. What is clear across the country, is that long delays are often occurring between assessment, application and eventual adaptation. These delays can have a direct and negative impact on independent living and also an implication on adult social care.

Retrofitting homes for accessibility

18. Local authorities and health services are encouraged to coordinate in providing services and this is an opportunity to promote the value of housing adaptations and retrofit.

19. For example, Gloucester City Homes (GCH) says its retrofit housing access programme has helped people stay independent in their own homes for longer resulting in “significant financial gains to health and local authority services through a reduction in admissions to hospitals and care homes due to falls and other health issues.” 

20. The GCH long-term project has invested over £5.3 million on upgrading the homes of 2,270 vulnerable and disabled tenants. Adaptation assessments are carried out by GCH’s in-house occupational therapist thanks to a partnership with the local county council.

Could more housing designed specifically for older people help address England’s wider housing needs?

21. The Centre for Ageing Better suggests that: “whilst specialised housing could form part of the answer, currently only 7% of older people live in these types of homes. Ideas such as intergenerational living and co-housing can be creative solutions but they are too niche to make much of a dent in expected housing demand. The real gains will need to be in mainstream housing. Adapting existing housing stock and building suitable new housing are the building blocks of future proofing our homes for an ageing population.[7]”

22. We agree that changes must be made to mainstream housing in order to address the housing requirements of older people. By ensuring new housing is accessible and adaptable, we can ensure that more housing will be suitable for everyone, including older and disabled people.

23. Inclusive design futureproofs housing stock to deal with the changing requirements of people’s lives, ensuring that homes continue to meet the needs of those who live into later life.

24. Although the specialist retirement housing model can form part of the strategy to provide housing for older people, this model can isolate older people from communities rather than including them, and may not be appropriate for – or wanted by – many over 55s.

The benefits of lifetime neighbourhoods and independent living

25. Habinteg champion inclusion and believe that neighbourhoods should welcome and include everyone. We would like to see versatile communities designed with multiple demographics in mind, rather than encouraging further segregation of older people. Inclusion and diversity are central to the development of Lifetime Neighbourhoods, and this could represent a significant opportunity in terms of housing for older people.

26. Designing homes and spaces which are appropriate for a variety of needs is representative of, and responsive to, the diversity of our population. Therefore, Lifetime Neighbourhoods could provide a progressive solution to the housing needs of older people beyond that of the retirement village model. However, despite the launch of a thorough CLG and International Longevity Centre discussion paper on the benefits of Lifetime Neighbourhoods in 2007[8], there seems to have been little inclusion of this concept within planning, building and policy-making on a wider scale. We would recommend revisiting the benefits of Lifetime Neighbourhoods.

The extent to which improving specialist housing provision in England could improve people’s health and wellbeing, and deliver savings in public expenditure

Building health, social care and housing partnerships

27. The National Audit Office’s report on disabled and older patients was concerning[9]. The report resulted in a clear set of recommendations outlining how the NHS and social care providers can try to alleviate the pressure on services. We believe a key part of the solution lies in the accessibility and adaptability of homes.

28. The features of accessible Lifetime Homes/Part M Category 2 make the job of occupational therapists and others more straightforward when making provision for hospital discharge whether in-home care is to be arranged, or the patient will be looking after themselves. The collaboration between health, social care and housing providers will be important in increasing future health outcomes.

29. ONS statistics show little change in care home population numbers for over 65s during 2001 – 2011, despite an 11% rise in this age group. One of the suggested explanations for the relative stability of these figures is the improvement of health within this period of time (ONS, 2014).

30. Furthermore, “A major contribution to the stability of the aged care home population is likely to be due to the increase in unpaid carers; there were an additional 600,000 unpaid carers in 2011 compared to 2001.”

31. “A further potential explanation is that relatives and/or friends may be more inclined to provide unpaid care to relieve the financial burden of care home costs. The Health Survey 2011, suggested “that a substantial proportion of older people receiving formal care are funding this themselves”. As a result, people in need of social care may be encouraged to reside in their own homes, receiving unpaid care or domiciliary care (care provided at home by a carer) rather than move into a care facility, for as long as possible.”

