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Evaluating Tenant Participation inHousing Management and Design

Housing Research Report HRR 06/04 - December 2004

Welsh Assembly Government – Evaluating Tenant Participation in Housing Management and Design

Further copies of this document can be obtained free of charge from:

Helen Wyatt

Research and Information Unit

Social Justice and Regeneration Department

Welsh Assembly Government

Cathays Park

Cardiff

CF10 3NQ

Tel: 029 2082 1718

E-mail: [email protected]

Website: http://www.wales.gov.uk/

ISBN 0 7504 3604 2 © Crown Copyright 2004

Designed by CartoGraphics Typesetting by Text Processing Services


ContentsAcknowledgements

1 Introduction 11.1 Background to the research 11.2 Aims and objectives 21.3 Methodology 21.4 Structure of report 4

2 Evaluation of other studies and good practice guidance 7

3 Comparative analysis of the tenant participation framework in 13Wales with those in England, Scotland and Northern Ireland

4 Evaluation of tenant participation compacts in Wales 21

5 Findings of questionnaire survey, case study focus groups, 29telephone interviews and interviews with national organisations5.1 Introduction 295.2 Stakeholders’ views of tenant involvement 295.3 How tenants are involved 345.4 Successful outcomes of tenant involvement 445.5 Problems with tenant involvement 595.6 Resources and training 665.7 Tenant participation compacts 725.8 Ideas for improving tenant involvement 77

6 Summary and conclusions 83

7 Recommendations 91

8 Appendices 1 List of participants in the research 972 Detailed methodology 1013 Bibliography of other studies and good practice guidance 1054 Tenant compact guidance core standards 1075 Further information and resources 111

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We would like to thank the manyorganisations and individuals that havecontributed to the research. A full list ofparticipants can be found in Appendix 1

In particular we would like to thank thefollowing case study organisations thatcontributed their experiences:

• Cadwyn Housing Association

• Charter Housing Association

• Gwynedd Council

• Mid Wales Housing Association

• Rhondda Cynon Taf County Borough Council

• City and County of Swansea

• Swansea Housing Association

Thanks are also due to:

• The Welsh Assembly Government Project

Steering Group

• Translator

• Project consultants

Acknowledgements


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1.1 Background to the research1.1.1 The Welsh Assembly Governmentcommissioned this evaluation of tenantparticipation in the management anddesign of social housing across Wales, inline with the National Housing Strategy,Better Homes for People in Wales, whichcommits the Assembly Government to:

• improve the contribution, and widen theinvolvement of tenants, to complementand reinforce the application of theWales Programme for ContinuousImprovement/Best Value to Housing;

• deliver more efficient housing serviceswith better quality decisions andsustainable improvements in council andhousing association performance whichwill benefit everyone; and

• place tenants at the heart of themanagement of housing services in thefuture.

The principles of Continuous Improvementand Best Value are of particular importanceto the study, as they require sociallandlords to involve tenants in planning,standard setting, reviewing, decisionmaking and progress setting, and todevelop mechanisms that ensure thattenants are involved in housingmanagement at both operational andstrategic levels.

1.1.2 To achieve the above aims, theWelsh Assembly Government has set anumber of goals to increase and improvetenant involvement in decision making onhousing issues. These have largely beenderived from the Assembly Guidance

Tenant Participation Compacts for LocalAuthorities in Wales (2000). To helpachieve the goals, the Welsh AssemblyGovernment has:

• produced good practice guidance ontenant participation for social landlords;

• provided guidance to help localauthorities to produce formalagreements (tenant participationcompacts) with their tenants, andseparate guidance to require housingassociations to develop compacts;

• allocated funding to the TenantParticipation Advisory Service Cymruand the Welsh Tenants’ Federation, toprovide independent information,advice, training, seminars andconferences for tenants and residents;

• allocated funding to the NationalTenants Resource Centre and a TenantEmpowerment Grant Scheme, to enabletenants groups to improve the quality ofparticipation and involvement;

• invited social landlords to submit bidsannually under ‘tenant participation’themes, as part of the Social HousingManagement Grant Programme.

1.1.3 This research set out to:

• assess the extent to which the aboveinitiatives are contributing to achievingthe National Housing Strategy’s tenantparticipation aims;

1. Introduction


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• achieve a greater understanding of howtenants in Wales are participating indesign and management of their homes;

• establish a detailed picture of the levelsand effects of tenant participation; and

• act as guidance to the Welsh AssemblyGovernment on how to best promotethe most effective forms of participationin the future.

1.2 Aims and objectives1.2.1 The specific aims of the researchwere to gain a detailed picture of the level,quality and types of tenant participationactivity in Wales both at strategic andoperational management of housingservices, and to determine the benefits thatthis is bringing to the design andmanagement of social housing.

1.2.2 The objectives of the research wereto:

i) evaluate the research literature fromEngland, Wales, Scotland and NorthernIreland on the costs and benefits ofinvolving tenants in the design andmanagement of their homes;

ii) examine the role of tenant participationcompacts in bringing about tenantparticipation in the design andmanagement of social housing;

iii) assess the level, quality and types oftenant involvement in the design andmanagement of social housing withinWales in order to produce acomprehensive baseline of activity;

iv) highlight case study examples of wheretenant participation has positively andnegatively influenced housingmanagement and design;

v) recommend how the Welsh AssemblyGovernment might best ensure thatsocial landlords and tenants across Walesharness the benefits that tenantparticipation can bring to housingmanagement and design.

1.3 Methodology1.3.1 The research was carried outbetween November 2003 and March 2004.Contact was made with all 22 localauthorities, the 29 major housingassociations, 333 tenants and residentsgroups and a range of support providers.

In total, 130 landlord and tenantorganisations, support providers andnational organisations contributed theirviews via questionnaires and telephoneinterviews, and a total of 170 individualtenants and staff took part in focus groups.The research aimed to gather informationand views from a balance of tenants andlandlords. However, the numbers oftenants’ views gathered exceeded those oflandlords in all areas of the research exceptthe telephone interviews.

In summary, the views expressed in theresearch draw on the views of:

• 92 tenant organisations;

• 51 social landlords; and

• 10 support providers.

and the individual views of:

• 98 tenants; and

• 72 staff of social landlords.

In addition, views were gathered from 5national organisations representing tenants,social landlords and support providers.


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A complete list of those taking part in theresearch can be found in Appendix 1.

1.3.2 The research involved three stages.These are summarised below.

Stage 1 involved gathering, collating andanalysing baseline data from tenantorganisations, social landlords, and supportproviders. This was achieved by themethods set out below.

Questionnaires were sent to all 333 tenantorganisations on the TPAS Cymru database,all 22 local authorities, the 29 majorhousing associations, and to a number ofsupport providers including the Cymorthmanagement committee and temporaryacting director. The questionnaires soughtto gather data and views on tenantparticipation activity across Wales. A totalof 112 completed questionnaires werereceived. The respondents received wereas follows:

Respondents No % response rate

Tenant organisations 78 23%

Local authorities 14 64%

Housing associations 20 69%

The low return from tenant organisationsmay in part be due to the difficulty ofmaintaining accurate information andcontact details for tenants and residentsassociations.

Following receipt of the completedquestionnaires, 33 telephone interviewswere carried out with staff, boardmembers, local authority members and

tenants across a range of organisations tofollow up specific issues.

Interviews were carried out with 5 nationalorganisations representing tenants andlandlords to gather their views.

1.3.3 Stage 2 involved collating andanalysing information on tenantparticipation compacts, comparingframeworks for participation across the UK,and identifying examples of good practice.

All 22 local authorities and the 29 majorhousing associations were written to,requesting copies of their tenantparticipation compacts. A total of 39tenant participation compacts werereceived from social landlords andanalysed.

Tenant participation frameworks werecollected from England, Scotland andNorthern Ireland. These were analysed,and compared with the Welsh AssemblyGovernment’s tenant participationframework.

A sample of other studies on tenantparticipation, and examples of goodpractice were collected and evaluated.

1.3.4 Stage 3 involved inviting six casestudy landlords to take part in four focusgroup discussions each, to discuss theexperiences of tenant participation ofdifferent stakeholders.

Three housing associations and three localauthorities were selected according tocriteria which ensured that a representativerange was covered.


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The make up of the four focus groups ineach organisation was as follows:

Focus group 1 Staff, board members andlocal authority membersoperating at strategic level.

Focus group 2 Staff delivering front lineservices.

Focus group 3 Tenant representativesfrom constituted and/orrecognised tenantorganisations.

Focus group 4 Tenants who do notnormally participate informal structures with theirlandlord. These included:

- people with learning disabilities;

- black and minority ethnic tenants;

- young people;

- people living in rural areas of scattered stock;

- people with physical disabilities;

- sheltered housing tenants.

A detailed methodology, including abreakdown of the numbers taking part inthe research can be found in Appendix 2.

1.4 Structure of report1.4.1 The report is structured in thefollowing way:

Section 2 includes the researchliterature from England, Wales.Scotland and Northern Ireland on the

costs and benefits of involvingtenants in the design andmanagement of their homes.

Section 3 compares the AssemblyGovernment’s tenant participationframework with those in England,Scotland and Northern Ireland.

Section 4 provides an analysis oftenant participation compacts inWales to ascertain their compliancewith the Assembly Government’stenant participation compactguidance on core standards.

Section 5 outlines the findings of thequestionnaire survey carried out withnational organisations and tenantsorganisations to produce a baseline oftenant participation activity in Wales.Also, the section uses the informationgathered through the case studyfocus groups and telephoneinterviews to highlight examples ofwhere tenant participation haspositively and negatively influencedhousing management and design.

Section 6 sets out the overallsummary and conclusions of theresearch.

Section 7 sets out recommendationsfor the Welsh Assembly Government,social landlords, tenants organisationsand national organisations, onimprovements to ensure effectivetenant involvement in housingmanagement and design.

Each section includes summaries of the keypoints arising from each part of theresearch.


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Note on terminologyThroughout the report, the terms ‘tenant participation’ and ‘tenant involvement’ have bothbeen used when referring to the process of tenants having their say in the service theyreceive. This is because the two terms were used regularly by tenants and staff taking partin the research, and because ‘tenant involvement’ was sometimes understood by someparticipants to best describe the range of processes and methods of tenants having their say,which were identified during the research.

The term ‘tenant organisation’ is used throughout the report to describe constituted and/orrecognised tenants and residents associations, federations, forums or panels. Theseorganisations may also include members who are leaseholders, owner occupiers and otherresidents in the community.

In addition, throughout the report:

- the term ‘housing association’ is used rather than registered social landlord;

- the term ‘social landlord’ is used as a collective term for local authorities and housingassociations;

- the term ‘design’ is used to describe both the design of new build homes and estates andestate or property regeneration or improvement activities;

- the term ‘involved tenant’ is used to describe representatives of tenants organisations,who took part in the focus groups;

- the term ‘non-involved tenant’ is used to describe tenants not involved in tenantorganisations, who took part in the focus groups;

- the term ‘elected member’ is used to describe a local authority councillor;

- the term ‘board member’ is used to describe a member of a housing association board ofmanagement.


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2.1 IntroductionThis section of the report evaluates theresearch literature from England, Wales,Scotland and Northern Ireland on the costsand benefits of involving tenants in thedesign and management of their homes.The section is structured around a numberof key themes and issues which wereidentified by:

• reviewing recent studies carried out inEngland, Scotland and Wales to evaluatedifferent elements of tenantparticipation. The studies were identifiedby a literature search, with particularreference to research recentlycommissioned by governmentdepartments and the regulators inEngland, Scotland and Wales. For eachof the twelve studies identified, thescope and methods, main findings andmain recommendations were extracted.Common themes amongst the studieswere then identified which are set out insection 2.2;

• reviewing existing good practiceguidance on tenant participation. Goodpractice guidance from the twelvestudies was extracted. In addition,recent good practice publications fromthe Chartered Institute of Housing,Audit Commission, Community HousingTask Force and Housing Corporationwere reviewed. General and specificpoints of good practice guidance wereidentified under the common themesidentified from the findings of thestudies reviewed;

• outlining good practice examples andexamples of innovation from a variety ofsources including the studies and goodpractice guidance, the CharteredInstitute of Housing’s Good PracticeUnit, HouseMark and positive practiceidentified in Audit Commissioninspection reports. Examples wereidentified which exemplified thecommon themes as well as examples ofinnovation. Summaries of the examplesare included, where relevant, in section5 of the report.

A list of all studies and guidance referred toin this chapter is provided in thebibliography in Appendix 3.

2.2 Common themes from previousresearch 2.2.1 Although the range of studiesreviewed is diverse, it is possible to identifya number of common themes which aresummarised below.

Link between good performance andconsulting with/involving service users2.2.2 Two of the studies - An InterimEvaluation of Tenant ParticipationCompacts, published by ODPM in 2003and A Study of Methodologies forObtaining Customers Views of ServiceQuality, published by CommunitiesScotland in 2003 - found a clear linkbetween organisations which performedwell and had a strong performance culture,and the commitment to seek views fromservice users, and to use these views todetermine decisions and link tenantparticipation to improved service delivery.


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2. An Evaluation of Research Literature and Good Practice Guidance

Equalities2.2.3 The issue of the importance ofengaging with black and minority ethnicgroups and meeting their needs was raisedby six of the studies. Landlordsconsistently look for advice and examplesof how this can be done appropriately andeffectively. The Office of the Deputy PrimeMinister (ODPM) study which examinedthe involvement of black and minorityethnic communities and individuals in thestock options appraisal process, recognisedthat black and minority ethnic groups areone of many groups that are under-represented in tenant involvementactivities. (ODPM, 2004). Other groupsinclude young people, people living inscattered properties etc. Informal andproactive mechanisms to involve tenantsfrom under-represented groups need to beintegrated into wider participationprocesses.

Options for participation2.2.4 Five of the studies raised concern atthe emphasis on formal structures forparticipation and involvement, noting thatthis could exclude individuals and somegroups, and could result in a concentrationof decision making in the hands of a smallnumber of tenants. Formal structures arenot necessarily representative, even withthe safeguard of equal opportunitiesstatements, written constitutions etc, andtenant representatives do not alwaysformally represent the views of a range oftenants. The former Tai Cymru topic auditof tenant participation noted that a numberof housing associations found that theyneeded a flexible model for tenantparticipation that was able to cater fortenant preferences for both formal andinformal structures. (Tai Cymru, 1998).Five of the studies agreed that there is aneed for a clear and broad range of options

for participation which include andlegitimise informal networks andrelationships, and there are many goodexamples of such methods in practice.

2.2.5 The ODPM study examining theinvolvement of black and minority ethniccommunities and individuals in the stockoptions appraisal process, emphasised thatshort-term events which requirecommunication and consultation withtenants/residents, such as stock optionsappraisals, can be used as a springboard todevelop longer-term strategies andopportunities for effective tenantinvolvement, (ODPM, op cit).

Gathering and acting on users views2.2.6 Three of the studies, mostparticularly A Study of Methodologies forObtaining Customers Views of ServiceQuality, published by CommunitiesScotland in 2003, found that a range ofmethods are used to gather users’ views,but that the most appropriate method isnot always used. This research concludedthat the collection of consumers’ viewsneeds to be focussed on assessing prioritiesfor improvement. Customer Involvement:Opportunities for Learning from thePrivate Sector?, published by the HousingCorporation in 2002, found that housingorganisations could do more to gather andact on users’ views about the design ofproducts and services.

Resources for participation2.2.7 Most of the studies found widevariation in the amount of resources thatlandlords invested in communicating withtenants, and tenant participation. Therewere uncertainties about what constituteda reasonable amount of funding, wheremoney should come from (particularly inthe case of funding for resident


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participation), and assessing value formoney. Housing Corporation research ontenant participation, published in 2000,found that there was no apparentcorrelation between money spent and the‘success’ of tenant participation (HousingCorporation, 2000). However, recentCommunities Scotland research found aclear relationship between the amountspent on tenant participation, and itseffectiveness (Communities Scotland,2004). Count Us In!, published by theTenant Participation Advisory ServiceCymru and the Welsh Tenants Federationin 1998, found a correlation between theresources for participation and the numberof tenant organisations.

Integrating tenant participation 2.2.8 Three of the studies found thattenant participation was not beingeffectively integrated by organisations intoall of their activities and was viewed as a‘separate’ activity from the core work ofthe organisation. Specific examples were alack of clear links between participationprocesses and business planning (HousingCorporation, op cit) and strategic decisionmaking (Scottish Consumer Council, 2003),and a lack of training on tenantparticipation for housing association Boardmembers (Housing Corporation, op cit).

Measuring success2.2.9 Given the requirements of thenational frameworks for tenantparticipation in Wales, England andScotland, the success of tenantparticipation needs to be monitored andmeasured. Scottish Executive researchfound that this is the least well developedelement of tenant participation practice.(Communities Scotland, op cit). The interim

evaluation of the Innovation into Actionprogramme found that there is a role forself-evaluation of tenant participationactivity and individual projects, as well asfor external assessment of the degree ofsuccess achieved, (ODPM, 2003).

2.3 Existing good practice guidance2.3.1 There are a large number ofpublications which set out good practiceguidance on tenant participation andinvolvement, as well as broader guidanceon communicating with, and involving,users of services. Those referenced for thepurposes of this research are listed inAppendix 3.

Some of the guidance accessed as part ofthis project is in the form of suggestions ofwhat should be done by landlords, whileother guidance is more detailed, setting outabout how better practice can be achieved.Both types of guidance are usuallyaccompanied by examples of how theprinciples have been put into practice byindividual landlord organisations. Bothtypes of guidance are included within thescope of this section.

Specific points of good practice guidanceare summarised below, under the commonthemes identified from existing studies. Itwill be clear from these points that thelevel of detail of good practice guidance isvery varied. Guidance covers both somevery specific points which can be relativelyeasily translated into practical action byorganisations, and some very broad-ranging points which, unless linked withpractical examples of how the statementscan be achieved, may not be particularlyhelpful to tenants, officers, board membersor councillors.


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Link between good performance andconsulting with and involving serviceusers2.3.2 Specific guidance provided tolandlords includes advice to:

• involve tenants in service improvementthrough methods such as mysteryshopping, tenants’ juries, etc;

• implement good information systems sothat information is shared across andbetween organisations;

• provide commitment and culture forcommunicating with, and involving,service users;

• ensure that effective feedbackmechanisms about services are in placeand are used by all customers, thatservices are changed as a result offeedback, and monitor to see ifsatisfaction levels have improved as aresult of changes made.

Equalities2.3.3 Specific guidance provided tolandlords includes advice that:

• practical measures are needed tocommunicate and build capacity withBME tenants and groups, people withliteracy difficulties, physically isolatedtenants and all other groups;

• diversity must be achieved inrepresentative structures;

• a good tenant participation strategy will:

- recognise the diversity ofcommunities and the importance oftailoring involvement mechanisms tobe effective for each of them;

- actively try to engage all sections ofthe community.

Options for participation2.3.4 Specific guidance provided tolandlords includes advice to:

• carry out an audit of tenants so thatparticipation options can be providedthat meet different needs;

• encourage involvement at all levels;

• ensure that the tenant participationstrategy includes opportunities forcollective and individual involvementand is developed and reviewed with theactive involvement of tenants;

• take participation to the tenants ratherthan expecting them to come to theorganisation;

• provide practical approaches for tenants;

• tap into existing networks, groups, faithor community groups and their activitiesrather than creating new structures andactivities.

Gathering and acting on users views2.3.5 Specific guidance provided tolandlords includes advice to:

• carry out an audit of tenants and theirrequirements so that information can betailored to different groups/interests;

• use a database to log information suchas preferred methods of communication,diversity issues, offers to participate infuture consultation exercises etc;

• review current work practices alongsidethe introduction of customer


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involvement techniques so that issuesidentified by consultation can beaddressed;

• feedback what has happened toviews/comments and what has beendone as a result;

• acknowledge that one of the principlesof effective consultation andinvolvement is demonstrating realresults.

Resources for participation2.3.6 Specific guidance provided tolandlords includes advice to:

• provide support for tenantorganisations;

• identify training and support needs, andimplement plans to address them;

• budget realistically, including costs fortravel, telephone, meetings and training,child care and other care costs and lossof earnings.

Mainstreaming participation 2.3.7 Specific guidance provided tolandlords includes advice to:

• establish a commitment to tenantparticipation from staff;

• act on the basis that commitment andchange should be undertaken with theovert authority and support of seniormanagement;

• raise the profile of tenant participation,positioning it as something that affectsall of society;

• put in place an appropriate structure tosupport participation and provideappropriate support;

• ensure that tenant apathy is notmisinterpreted as tenant satisfaction;

• ensure that any staff dedicated to tenantparticipation are not isolated from themainstream business of the organisation;

• work on the basis that a good tenantparticipation strategy will:

- be linked to measures to bring aboutcultural change within theorganisation;

- involve consumers and staff at alllevels; and

- accept the need to let go to allowconsumers to set the agenda.

Measuring success2.3.8 Specific guidance provided tolandlords includes advice to:

• evaluate everything;

• learn from the experience of others;

• involve all stakeholders in identifyingwhat constitutes success and monitoringit;

• work on the basis that a good tenantparticipation strategy will:

- have achievable goals linked to atimescale; and

- include mechanisms for evaluationand review.