The adequacy of current planning policy and Government initiatives in meeting the housing needs of older people

32. In 2016, Habinteg commissioned freedom of information requests to local councils in England to find out if they had policies to build to the Lifetime Homes Standard and, if so, whether they had recorded the number built in the last five years. The FOIs were returned by 266 councils (82% of English local authorities) and showed that just 8.2% of councils had planning policies to build to the accessible Lifetime Homes standard and, if they did, how many homes have been built in the last six years.[10]

33. However, some leading councils are delivering best practice on accessible homes planning, monitoring and delivery. Councils such as Leeds, Reading, Sevenoaks, Leicester, Peterborough and Eastleigh are providing a strong example to others of what can be done within long-term planning frameworks. Habinteg is celebrating local authorities who are getting it right and prioritising accessible homes by praising the best councils around.[11]

Government policy

34. The Government has made a strong start by introducing accessible housing standards into the Building Regulations for the first time from October 2015. This is important tangible recognition that access in housing matters. However the ‘visitable’ default (Part M(4) Category 1) is simply inadequate .Category 1 is not sufficiently accessible for most older and disabled people and it is only ‘vistable’ in the loosest sense. Yes, a wheelchair user may be able to get through the front door but could struggle to access internal rooms or use a toilet or washing facilities for example.

Housing White Paper – February 2017

35. Habinteg welcomed the Government's Housing White Paper[12], which references the housing needs of older and disabled people and proposes measures that could help to increase the supply of accessible homes and will form a key part of the Government's housing strategy.

36. Relevant Government commitments include:

1. Strengthening national policy so that local planning authorities are expected to have clear policies for addressing the housing requirements of groups with particular needs, such as older and disabled people.

2. Ensuring that there is more consistent delivery of accessible housing, the Government is introducing a new statutory duty through the Neighbourhood Planning Bill on the Secretary of State to produce guidance for local planning authorities on how their local development documents should meet the housing needs of older and disabled people.

1. This guidance will also set a clear expectation that all planning authorities should set policies using the Optional Building Regulations (Part M (4) Cat 2 and 3) to bring forward an adequate supply of accessible housing to meet local need.

3. Exploring ways to stimulate the market to deliver new homes for older people.

4. Consulting on a new standard methodology for calculating ‘objectively assessed need’, and encourage councils to plan on this basis. The consultation outcome will be reflected in changes to the National Planning Policy Framework (NPPF).

5. Insisting that every area has an up-to-date plan, increasing transparency around land ownership. This will put communities back in charge of getting the attractive homes they want and need – for young professionals, older people, growing families, people on low incomes, people with disabilities and more.

Amendment to the Neighbourhood Planning Bill

37. The Neighbourhood Planning Bill[13] now includes a new statutory duty on the Secretary of State for Communities and Local Government to produce guidance for local planning authorities on how their local development documents should meet the housing needs of older and disabled people (see above). The Government amendment was added to the Bill at House of Lords Committee Stage.

38. The Government amendment reflected a similar amendment from Heidi Allen MP (Conservative, South Cambridgeshire) in the House of Commons and supported by Housing Minister Gavin Barwell MP. This change has cross party support and marks a step change in housing policy for older and disabled people.

39. Habinteg welcomes this renewed focus on accessible housing and the work of MPs, Peers and Ministers to bring legislation forward that considers a diverse and inclusive range of housing needs.

Effectiveness of the building and planning system

40. London provides a strong example of where cross-party political will and strong inclusive housing design can attempt to meet the accessible housing demands of its population. Since 2004, the London Plan has required all new homes to be built to the Lifetime Homes standard with 10% to wheelchair accessible standards.[14] There has been cross-party support for this measure introduced by the Livingstone administration, continued by Boris Johnson and committed to by Sadiq Khan. This London Plan commitment has become a mainstream housing policy that all parties in London can agree on. With the introduction of the new optional access standards the London plan ‘passported’ in line with the guidance and now specifies 90% of all new homes must be built to Category 2 (Lifetime Homes equivalent) with 10% to category 3 (wheelchair standard).

41. In Wales all publically funded social housing is required to be built to Lifetime Homes standard and consideration is given to adaptations for existing homes too.[15] Other English local authorities including Reading, Leeds, Peterborough, Eastleigh and Leicester have good policies for building to accessible standards[16] and show commitment to them in their data gathering systems. There are equivalent standards in Northern Ireland and Scotland.[17] Unfortunately it is not a completely positive picture everywhere.

42. In his manifesto, Labour’s Mayoral candidate for Greater Manchester, Andy Burnham MP, demonstrates his commitment to accessible and adaptable homes, stating:

“We will make sure that we build new homes which meet the Lifetime Homes Standard, and ensure that a greater proportion of all new-build homes are wheelchair accessible”

43. In Liverpool their draft local plan[18] states that:

“To ensure that new homes provide quality living environments for residents both now and in the future and to help deliver sustainable communities, the following standards will apply, subject to site viability:

1. Accessibility of homes

Private Housing - for all new housing developments, all homes are to meet building regulation M4(2) – ‘accessible and adaptable dwellings’.