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Key points: evaluation of other studies and good practice guidance• Studies found a link between organisations which performed well, and commitment to

effective service user involvement.

• An ODPM study found that many groups and individuals are under-represented in tenantinvolvement activities, including black and minority ethnic groups.

• The studies agreed that there is a need for a broad range of options for participationwhich legitimise informal networks as well as formal structures.

• Most studies found wide variation in the amount of resources landlords invested in tenantparticipation.

• Studies in Wales, England and Scotland reached conflicting conclusions on whether therewas a correlation between money spent and effective participation.

• Some studies found that tenant participation was viewed as a ‘separate’ activity from thecore work of organisations.

• Scottish research found that monitoring and measuring participation is the least welldeveloped element of tenant participation practice.

3.1 Introduction3.1.1 This section sets out to examine andcompare the Welsh AssemblyGovernment’s framework for tenantparticipation in local authorities andhousing associations and the frameworks inforce in England, Scotland and NorthernIreland. The references for eachframework are listed in Appendix 4.

3.2 Frameworks for tenantinvolvement in the UK3.2.1 In England and Wales, tenantparticipation for secure tenants is enshrinedin Sections 104, 105 and 106 of theHousing Act 1985, which providesindividual tenants with the rights to:

• information about their tenancy terms,their landlords policies and proceduresfor allocating homes, their rights astenants, and their landlords repairingobligations;

• be consulted about changes in housingmanagement; and

• information about their landlordsarrangements for consulting tenants.

3.2.2 Guidance on tenant consultationproduced to support the Housing Act 1985in England and Wales, recognises thattenant representatives and tenant groupsneed to be able to play a full role inmaking decisions about the direction of thehousing service.

3.2.3 Tenants are also entitled to be giveninformation about how their landlord

manages their homes, under Section 167 ofthe Local Government Act 1989 andSection 130 of the Leasehold Reform,Housing and Urban Development Act1993.

3.2.4 Tenants can become involved in themanagement of their homes and estates ina range of ways through locally agreedprocesses. However, representative tenantorganisations have the statutory right totake over the management of their homesfrom local authorities, under the Right toManage provisions, provided that theymeet certain requirements and arecompetent to do so.

3.2.5 In 1999 the Office of the DeputyPrime Minister (ODPM) produced theNational Framework for TenantParticipation Compacts. This providesguidance to local authorities on thedevelopment of tenant compacts. Tenantcompacts are viewed by the Governmentas an integral part of their Best Valueregime. The core standards set out a broadframework for tenant participationcompacts but provide local authorities andtheir tenants enough flexibility to enablethe compacts they develop to be tailoredto meet local requirements. The guidanceproduced by the Welsh AssemblyGovernment in February 2000, TenantParticipation Compacts for LocalAuthorities in Wales, shares manysimilarities with that developed by theODPM.

3.2.6 The framework in both England andWales is based on the fact that tenant


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3. Comparative Analysis of the Tenant Participation Framework in Wales with those in England, Scotland and Northern Ireland

involvement in making decisions about themanagement of their homes, is somethingthat is entirely voluntary. This means thatlocal authority landlords in both Englandand Wales are free to develop processesand structures that have no regard to thecontent or the spirit of the guidance. Inaddition there are no statutory minimumstandards that social landlords must complywith, in terms of engaging tenantorganisations.

3.2.7 The framework governing tenantparticipation for secure tenants and for nonsecure tenants holding periodic assured andshorthold assured tenancies in housingassociations in Wales is set out in theRegulatory Requirements for RegisteredSocial Landlords in Wales. These wereintroduced prior to the Government ofWales Act 1998, and are currently in theprocess of being amended by the WelshAssembly Government. The proposed newRegulatory Code includes a fundamentalobligation for housing associations asfollows:

“Associations should provide readilyaccessible, clear and accurateinformation and advice for residents.Associations should be answerable toresidents for the quality of servicesprovided. Associations should ask for,listen to, and take account of the viewsof residents. Associations shouldencourage resident involvement.”Regulatory Requirements forRegistered Social Landlords in Wales(Tai Cymru, 1997)

3.2.8 Housing associations in Wales areexpected to take a strategic approach totenant involvement, produce a tenantparticipation strategy and develop tenantparticipation compacts on the basis of thesame guidance used by Welsh local

authorities. Additionally the tenantcompact framework introduced for localauthorities in February was extended toinclude housing associations, by a letterfrom the Welsh Assembly Government inFebruary 2000.

3.2.9 In Scotland the Scottish Parliamenthas legislated to enshrine tenantinvolvement in statute, through Chapter 3of Part 2 of the Housing (Scotland) Act2001. This statutory right came from thedevelopment of a National Strategy forTenant Participation, published in 1999.

3.2.10 Both local authorities and housingassociations in Scotland have a statutoryduty to engage with their tenants. Thepractical requirements placed on sociallandlords are as follows:

• Section 53 – requires local authoritiesand housing associations to have tenantparticipation strategies in place, asdirected by the Scottish Ministers. It alsoplaces a duty on them to maintain aregister of tenant organisations meetingcertain criteria. It enables the ScottishMinisters to make an order setting outthe criteria for registration or removalfrom the register and the procedures tobe followed in relation to registrationand removal.

• Section 54 – introduces a new provisionto enable both individual tenants andregistered tenant organisations to beconsulted by the landlord on issuesaffecting them, for the landlord to haveregard to representations by tenants ortenant organisations within a reasonabletimescale.

• Section 55 and 56 – sets outarrangements for a tenant managementco-operative to enter into an agreement


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with a local authority or housingassociation to manage the landlordshomes.

• Section 106 – sets out equalopportunities provision within the Actand how they must apply to tenantparticipation strategies developed bysocial landlords.

3.2.11 In Northern Ireland the frameworkfor tenant involvement is very different tothe other countries in the UK, partly as aconsequence of the fact that localauthorities do not own homes and theNorthern Ireland Housing Executive (NIHE)have a virtual monopoly position in termsof provision of social housing. The Housing(NI) Order 1983 placed a statutory duty onthe NIHE to consult with tenants onmatters affecting their tenancies, much likethe Housing Act 1985 in England andWales. However, from this point on theframeworks diverge dramatically.

3.2.12 The framework established inNorthern Ireland is known as the HousingCommunity Network, and has beendeveloped by the NIHE, the NorthernIreland Tenant Action Project (NITAP) andtenant/community representatives in theProvince. The Housing CommunityNetwork is a four tier communityinvolvement framework, details of whichare set out in 2.3.22. Whilst the Networkdoes not have the force of a statutory duty,it is being applied consistently across theNIHE housing stock.

3.3 Content of frameworks3.3.1 The format of the ODPMframework for tenant participation andinvolvement, and the guidance offered tolocal authorities on tenant compacts inEngland and Wales are very similar. The

guidance covers how tenant compactsshould be developed, puts forward a set ofcore standards, and recommends how thecompacts should be monitored.

3.3.2 Six of elements that make up thecore standards in both sets of guidance areeffectively the same, relating to:

• housing services;

• resources;

• meetings;

• information;

• tenant organisations; and

• monitoring and measuring performance.

3.3.3 The Welsh Assembly Governmenthas inserted an additional element in thecore standards for Wales. This additionalelement is called “Getting TenantsInvolved” and focuses mainly on formalstructures for tenant involvement. There isno similar element in the ODPM guidance.

3.3.4 In terms of the elements that relateto both sets of guidance, the majordifferences relate to the following:

• Housing services – the ODPM guidancecontains three additional componentsrelating to the areas that should beincluded in the tenant participationcompact. These are as follows: Shelteredhousing, equality policies and remedialaction to address poor performance.

• Resources – the ODPM guidancecontains an additional component withregard to resources for tenantinvolvement. This relates to the


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information made available to tenants.This enables them to ask for anyadditional information relating toresources, as long as it is available anddoes not breach confidentiality.

• Information – the ODPM guidancecontains three additional componentswith regard to the provision ofinformation to tenants. These relate tothe arrangements and requirements fordelegating housing management, thecouncil’s race equality and racialharassment policies, and the compactsthemselves.

• Tenant organisations – the ODPMguidance contains two additionalelements with regard to the criteria withwhich tenant organisations shouldcomply. These are procedures to makesure that information on the group ismade widely available to tenants andthat all tenants are encouraged tobecome more active, and the productionof regular newsletters or other writtencommunication with members.

3.3.5 In Scotland, the framework is farmore prescriptive than in Wales. All sociallandlords are required to produce a tenantparticipation strategy, and the ScottishExecutive publication, The Housing(Scotland) Act 2001: Guidance onTenant Participation, provides detailedguidance on the preparation of thestrategy, the process that landlords shouldfollow in developing strategy, howlandlords should obtain and take accountof the views of tenants, and the assessmentof resource requirements.

3.3.6 The introduction of RegisteredTenant Organisations is another major

difference between Scotland, and Walesand England. This initiative ensures that alltenant organisations are able to becomeregistered, if they wish, where they complywith the terms for registration. TheRegistered Tenant Organisation status oftenant organisations in Scotland ensuresthat the landlord not only recognises thembut is also required to consult with themand consider their views before reachingtheir final decision, thus ensuring theinvolvement of tenant organisations indecision making.

3.3.7 This compares with Wales andEngland, where tenant organisations maybe recognised by the landlord dependenton the criteria the landlord adopts.

3.3.8 The areas where landlords arerequired to consult with tenantorganisations in Scotland is more limitedthan the areas to which tenant compactsapply in Wales. Section 54(2)(a) of theHousing (Scotland) Act 2001 sets out theareas where a landlord must consult itstenants and Registered TenantOrganisations. These are as follows:

• The policy in relation to housingmanagement, repairs or maintenance,where the proposal, if implemented, islikely to significantly affect the tenant;

• The standard of service in relation tohousing management, repairs andmaintenance which it intends to provide;

• The tenant participation strategy; and

• A disposal which would result in achange of landlord or, if different, ofowner of the house which is the subjectof the tenancy.


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3.3.9 Whilst the areas on which Scottishsocial landlords must consult with theirtenants are more limited than the areasoutlined in the Assembly Governmentguidance, the Welsh guidance does nothave the status of statute.

3.3.10 In terms of the framework forparticipation in Northern Ireland, whilstvoluntary as in England and Wales, theframework has been consistently adoptedacross the Province and provides for a highlevel of tenant and resident participation, inhousing and other community issues. TheNorthern Ireland framework, known as theHousing Community Network, facilitatestenant involvement in the review anddevelopment of services through a pyramidstructure involving the following:

• 600 community groups;

• 36 District Housing Community Networkof consumer panels at district level;

• 5 Area Housing Community Network offive community advisory groups at arealevel; and

• a central community advisory group.

3.3.11 The following provides adescription of how the framework works:

• Local Community/Residents Groups

Both Local Community Groups and LocalResidents Groups raise locally identifiedissues with the Northern Ireland HousingExecutive and other agencies such as thelocal authority. Each Local CommunityGroup and Local Resident Group is invitedto select a representative on the DistrictHousing Network.

• The District Housing Network

The District Housing Network’s role is to:

• provide consumer feedback on theoverall quality of the housing services inthe district;

• monitor the performance of the NIHEagainst established performancestandards;

• seek ways of improving communicationwith consumers; and

• provide advice and support to new andestablished community groups.

Each District Housing Network is invited toselect a minimum of two representatives tosit on the Area Housing CommunityNetwork.

• The Area Housing CommunityNetwork

The Area Housing Community Network’srole is to:

• provide feedback on area wideprogrammes;

• act as a consultative reference groups onservices and service standards; and

• act as a sounding board of communitydevelopment and related issues.

Each Area Housing Community Network isinvited to provide 3 representatives to siton the Central Housing CommunityNetwork.


17

• The Central Housing CommunityNetwork

The Central Housing CommunityNetwork’s role is to:

• act as a customer panel for the NIHE byparticipating in policy working groups,and providing advice on tenantpublications and communications; and

• address areas of concern referred to itby the Area Housing CommunityNetworks.

3.3.12 This framework is supported by theNorthern Ireland Tenant Action Project,

which is funded specifically for thispurpose. The framework facilitates tenantinvolvement in not only community issuesbut also the development of policy at aProvince wide level. However, it must berecognised that the development of thisframework relates to the particularcircumstances in Northern Ireland, and theexistence of the NIHE, which is themonopoly social landlord in the Province,has been able to ensure consistency intenant involvement across NorthernIreland.


18

Key points: comparative analysis of tenant participation frameworks• Secure tenants in Wales and England have rights to receive information and be consulted

about changes to their conditions of tenancy.

• The framework for involving housing association tenants in Wales is set out in theRegulatory Requirements for RSLs.

• The frameworks in Wales and England are based on organisations involving tenants on avoluntary basis.

• The National Frameworks for Tenant Participation Compacts provide guidance to Englishand Welsh local authorities for developing compacts.

• Core standards for compacts in England and Wales are very similar, with an additionalelement in the Welsh standards called “Getting Tenants Involved”, which focuses onformal structures for tenant involvement.

• The Scottish Parliament has passed legislation which places a statutory duty on localauthorities and housing associations to engage with tenants.

• Scotland has introduced the Registered Tenant Organisations initiative, where all tenantorganisations can register if they comply with the terms. Registration provides tenantorganisations with the right to be consulted on a range of defined areas of landlordactivity.

• The areas on which landlords are required to consult with tenants in Scotland are morelimited than in Wales.


19

• Northern Ireland places a statutory duty on the Northern Ireland Housing Executive toconsult with tenants. The Executive have established a voluntary framework forcommunity involvement.

• The Northern Ireland framework, the Housing Community Network, provides for a higherlevel of participation in housing and community issues.


20

4.1 Introduction4.1.1 This section provides an analysis oftenant participation compacts in Wales, toevaluate their compliance with the WelshAssembly Government’s guidance on corestandards for tenant participation compactguidance. This section is supplemented bySection 5.7, which considers landlord andtenant perceptions of the positive andnegative aspects of tenant participationcompacts, together with ideas forimproving their use.

4.1.2 The evaluation focuses on the typesof compacts developed by Welsh sociallandlords, the process involved in theirdevelopment and the linkages betweencompacts and the Wales Programme forImprovement and Best Value. Theevaluation will establish the extent towhich social landlords in Wales complywith each of the seven core standardsdeveloped and published by the AssemblyGovernment in February 2000 entitledTenant Participation Compacts for LocalAuthorities in Wales. These standardswere extended to housing associations inFebruary 2001.

4.1.3 Each local authority and housingassociation landlord in Wales was asked toprovide a copy of their organisation’stenant participation compact for evaluationas part of the research. A total of 39tenant participation compacts werereceived. Of these, 14 compacts werereceived from local authority landlords and25 were received from housingassociations, representing an overallresponse rate of 64%.

4.1.4 Each of the tenant compactsreceived from social landlords in Wales wasthen assessed, in a desk-top exercise, to

establish the level of compliance of eachwith the seven cores standards contained inTenant Participation Compacts for LocalAuthorities in Wales, their type, theprocess involved in their development, andtheir stated linkages to the WalesProgramme for Improvement and BestValue. In terms of compliance with the corestandards, each tenant compact wasassumed to comply with the core standardsif the tenant participation compactexplicitly mentions any of the componentsof each of the core standards, in either thecompact itself or any supportinginformation provided by the landlord, suchas a tenant participation strategy. The levelof compliance for each of the seven corestandards is reported in detail below.

4.1.5 The findings are reported in relationto the two groups of social landlords, localuthorities and housing associations.Comparisons are made both with compactsdeveloped by similar social landlords, andbetween the two groups of sociallandlords. All figures provided in thissection relate to the 29 landlords whoprovided copies of their tenantparticipation compacts.

4.2 Types of Tenant ParticipationCompact in Wales4.2.1 13 of the 14 local authoritycompacts provided were single landlordagreements with tenants of all their stock.An exception to this was one compactwhich was developed jointly with the localauthority, a local housing association andan overarching tenants federation. Thiscompact sets minimum standards fortenant participation in the locality, but onlyinvolves one of the three housingassociations active in the area.


21

4. Evaluation of Tenant Participation Compacts in Wales

4.2.2 9 of the 14 local authority tenantparticipation compacts contained provisionfor, or commitment to, the development ofcompacts at a smaller geographical level,eg town, village and neighbourhood. 3local authorities returned examples ofneighbourhood compacts that they haddeveloped in partnership with tenants inspecific neighbourhoods.

4.2.3 23 of the housing associationlandlords had developed single landlordcompacts. Of these, 13 related to all of thelandlords’ tenants, 8 related to tenantparticipation structures, for example TenantConsultative Committees and TenantPanels, and 3 related to localtenant/resident groups.

4.2.4 3 housing association compactsdiffered significantly from the norm. Thefirst of these was the compact agreedbetween the housing association, council

and federation, discussed above. Thesecond was a compact jointly agreedbetween two housing associations with aresidents association made up of tenants ofboth landlords. This compact set outagreed minimum standards for participationin relation to the tenants of both landlordsin a specified area. The third compact thatdiffered from the norm was that of aspecialist association offering services tovulnerable women. This compact isbetween the association, and its tenantsand their children.

4.3 Development of TenantParticipation Compacts4.3.1 Local authority and housingassociation landlords were asked to explainhow they had developed their tenantparticipation compacts. Figure 1 showshow compacts were developed by the 39landlords who returned compacts.


22

Figure 1: How compacts were developed

How compact wasdeveloped

Local Authorities Housing Associations

In partnership with tenants 11 19

Landlord drafted andconsulted with tenants

0 1

By the landlord alone1 0

No explanation 2 5

4.3.2 It can be seen that the vast majorityof social landlords developed their tenantparticipation compacts in partnership withtenants. However one local authority didnot involve tenants when developing theircompact, and a significant number of sociallandlords did not answer this question.

4.4 Links to the Wales Programme forImprovement and/or Best Value4.4.1 The links that tenant participationcompacts have to the Wales Programmefor Improvement (WPI) and/or Best Value,were assessed by noting whether explicitmention of either WPI or Best Value was

made in the compact, and whether thecompact described how it fits with theorganisations approach to achieving best

value. Figure 2 shows how compacts linkto the Wales Programme for Improvementand/or Best Value.


23

Figure 2: How compacts links to the Wales Programme for Improvement and/or BestValue

Links Local Authorities Housing Associations

Explicit statement 3 10

Brief mention 2 4

No mention 9 11

4.4.2 The table shows that well over halfof local authorities, and approaching half ofhousing associations, make no mention intheir tenant participation compacts of howtenant participation links to the WalesProgramme for Improvement and/or BestValue.

4.5 Compliance with Welsh AssemblyGovernment Framework4.5.1 This section evaluates the level ofcompliance with the 7 core standards setout in the Welsh Assembly Government’sguidance Tenant Participation Compactsfor Local Authorities in Wales, whichwere extended to housing associations inFebruary 2001. The core standards are asfollows:

• Housing services;

• Resources;

• Meetings;

• Information;

• Getting tenants involved;

• Tenant organisations; and

• Monitoring and measuring performance.

The detailed content of each core standardis included in Appendix 4.

4.5.2 Each social landlord who providedtheir compact/s was scored against thenumber of components in each of theseven core standards that they explicitlymentioned in either the compact itself orany supporting information provided by thelandlord, such as a tenant participationstrategy.

Housing Services4.5.3 The first element of the corestandards relates to the areas of housingservices to which tenant participationcompacts should apply. Figure 3 showsthe level of compliance of the sample ofWelsh social landlords with the housingservices element of the core standards.

4.5.4 The tenant participation compacts of19 of the 39 social landlords complied withless than half of the components of thehousing services core standard.

Resources4.5.5 The second element of the WelshAssembly Government’s core standards is

the support offered by landlords to tenantsto enable them to participate. This ismeasured by the resources landlords offerto tenants. Figure 4 shows the level ofcompliance with the resources element ofthe core standards, amongst the sample ofWelsh social landlords.


24

Figure 3: Compliance with the housing services element of the core standards

0 2 4 6 8 10

13 - 16

9 - 12

5 - 8

1 - 4

17

0

Number of Social Landlords

Num

ber

of C

ompo

nent

Figure 4: Compliance with the resources element of the core standards

0 5 10 15 20 25 30 35

0


Num

ber

of C

ompo

nent

1 - 2

3 - 5

6

4.5.6 35 of the 39 Welsh social landlordscomplied with half or more of this elementof the core standard. 20 of the 25 housingassociations complied with at least 4 of the6 components of this element of thestandard, compared with 9 of the 14 localauthority landlords.

Meetings4.5.7 The third element of the WelshAssembly Government’s core standardsrelates to the conduct of meetings toensure effective communication betweenlandlord and tenants. Figure 5 shows thelevel of compliance amongst the sample ofWelsh social landlords in respect of themeetings element of the core standards.

4.5.8 Thirteen of the Welsh sociallandlords fully complied with all of thecomponents of this standard. However, 9social landlords included in the sample failto state the standards that they will adhereto in arranging and servicing publicmeetings with tenants.

Information4.5.9 The fourth element of the WelshAssembly Government’s core standardsrelates to the provision of information bylandlords to tenants to meet their needs, toenable them to reach informed views onthe issues and participate effectively indecision making. Figure 6 shows the levelof compliance amongst the sample ofWelsh social landlords in respect of theinformation element of the core standard.