Affordable Housing - for all new housing developments, 90% of homes should meet building regulation M4(2) – ‘accessible and adaptable dwellings’.

For all new housing developments; 10% of all new homes should meet building regulation M4 (3) (2) (b). When providing for wheelchair user housing, early discussion with the Council is required to obtain the most up-to-date information on specific need in the local area. Where there is no specific need identified, then M4 (3) (2) (a) will apply, to allow simple adaptation of the dwelling to meet the future needs of wheelchair users.”

Viability of developments

44. The current viability test set down in the NPPF is formulated to provide sufficient margin to landowner and developer to ensure that development is delivered. We would like to see an adequate cost-benefit assessment that would take into account the current and anticipated cost of inaccessible housing. This would help balance the interests of all stakeholders. This assessment would need to provide a wider view of ‘viability’ that includes avoidable costs of residential and social care, falls and hospital admissions and negative impacts on independent living that accessible homes could help address.

Planning and planners

45. We would like to see local authority planning departments equipped with the resources, tools, information and expertise to make informed decisions on their local accessible housing needs.

46. National government could promote their accessible standards with a package of information that will support those local authorities to make strategic decisions for the future within the current planning framework.

Local plans

47. Habinteg is in favour of proposals to intervene where local authorities are not sufficiently delivering on their Local Plan where the accessible housing needs of the local population are concerned. This relies on good Local Plans that reflect the benefits to the whole community of building to Part M (4) Category 2 and the likely current and future demand for Category 3 (Wheelchair standard) homes.

48. We would support a robust delivery test and clear recording of the number of new accessible homes built locally. Comparative data on how each local authority area is responding to the accessible housing needs in their local area would also be valuable.

49. Where no local plan has been produced by early 2017, we would welcome Government producing standardised guidance for accessible housing to be included in such Local Plans. Delivery of the governments’ ambitious housing targets should not be judged purely on quantity.

50. Habinteg have issued an accessible housing toolkit for planning policy

www.habinteg.org.uk/tah-toolkit.

Accessible homes and built environments make sense socially and commercially

51. If developers build a shopping centre, station or museum, it must be accessible and is regulated accordingly. Why is housing different?

52. Whilst the presence of accessible features has a particularly positive impact on choice of property among disabled and older people more generally, some features have strong universal appeal:

53. Nearly half of the British public (47%) say they would be more likely to consider moving to a property if it had a downstairs bathroom
54. More than a third would be more likely to consider a property if it had adaptations to make it easier to use a bathroom, or step free access at the front of the property[19].

55. In areas that have a higher level access standard as a default, this ‘level playing field’ means that no developer’s competitor is able to reduce the cost of development or increase profit by building to lower standards.

56. This can also help to unlock the housing sales market as older people looking to ‘right size’ have a wider range of options in the general needs market rather than being restricted to premium retirement housing products.

Is a national strategy for the support of housing provision specifically for older people needed?

57. The Government’s recent Housing White Paper includes strong references to the needs of older and disabled people, reflecting these demands in government policy and promoting their use in local strategies that will be implemented by Councils.

58. A statutory duty for the Secretary of State to provide guidance to local authorities on meeting the accessible housing needs of local people is extremely welcome and will be legislated for when the Neighbourhood Planning Bill receives Royal Assent.

59. DCLG will also consult on a new standard methodology for calculating ‘objectively assessed need’ reflected in forthcoming changes to the NPPF later this year. We believe this represents a positive direction of travel for accessible and inclusive housing in England. Of course, the detail of the guidance and needs assessment will need to focus clearly on the changing demographics and accurately assessing the impacts of our ageing population. Habinteg is keen to help the Government to meet these policy aims. Ourselves and others can offer our expertise and experience to help make this work in practice.

60. A national strategy for the provision of housing for older people could be valuable given the urgency of the challenge. However, we believe that tackling the housing crisis in an inclusive way would be most beneficial. Building all new homes to an accessible standard will help meet the demands of older people in the long-term but also address the needs of young disabled people looking to access employment, or the young family with children in a buggy. Vibrant mixed communities that are accessible and able to be enjoyed by everyone should be at the heart of any inclusive national housing plan.

ENDS

Habinteg would be happy to provide further information or attend a session of the Select Committee if that would be helpful.

March 2017