25

Figure 5: Compliance with the meetings element of the core standards

0 2 4 6 8 10 12 14

0


Num

ber

of C

ompo

nent

1

2

3

4

5

Figure 6: Compliance with the information element of the core standards

0 2 4 6 8 10 12

11 - 12

9 - 10

7 - 8

5 - 6

3 - 4

1 - 2

0


Num

ber

of C

ompo

nent

s

4.5.10 15 of the 39 Welsh social landlordscomplied with at least half of thecomponents of the information element ofthe framework.

Getting Tenants Involved4.5.11 The fifth element of the WelshAssembly Governments core standardsrelates to the opportunities tenants areoffered to get involved in management andthe decision making process, throughformal and informal structures.

4.5.12 Figure 7 shows the level ofcompliance amongst the sample of Welshsocial landlords in respect of the getting

tenants involved element of the corestandard.


26

4.5.13 Only 9 Welsh social landlordscomplied with more than half of thecomponents of this element of thestandard. 11 housing association landlordsand 5 local authority landlords failed tocomply with any of the five components ofthis element of the core standards.

Tenant organisations – A Menu ofOptions4.5.14 The sixth element of the corestandards relates to the criteria that tenant

organisations should meet to be formallyrecognised by their landlord. Theframework recognises that tenants shouldhave the power to choose tenantinvolvement structures that best meetstheir needs.

4.5.15 Figure 8 shows the level ofcompliance amongst the sample of Welshsocial landlords in respect of the tenantorganisations element of the core standard.

Figure 7: Social landlords’ compliance with the getting tenants involved element of the core standards

0 5 10 15 20

0


Num

ber

of C

ompo

nent

1

2

3

4

5

Figure 8: Compliance with the tenant organisations element of the core standards

0 2 4 6 8 10 12 14 16

7 - 9

4 - 6

1 - 3

0


Num

ber

of C

ompo

nent

s

4.5.16 Seven local authorities and tenhousing associations achieved compliancewith at least half of the components of thiselement of the core standards. Fifteenhousing associations and four localauthorities in the sample do not have anypublicly available information on therecognition of tenant organisations.

Monitoring and Measuring Performance4.5.17 The seventh and final element ofthe Welsh Assembly Government’s corestandards for tenant participation compactsrelates to monitoring and measuringperformance. The framework aims toensure that tenant participation compactsare monitored and assessed consistently

and suggests areas where tenants andlandlords should review practice and somerelevant performance standards.

4.5.18 To assess compliance with thiselement, the number of landlords whomentioned measuring and monitoringperformance in their compacts, wereassessed to establish the extent ofcompliance with the components of thecore standard on an individual basis.

4.5.19 Figure 9 shows the level ofcompliance with the monitoring andmeasuring performance element of thecore standard amongst Welsh sociallandlords.


27

Figure 9: Compliance with the monitoring element of the core standards

0 5 10 15 20 25

None

Low

Moderate

High


Leve

l of

Com

plia

nce

4.5.20 Seven local authorities and 13housing associations either fail to mentionor make a non specific mention about

monitoring and measuring performance inrelation to their tenant participationcompact.


28

Key points: evaluation of tenant participation compacts• The majority of the compacts analysed were single landlord agreements with all tenants.

Some were local area compacts, others were neighbourhood agreements. One was ajoint compact between the local authority, a local housing association and a tenants’federation.

• The majority of the compacts analysed were developed through a partnership betweentenants and landlords.

• The majority of compacts did not have explicit links to the Wales Programme forImprovement and/or Best Value.

• 7 local authority and 11 housing association compacts complied with less than half of theWelsh Assembly Government core standards relating to housing services.

• The vast majority of compacts complied with the resources element of the core standards.

• 13 compacts fully complied with the meetings element of the core standards.

• 15 compacts complied with at least half of the information element of the core standards.

• Only 9 compacts complied with at least half of the getting tenants involved element ofthe core standards.

• 17 of the compacts complied with at least half of the tenant organisations element of thecore standards.

• 20 of the compacts either failed to mention or made a non specific mention aboutmonitoring and measuring performance.

5.1 Introduction5.1.1 This section assesses the level,quality and types of tenant involvement inthe design and management of socialhousing within Wales in order to produce acomprehensive baseline of activity, and tohighlight case study examples of wheretenant participation has positively andnegatively influenced housing managementand design.

5.1.2 The section draws on the followingelements of the research:

• The questionnaire survey;

• The telephone interviews;

• The focus groups with case studyorganisations; and

• The interviews with nationalorganisations.

Stakeholders’ views have been collatedunder the following main themes whichemerged during the research in this part ofthe project. These themes have been usedas a framework for presenting the findings:

• Stakeholders’ views of tenantinvolvement;

• How tenants are involved;

• Successful outcomes of tenantinvolvement;

• Problems with tenant involvement;

• Resources and training;

• Tenant participation compacts; and

• Ideas for improvement.

Within each of the above themes a numberof sub-themes have been identified, onceagain reflecting the issues raised byparticipants in the research.

5.1.3 The views of tenants, landlords andsupport providers expressed in this sectionare the views of the 78 tenantorganisations, 36 landlords and 5 supportproviders who completed thequestionnaires and of the 108 tenants and95 staff taking part in the focus groups andtelephone interviews.

5.2 Stakeholders’ views of tenantinvolvementAttitudes to tenant participation5.2.1 Staff, board members, localauthority members and tenants taking partin the telephone interviews were asked togive their opinion of attitudes of thedifferent stakeholders within theirorganisation to tenant participation. Figure10 shows the responses of stakeholders.


29

5. Findings of Questionnaire Survey, Case Study Focus Group Telephone Interviews and Interviews with National Organisations

5.2.2 Two representatives of nationalorganisations had the following commentsabout tenant participation:

‘It’s impossible to say that tenantparticipation is always positive – buttenants’ knowledge of their homes andcommunity is paramount to a widerange of issues, not just housing – anti-social behaviour, community safety,community participation’. (tenantofficer, national organisation)

‘Tenant participation is always positive,even though it can be painful – it’scrucial if you want to genuinely be alearning organisation’. (director, nationalorganisation)

Do tenants want a say?5.2.3 The majority of tenants in all thefocus groups said they did want a say inthe service they received, to be listened toand for their views to make a difference.

‘Tenants want to be listened to, make adifference.’ (Involved tenant)

‘Yes more than ever, (tenants are) moreaware now than before, get more

information….are reading stuff (fromthe landlord) more.’ (Involved tenant)

5.2.4 However some involved tenantswondered if the majority of tenants reallydid want to have a say:

‘Most just want to have their home, paythe rent and get on with theirlives….they’re not interested unlesssomething goes wrong.’ (Involvedtenant)

5.2.5 All non-involved tenants said thatthey did want a say in the service theyreceived.

‘Want to be heard, (for landlord to)acknowledge my comments.’ (Noninvolved tenant)

‘I would have liked a say when warden’sjob description was changed.’ (Noninvolved tenant)

‘Yes, (I would like a say) especially if Iget problems with other tenants orsupport.’ (Non involved tenant)


30

Figure 10: Stakeholders’ attitudes to tenant participation

0 5 10 15 20 25

Board/members

Senior staff

Front line staff

Involved tenants

Non-involved tenantsnegative

neutral

fairly positive

very positive

5.2.6 Most staff agreed that tenants wanta say, although a small minority of frontline staff said that tenants only want a sayif they have a complaint.

Do tenants have a say?5.2.7 Tenants and landlords completingthe questionnaire survey, perceived that

consultation and involvement took place ona wide range of issues, albeit to differingdegrees. Figure 11 shows stakeholders’perceptions of the types of issues in whichtenants are involved.


31

Figure 11: Stakeholders’ perceptions of the types of issues in which tenants are involved

0% 10% 20% 30% 40% 50% 60% 70% 80% 90% 100%

void management

rent settings

housing

rent arrears

customer care

producing tenant handbook

lettings

estate management

anti-social behaviour

planned maintenance

producing newsletter

day to day repairs

Tenant OrganisationHousing AssociationLocal Authority

Does tenant involvement make adifference?5.2.8 Figure 12 shows that there was asignificant difference between the general

perceptions of outcomes of participationbetween tenant organisations and landlordstaking part in the questionnaire survey.


32

Figure 12: Differences in perceptions of outcomes of tenant involvement

Does tenant involvement make a difference?

0% 20% 40% 60% 80% 100%

always positive

sometimes positive

don't know

no

Tenant Groups

Landlords

Supported Housing

5.2.9 Only 67% of tenant organisationssaid that tenant participation always orsometimes results in positive outcomes,compared with 94% of landlords and100% of support providers. Although nolandlord said there were never any positiveoutcomes, three authorities and oneassociation said that they did not knowwhether outcomes were positive.

5.2.10 The positive perceptions ofparticipation by the vast majority oflandlords and support providers contrastssignificantly with the views of the 33% ofthe tenant organisations who said that theydid not know, or thought that participationdid not have positive outcomes.

5.2.11 Tenants and landlords wereconsistent in their perceptions of the areasof the service where tenant involvementhas the most positive outcomes.

The top six rating areas identified bylandlords in priority order were:

• repairs;

• producing newsletters;

• planned maintenance;

• anti-social behaviour;

• lettings; and

• tenants handbooks.

The top five rating areas identified bytenant organisations in priority order were:

• newsletters;

• handbooks;

• day to day repairs;

• anti-social behaviour; and

• planned maintenance

5.2.12 Housing association responsesindicated that they were consistently morelikely than local authorities to involvetenants in each of the 12 areas specificallymentioned in the questionnaire. Forexample, 95% of housing associations,compared to 64% of local authorities, saidthey involved tenants in day to day repairs,while 55% of housing associations,compared to 14% of local authorities saidthey involved tenants in rent arrears,policies and procedures.

5.2.13 Participants in the focus groups andthe telephone interviews were askedwhether tenant participation makes anydifference to how things are done in theorganisation.

5.2.14 Involved tenants held dividedopinions on whether their input did make adifference. Three groups were positive:

‘Everything we put forward is acted on.’(Involved tenant)

‘The council are upfront and accept (us)as a strong group.’ (Involved tenant)

5.2.15 Tenants in the other three groupssaid that generally their input did not makeany difference, that they receivedinformation and discussed it, but that theirviews were not acted upon.

‘(Our involvement) makes no difference.We understand more but aren’tinfluencing housing management.’(Involved tenant)

‘We get information after the decisionhas been made. They listen, but wemake no difference.’ (Involved tenant)

5.2.16 None of the focus groups of non-involved tenants said that they had aninfluence on what happened in theorganisation.

5.2.17 Nearly all staff in all organisationsgave a very positive response, saying thattenant participation did make a differenceto how their organisation did things:

‘It makes a total difference. We knowwe’re going to have a successful projectas tenants say up front what they want.’(Senior manager)

‘Resident involvement underpinseverything we do – it is an integral partof all our activities. Residents are valuedand respected and we could not achievewhat we have without their activeinvolvement.’ (Support provider)

Terminology5.2.18 A significant number of participantsin the focus groups, in particular front linestaff, understood the term “tenantparticipation” to describe only involvementby tenants in formal groups, for exampletenants and residents associations, panels,forums and federations. When asked todescribe other ways that tenants of theorganisation had their say about the servicethey receive, staff were able to describe arange of other methods in which theyobtained tenant views on the service,which they had not previously consideredto be valid tenant participation.

‘I wish we could get rid of the term‘tenant participation’ – it should be‘customer involvement’.’ (Front linestaff)

‘Has the term ‘tenant participation’ hadits day?’ (Tenant participation worker)


33

5.3 How tenants are involvedInvolvement through groups and formalstructures5.3.1 Landlords completing thequestionnaire survey worked with a total of311 local tenant organisations.

5.3.2 According to landlord respondents,local authorities had nearly twice as manytenants’ organisations as did housingassociations, a total of 188 local authoritygroups, compared with 123 housingassociation groups. This reflects the fact

that authorities have on average threetimes the stock of housing associations.35% of local authority tenants lived inareas covered by local tenant groupscompared to 18% of housing associationtenants, reflecting differences in stockprofiles, with local authority stock morelikely to be concentrated on estates.

5.3.3 Local authority groups representedon average, two and a half times as manytenants as housing association groups asshown in Figure 13.


34

Key points: stakeholders’ views of tenant involvement• The vast majority of board members, staff and involved tenants were positive about

tenant participation.

• The majority of non involved tenants were neutral or negative about tenant participation.

• The majority of all tenants said they do want a say in the service they receive, to belistened to and for their views to make a difference.

• Most staff agreed that tenants want a say.

• Tenants and landlords both identified a wide range of issues that tenants were consultedon and involved in.

• A third of all tenant organisations completing the questionnaire, and half the focus groupsof involved tenants said they did not know or thought that their involvement made nodifference.

• The vast majority of landlords completing the questionnaire and staff taking part in thefocus groups said that involvement always or sometimes resulted in positive outcomes.

• Tenants and landlords agreed on the areas of the service where tenant involvement hasmost positive outcomes.

• Some staff understood the term ‘tenant participation’ to describe only tenant involvementthrough formal tenant organisations.

5.3.4 All local authorities and 85% ofhousing associations surveyed had alandlord-wide tenants’ forum or federation.

Figure 14 shows the make up of membersof forums or federations.


35

Figure 13: Number of tenants represented by tenant organisations

Landlord No of LocalTenant

Organisations

No of TenantsRepresented

Average perGroup

% of Stock forwhich there are

TenantOrganisations

Local authority 188 37,035 196 35%

Housingassociation

123 9,116 74 18%

Figure 14: Make up of members of forums or federations

Landlord % with Repsfrom Local

Groups

% withIndividualVolunteers

% with TenantsElected at AGM

Other

Local authority 50% 29% 14% 7%

Housingassociation

30% 60% 10% 0%

5.3.5 71% of tenant groups said that theywere members of their federation or forum.43% of authorities, 55% of housingassociations and 42% of tenant groups saidthat individual tenant organisations weremembers of multi tenure federations. Halfof local authority wide bodies were basedon representatives from local groups.Housing Associations were twice as likelyto base their landlord wide body onindividual representatives (60%) than localgroups (30%). 50% of housingassociations said that their tenants werepart of a multi landlord umbrella group,compared with 43% of local authorities.

5.3.6 Both tenants and landlordsexpressed some concern about therepresentativeness of local groups. One

national tenant organisation representativefelt that more needed to be done tomonitor and evaluate the effectiveness ofgroups.

5.3.7 One national landlord organisationrepresentative thought that more formalways of engaging the public were beingovertaken by alternative methods. This wasbeing exacerbated by concerns that sometenant groups were unrepresentative of theoverall communities they serve. This issuewas also identified by a significant numberof landlords and tenants, as set out inSection 5.5.

5.3.8 All but one of the organisationstaking part in the focus groups, haddeveloped formal structures for tenants to

participate with the organisation. Theseincluded:

• open panels or forums where all tenantsare able to attend and give their views.These are also attended by senior staffof the organisation who fed the viewsback to the organisation;

• overarching federations comprising ofnominated representatives from localtenants and residents federations. Thefederations meet with senior staff of theorganisation, receive information andgive views on proposed changes topolicy and procedure, and discuss issuesof common concern to all theorganisation’s tenants;

• local tenants and residents associationsopen to those living in a specific area,

and which deal with local issues,meeting when necessary with localhousing officers and other relevant staff;

• other groups, including two shelteredhousing forums, a group for tenantsunder 35 and their children, and countyforums of representatives from tenantsand residents groups in a specific area.

Involvement through offering a menu ofoptions5.3.9 The questionnaire survey found thata wide variety of means, in addition totraditional tenant organisations, were beingused to involve tenants in the service.Figure 15 shows the range of methodsidentified by landlords and tenantorganisations.


36

Figure 15: Range of methods of tenant involvement

0% 10% 20% 30% 40% 50% 60% 70% 80% 90%

working parties/task groups

Tenant Group

Housing Association

Local Authority

regular surveys

one-off questionnaires

public meetings

producing newsletters

part of social activities

review days/events

one-off focus groups

5.3.10 The most common method ofinvolvement identified was through localtenant organisations, perhaps reflecting thefact that the questionnaire was sent out totenant organisations. However, manylandlords also identified alternative meansof involving tenants that did not involvetenant organisations. For example, whilst 4in 5 landlords used working parties andtask and finish groups, only 1 in 5 tenantgroups were involved in these, although aselective nature of the activity may partlyexplain this.

5.3.11 Concern was expressed by tenantactivists taking part in the research, thatalternative means of involving tenantsthrough techniques such as focus groups,undermine the role of local tenantorganisations

‘Focus groups are very much thelandlord’s agenda’. (tenantrepresentative, national organisation)

5.3.12 The highest scoring methods (thosescoring around 80% or more) favoured bylandlords contained a mix of formalstructures through local groups,federations, questionnaires and publicmeetings; and a range of other methods ofinvolvement including task and finishgroups and focus groups. Three landlordsoffered payments to tenants for attendanceat focus groups.

5.3.13 100% of supported housingorganisations carried out regularsatisfaction surveys, the highest scoringactivity for any group. A number of othermeans of involvement were identified:

• Best value reviews;

• Tenant members of boards andcommittees;

• Tenants conference;

• Key tenant scheme;

• Tenants on recruitment panels;

• Citizens panels; and

• Set meetings with senior officers

5.3.14 Several of the organisations takingpart in the focus groups and telephoneinterviews gave examples of successfullyinvolving tenants who did not take part intenant organisations, by offering a range ofoptions for tenants to get involved:

‘We are trying to sever links with thetheory that you have to go to endlessmeetings to become involved. All ourgroups allow participation on a ‘dippingin’ basis – they are issue specific, areaspecific.” (Senior manager)


37


38

Example of positive practice

Providing a range of options for tenant involvement

Cadwyn Housing Association provides a range of formal and informal opportunities fortenants to get involved in the organisation.

‘We are finding different ways for people to feel comfortable to express theirviews…25% of tenants (250) have been involved over the last 12 months on differentissues...the fact that we have increasing numbers of people involved shows that having avariety of ways to get involved is working…’

TACT (Tenants and Cadwyn Together) is an open forum which all Cadwyn tenants canattend. TACT meets 8 times a year, has its own terms of reference, and meetings arechaired alternatively by tenants and officers. TACT holds social events, has talks anddiscussions on different areas of the service, and issues raised are fed to the board ofmanagement via the Director of Housing.

Chips and Chat is a group open to all young people and families between the ages of 16and 35. It meets every two months, has developed its own rules, and holds social events formembers and their children three times a year, in addition to their normal meetings.

The Tenants Panel is open to all tenants and holds regular meetings to discuss policies andprocedures.

The BME Group is open to all black and minority ethnic tenants and has collectedinformation on the profile of Cadwyn's tenants, and is currently discussing in what and howit wishes to get involved.

Tenants with disabilities have opted to have their say in other ways than attending meetings.The association is working to develop the most convenient ways for them.

In addition to these groups, tenants have the opportunity to get involved through:

- local tenants associations;- a tenants’ editorial team which produces the newsletter;- task and finish groups and workshops on specific topics;- compact meetings to monitor and review the compact;- a contractor group which comprises tenants and staff from 3 housing associations who

choose contractors;- developing a new handbook;- fun days, where tenants can also give staff their views and priorities;- satisfaction questionnaires which are sent to all those who have a repair done, with

incentive prize draws to encourage them to be returned;- becoming a shareholder or board member. Currently three tenants become board

members by being elected by all tenants in a ballot.


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Providing a range of options for tenant involvement

Rhondda Housing Association provides a range of options for tenant involvement throughformal and informal structures. There are a number of local tenants’ associations, and anoverarching tenants forum which is elected at a combined AGM and social event once ayear. The forum works closely with both housing and community development staff and cannominate its members for board positions. There are seven sub-groups of the forum whichmembers can join according to their interest:

The social committee – raises money for Forum activities by holding social events for alltenants.

Rhondda Housing Association Disability Action Group - tenants with disabilities who provideinformation and support to tenants with disabilities and their families, hold social events andorganise trips.

Youth Forum – supported by the Association’s Community Development Department tocarry out projects, hold social events and give their views as part of the process.

Crime and Disorder sub group – works with staff on a Best Value review of crime anddisorder, and assists with developing a neighbour nuisance policy and procedure.

Maintenance Forum – tenants and staff discuss day to day and planned maintenance issues.

Policy and Procedure panel - meets with the Director of Housing to develop housingmanagement policies and procedures.

Best Value panel - works with the Corporate Services Manager on forthcoming Best Valuereviews.

Rhondda Housing Association Time Exchange project - carrying out a feasibility study to setup a pilot Time Exchange Scheme with Rhondda Housing Association tenants.

In addition, tenants can become involved in the association through its communitydevelopment activities which include:

- toy and book library promoting positive parenting and early learning;- after school and holiday play schemes;- lifelong learning opportunities, including IT and first aid;- healthy living projects – stress management and alternative therapies;- arts and music projects;- community gardens and environmental improvements;- improving play and recreational facilities; and- intergenerational projects.

Involving young people and black andminority ethnic tenants5.3.15 The results of the questionnairesurvey identified a range of activitieslandlords are undertaking to encourage theinvolvement of specific groups:

• Young people

A total of 8 landlords had specific initiativesaimed at engaging young people. Theseincluded:

- youth meetings (2 landlords);- initiatives under Communities First;

- Kid Zone website;- Blue Light disco, in partnership with

the police;- away day for young people;- community fun day; and- involving young people in planning a

skateboard park.

One supported housing organisationinvolved mothers and their children ininterviewing and appointing supportworkers.


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Involving young people

The Oldford Youth Power Group is a youth group driven by young people on a mid Walesestate. The group carry out a range of activities aimed at, and with the participation of,young residents. They are working to improve facilities for all age groups, ranging fromsetting up a playgroup for toddlers through to getting proper facilities for teenagers.

Among the group’s achievements are:

- setting up a drama group and staging the Wizard of Oz as a Christmas communitypantomime, which was recorded on video and widely circulated on the estate;

- campaigning for better amenities for young people, and organising fundraising events tosupport this – a recent bingo night raised £100 for the group’s play park project; and

- creating a float for the 2004 Oldford Carnival and winning first prize as the Wizard ofOldford.

The group has recently obtained a grant from Communities First to develop the dramagroup, and members are currently writing the script for their next Christmas pantomime,The Babes in the Wood.

• Black and minority ethnic tenants

Seven landlords mentioned that they wereusing the development of their BMEHousing Strategies to engage with blackand minority ethnic tenants. Other specificinitiatives included using ‘alternative’media, the Social Housing ManagementGrant funded ‘Making Voices Heard’project and the Zebra League.

Two landlords had successfully accessedSocial Housing Management Grant fundingto engage under-represented groups. Onelandlord had cited Tenant EmpowermentGrant funding to support work in this area.

5.3.16 Staff from several organisationstaking part in the focus groups andtelephone interviews identified the need to

explore a range of ways of involving youngpeople and BME tenants.

‘Young people don’t buy the tenantparticipation label, we can’t find youngpeople to get involved. We need to beflexible about how people can getinvolved.’ (Front line staff)

‘If they (young people) are writtenletters there is no response. If we goand talk to them, ask them for help, weget loads of volunteers.’ (Young peopleworker)

‘We wanted to set up a meeting toconsult them (BME tenants). They said‘what for, we’ve got a life, families andkids, are exhausted.’ (BME worker).


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Involving black and minority ethnic tenants

Gwalia Housing Group, in partnership with Dewi Sant, Family and Swansea HousingAssociations, the City and County of Swansea, Mewn Cymru and the Swansea Bay RacialEquality Council, is undertaking the ‘Making Voices Heard’ project to improve consultationwith BME tenants and applicants to gather their views on existing services and their prioritiesfor future service delivery. The project aims to engage with both BME individuals and BMEgroups, asylum seekers and people who may not be aware of the services offered by sociallandlords, to find out what people think is good about the area, the reasons why peoplemight want to move on, and identify gaps in service provision. The project is due to becompleted in 2005.

Involving tenants as part of social events5.3.17 Several organisations taking part inthe focus groups, said that they involvedtenants who would not normally attendmeetings through holding social events andgathering tenants’ views informally.

Individual involvement5.3.18 The majority of non-involvedtenants, and all the tenants with supportneeds, taking part in the focus groups, said

that they prefer to have their sayindividually rather than in groups.

‘Prefer to talk one to one.’ (Noninvolved tenant)

‘Yes (I want to have a say), wantsomeone to visit us, not us have to goto them.’ (Non involved tenant)


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Involving black and minority ethnic tenants

The London Borough of Southwark has put a number of measures in place to try and ensurethat BME tenants and residents are able to put forward their views and influence theCouncil’s decision making. These include:

- working with the Black and Minority Ethnic Tenants and Residents Organisation(SBMETRO) to encourage higher levels of participation from BME people;

- including SBMETRO representatives on Housing Neighbourhood Forums and the boroughwide Tenant Council;

- including membership clauses in Housing Neighbourhood Forums and the Tenant Councilto give places to under-represented sections of the community;

- requiring that all tenants and residents associations adopt a standard constitution thatreflects the Commission for Racial Equality’s recommendations on good practice;

- having a procedure which sets out action to be taken if there are racist incidents withintenants and residents associations;

- including in the Borough’s tenant participation compact action points to increase therepresentativeness of consultation mechanisms by encouraging the involvement of youngpeople, disabled people and those from BME groups.

5.3.19 Non involved tenants identified arange of preferences for having their say,most of which involve individualinvolvement. Some of these included:

• a phone line for questions;

• a complaints surgery;

• a suggestion box;

• a play bus on estate so young mums canspeak to people there;

• telling support staff or sheltered housingwarden if anything is wrong;

• talking one to one with staff. Have staffvisit tenants at home;

• filling in satisfaction slips;

• telling support staff, warden or tenantparticipation officer if tenants needanything sorted out; and

• exit surveys from properties.


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Involving tenants individually

Charter Housing Association staff carried out some focused doorstep interviews withtenants, using methodology similar to that employed by Priority Research. Tenants wereasked one question - ‘How could Charter be a better landlord?’.

The responses were collated into themes. The themes formed the basis of the questions inthe questionnaire sent out to all tenants. The questions were asked in the form of twostatements for each question, with people asked to indicate which statement they preferredor agreed with.

From the results of the questionnaire the organisation drew up a list of tenants’ top tenpriorities, and these were used as a driver for the service.

“The questionnaire captured the whole tenants’ voice, what they really wanted, in a way wefelt we couldn’t get through individual tenants and residents associations and the tenantsconsultative committee.” Senior Staff, Charter Housing Association

5.4 Successful outcomes of tenantinvolvementHousing management5.4.1 Specific service improvementsidentified by tenants taking part in thequestionnaire survey included a significantnumber of positive outcomes that were nothousing based, but rather related to widercommunity issues. Service improvementsidentified by tenants’ organisationsincluded:

• repairs and maintenance (4 groups);

• major improvements (3 groups);

• anti-social behaviour (2 groups);

• improved health and safety (2 groups);

• lettings (2 groups);

• best value (2 groups);

• estate design;

• estate management; and

• introduction of Gold Service

5.4.2 Landlords were able to giveexamples of a range of mainly generaloutcomes with the majority being processbased activities including:

• input into best value reviews (3landlords);

• minor works / repairs (3 landlords,including a repairs task and finishgroup);

• major works;


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Key points: How tenants are involved• 35% of local authority tenants lived in areas covered by local tenant organisations,

compared to 18% of housing association tenants.

• All local authorities and 85% of housing associations had a landlord-wide tenants’ forumor federation.

• Many landlords identified means of involving tenants other than through tenantorganisations by offering a range of options for involvement.

• Tenant activists expressed concern that using alternative means of involving tenantsundermined the role of tenant organisations.

• All supported housing organisations carried out regular satisfaction surveys with serviceusers.

• Tenants and landlords expressed concerns about the representativeness of local groups.

• Landlords were undertaking activities to encourage the involvement of specific groupssuch as young people, BME tenants and tenants with support needs.

• Some landlords involved tenants who would not normally attend meetings by gatheringtheir views at social events.

• The majority of non-involved tenants said they preferred to have their say individuallyrather than in groups.

• joint estate inspections;

• tenant insurance scheme;

• rent ‘swipe card’;

• establishing 8 local resource centres;

• improved services;

• better targeting of resources;

• increased awareness of customer needs;

• tackling anti social behaviour; and

• prioritising maintenance andimprovement programmes.

5.4.3 Four out of five supported housingorganisations involved tenants in theirrepairs service. Two supported housingorganisations mentioned feedback onservices as significant positives arising frominvolvement.

5.4.5 Tenants and staff taking part in thefocus groups and telephone interviewsidentified a wide range of specific examplesof successful outcomes to tenantinvolvement in housing management, asfollows:

Policies and procedures• Developing or revising:

- tenant participation compacts and maintenance compacts;

- anti-social behaviour policies;

- local lettings and allocations policies;

- standards for voids;

- tenancy agreements.

• One landlord altered its lettings policy togive priority to existing shelteredhousing tenants to enable them totransfer to vacancies in shelteredhousing schemes.

Surveys and information• Sending a welcome letter to all new

tenants which includes information onlocal services, e.g. which day the binsare collected. This was done at therequest of tenant organisations.

• Housing officers contacting new tenants3 months after they move in. Thisprovides useful information andfeedback from tenants on how theywere treated at letting stage.

• Landlord holds an exit poll with tenantsleaving their tenancy. This has a 25%response rate.

Estate improvements• Landlord consulted tenants on where

CCTV cameras should be placed.

• Landlord replaced communal refuse binsand bin areas with individual lockablebin stores at the tenants’ request.

• Local housing manager has an estateimprovement budget for added valueitems in each area. Housing officersgather tenant comments and ideasthroughout the year about what thebudget should be spent on.

• Landlord works with tenants to identifyplanned and cyclical maintenancepriorities, and develop standards andagreements.


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New initiatives• A tenant organisation was consulted

about introducing a new provider ofelectricity and gas for all voids.

• A landlord introduced a tenant incentivescheme in response to tenants’ views

that the landlord was spending toomuch time on problem tenants andignoring the ‘good’ ones.

Best Value• Landlords involve tenants in Best Value

reviews.


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Tenant and resident involvement in a community lettings scheme

Caerphilly County Borough Council tenants and residents took a leading role in thedevelopment of pilot community lettings schemes on two estates with small waiting lists andhigh turnover – Trinant and Graig y Rhacca.

Tenants and residents took part in two groups which:

- helped to develop the policies and procedures for community lettings;- researched and developed welcome packs for their area;- took part in training sessions; and - encouraged new residents to get involved in community activities.

Representatives of the groups were involved, alongside staff, in informal welcome meetingswith prospective tenants. These provided prospective tenants with information about localfacilities, amenities and activities, gave them a chance to ask questions, and enabled existingtenants and residents to show them around the area. Community lettings also involvedawarding additional points to applicants where appropriate, for connection with the localarea, being in employment, full-time education or training, or undertaking voluntary work.

The community lettings initiative has had benefits for both applicants, local residents and theCouncil:

- Waiting lists have increased;- Refusals and turnover have reduced;- Better relationships have been established with local residents and housing staff;- The process has given applicants the opportunity to make an informed choice about a key

decision – their future home.

Community and Environment5.4.6 With the exception of aNeighbourhood Watch scheme mentionedby one association, landlords taking part inthe questionnaire survey did not specificallymention community improvements arisingfrom tenant involvement. In contrast,tenant groups identified a list ofcommunity improvements that were theresult of their involvement. This included:

• transport and highways includingimproved street lighting (2 groups);

• car parking (2 groups);

• traffic lights;

• crossing keeper;

• safe routes to school;

• traffic control and double yellow lines;

• community facilities including play areas(2 groups);

• community house;

• benches;

• tree planting; and

• community garden.

5.4.7 Tenants also mentioned specificwork their groups had undertaken inpartnership with other organisations,including the police and other councildepartments.

5.4.8 A tenant representative from one ofthe national organisations taking part in theresearch thought that tenant participationhad a very important role in addressingcommunity safety issues:

‘From day one tenant participation wasabout more than housing management– you can’t disconnect the houses fromother issues like poverty. CommunitiesFirst wouldn’t have happened without


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Consultation over changing services supplier

Rhondda Cynon Taf County Borough Council is entering into an agreement with ScottishPower to become the preferred gas and electricity supplier, initially for void properties. Thebenefits are that the supplier will guarantee that tenants are charged a competitive rate, themeters will be in place and the supply already on when tenants first move in, therebyreducing the delays experienced with tenants moving into properties. The local authority willreceive commission on expenditure from Scottish Power, which it will then use to fundenergy efficiency schemes back into the housing stock.

Scottish Power did a presentation on the scheme to the Rhondda Cynon Taf Tenants andResidents Federation Executive at which senior managers of the Council were also present toanswer any questions. The Federation Executive subsequently invited Scottish Power toattend an open meeting of the Federation’s members to present the scheme and gathertenants’ views. After discussion, tenants were agreeable to the Council pursuing thescheme, and the Federation has confirmed its support for the initiative.

tenant participation. (Tenantrepresentative, national organisation)

5.4.9 Tenants and staff taking part in thefocus groups and telephone interviews,identified a number of practical examplesof where tenant involvement has hadsuccessful outcomes in the areas ofcommunity and environment:

• A tenant organisation requested that theassociation put up signs next to the playarea to show that the traffic isdangerous;

• A fun day was funded by landlord inpartnership with a tenants and residentsassociation;

• A landlord removed a shrubbery whentenants said they could not get to theirwindows to clean them. A paved areaand seat were provided instead;

• Tenants were consulted over where toput external lights and whether to havethem on timed or sensors;

• A landlord consulted tenants on whereto put benches on an estate, and wheretraffic calming bumps and signs shouldgo;

• Gardens were enclosed on one estateafter complaints from residents aboutdogs and children;

• Tenants were asked for their views onthe use of open space when 4 garageswere demolished. They decided tomake a skateboard park;

• A tenants and residents association sentout a survey to youngsters on whatfacilities they would like. As a result thecouncil are going to provide askateboard park and ‘kick about’ area.


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Community and estate regeneration

Fernhill Residents Association set out to find out residents’ priorities for the area bycanvassing all residents through house visits, public meetings and regular newsletters. Theyalso used local media extensively through providing regular information in the communitynotes section of the local paper.

Successful outcomes have included:

- setting up and running a fully equipped community office;- establishing seven separately constituted committees to represent all social,

environmental, recreational and functional activities on the estate;- holding regular surgeries with housing officers, voluntary organisations, the police, local

schools and national and local politicians;- establishing a strategy group, now under the Communities First banner, to co-ordinate

the work of all estate committees with that of the Local Authority, South Wales Police, National Health Service, Drug Support, Crime Reduction, Community Safety, local youth facilities, Groundwork Trust, Princes Trust and Interlink;


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- providing a children’s playground, a floodlit sports pitch, a polytunnel garden centre and an evolving community garden and entertainments area;

- under Communities First, drawing up a long term business plan for sustainable development;

- participating in a Community Audit and training local residents to carry out the work; and- facilitating consultation on major redevelopment of the estate including selective

demolition, renewing walls, gates and fencing, introducing traffic calming, bus shelters, street lighting, CCTV and introduction of police and neighbourhood wardens.



Pengwern Residents Association has played a major role in building a strong communityspirit on this Denbighshire estate through a series of projects, including developing a playarea, an internet site, and managing and running a resource centre.

The association’s achievements include:

- raising £50 000 to upgrade a rundown play area, the design of which was based on the ideas of children at the local primary school;

- setting up an internet site to provide general information about the association and its activities;

- getting speed humps installed at 8 locations on the estate;- organising a wide range of social activities including bingo and coffee mornings; and- holding regular estate surgeries on benefits, rents, repairs and lettings getting

environmental improvements including park benches, litter bins and a community Christmas tree.

Strategic level 5.4.10 Landlords taking part in thequestionnaire survey provided a number ofexamples of where tenant involvement hadhelped shape policies, including:

• anti social behaviour (2 landlords);

• estate / neighbourhood management;

• community involvement strategy;

• introductory tenancies;

• utilising tenants’ expertise as a ‘soundingboard’ for policy changes.

5.4.11 Tenant organisations identified thefollowing examples of influencing policies:

• allocations (3 groups);

• rent collection;

• tenant compacts (2 groups);

• establishing housing policy reviewforum.

5.4.12 In relation to other strategic issues,landlords specifically mentioned tenants onboards of management (2 landlords) andstaff selection panels. Supported housingorganisations mentioned tenant board andsub committee membership and involvingtenants in staff interviews. Oneorganisation involved tenants in its annualreview of strategic objectives.

5.4.13 Tenant groups were able to evidencestrategic involvement in a number of waysincluding:

• making investment decisions based onresident priorities (3 groups);

• stock transfer;

• access to senior councillors;


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In 2000, Fir Tree Drive Residents Association was reconstituted, after 8 years of inactivity, inresponse to concerns by residents about their housing service.

Following a feasibility study the association accessed funding for two portakabins in anabandoned car park and transformed them into a community Resource Centre. They noworganise a number activities including:

- youth clubs for children and young people, 4 nights a week;- Easter, Halloween and Christmas parties;- surgeries with housing and maintenance officers and the local MP;- an information drop-in day for the local college;- working with the landlord on a sensitive lettings policy; and- building active links with the local Communities First Partnership, Care and Repair, Youth

Access Team, Community Education and Crime Prevention Panel.

• tenant membership of boards /committees (2 groups); and

• sitting on staff interview panels.

5.4.14 Landlords also mentioned thatinvolvement had resulted in a positiveimpact on the process of participation itselfand in particular had led to:

• increased number of tenant groups;

• more formal ways of involving tenants;

• tenant participation compacts; and

• a tenants conference.


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Figure 16: Summary of strategic level outcomes of tenant involvement

0% 10% 20% 30% 40% 50% 60% 70% 80% 90% 100%

setting/reviewingperformance targets

business planning

setting/reviewingpolicy

best value/WPI

tenants onboards/committees

Tenant Group

Housing Association

Local Authority

5.4.15 Figure 16 sets out the summary ofthe strategic level outcomes most oftenmentioned.

5.4.16 The table shows that housingassociations consistently reported greaterdegrees of involvement than localauthorities. This was particularly evident atsenior strategic levels where all associationsreported tenants at board level comparedto less than half of authorities reportingtenant representation on councilcommittees. The table also shows thattenant organisations identified a muchlesser extent of tenant involvement instrategic issues than did their landlords.The ranking for each of the issues washowever identical across all groups ofrespondents, with tenants on

boards/committees highest and reviewingperformance targets lowest.

5.4.17 Respondents also mentioned otherexamples of involvement on strategicissues:

• Local housing strategies (2 landlords);

• Tenant participation compact review;

• Housing options; and

• Tenant observer at scrutiny committee.

5.4.18 Two practical examples identified byparticipants in the focus groups, of wheretenant involvement has resulted in positive

outcomes at strategic level, are set outbelow:

• The BME strategy is being rewritten inresponse to BME tenants’ views on theway they would like to be consulted, i.e.not in writing but more informally andindividually.

• The Anti-Social Behaviour (ASB) strategywas reviewed in response to tenants’views that the organisation didn’t dealwell with ASB. A good neighbourstrategy was put in place and an internalmediation project and specialist ASB unitwas set up. Starter tenancies wereintroduced and housing officers weretrained as mediators.


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Tenant inspectors of service delivery

The Torfaen County Borough Council Tenant Inspectors’ Scheme is a project to train tenantsto conduct detailed and robust assessments of the council’s service delivery. The schemeequips tenants with the skills to conduct assessments of housing services. Tenant inspectorsare recruited and trained on a wide variety of techniques including report writing, mysteryshopping, inspection methods and presentation skills.

Inspections have been carried out and reports produced on repairs, homefinder, area officeservice and customer care centre.

The beneficial outcomes of the scheme have included:

- opportunities for tenants to get involved in service improvement;- opportunities for tenants to get involved in decision making;- action plans developed between service managers and the tenant inspectors;- identification of service improvements for the services inspected;- an additional route for tenants to get involved with the housing service;- clearer understanding for service managers of what really matters to tenants;- tenants gaining a better understanding of the issues facing service managers;- opportunities for tenants to learn new skills, for example, mystery shopping; andan effective tool in the development and provision of services provided.

Supported housing5.4.19 One supported housing organisationtaking part in the questionnaire survey hadsuccessfully accessed funding from theCommunities Fund. Other specific positiveoutcomes cited by supported housingorganisations included:

• opportunities for personal development(2 organisations);

• feedback on services (2 organisations);

• tenants on board / sub committees (2 organisations);

• involvement in newsletter;

• staff recruitment; and

• a tenants conference.

5.4.20 Five landlords mentioned measuresto encourage tenant involvement bysupported housing tenants, including:

• employing a specialist tenantparticipation officer to consult with olderpeople, particularly in sheltered housing;

• commissioning a consultant to workwith older and disabled people;

• encouraging home visits; and

• individual contact.

One landlord was working with a specialistsupport provider to involve tenants.

5.4.21 Supported housing tenants takingpart in the focus groups identified thefollowing successes resulting from theirinvolvement:

• Additional security locks;

• Change of support worker;

• Got a move because of harassment;

• Had problems with neighbours sortedout satisfactorily; and

• Got rubbish shifted from the backgarden on request.

Information5.4.22 The questionnaire surveys identifieda variety of types of information whichwere provided for tenants. Figure 17shows examples of the range of differenttypes of information.


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Figure 17: Examples of the range of different types of information for tenants

0% 10% 20% 30% 40% 50% 60% 70% 80% 90% 100%

changes to policy

local performanceinformation

landlord wideperformance information

Annual Report

Newsletter

All LandlordsHousing Association

Local Authority

5.4.23 A small number of landlordsthought that tenant participation had led toimprovement in the information providedto tenants, specifically mentioning:

• involvement in newsletters (2 landlords);

• a joint newsletter on benefits advice;and

• a tenants’ handbook.

5.4.24 A similar number of tenants citedinformation improvements including:

• tenants newsletters (2 groups);

• a repairs handbook; and

• an annual calendar with key contactinformation.

5.4.25 All supported housing organisationsprovide an annual report to tenantsincluding large print versions. 60% (3)provide audio versions. Four out of fivesupported housing organisations involvetenants in producing newsletters.

5.4.26 National tenant supportorganisations provide information totenants and landlords in a variety offormats:

• Regular national and regionalnewsletters;

• Briefing papers including Solutions;

• Tenant participation advice sheets;

• Member mailings;

• Reports;

• Websites;

• Solutions briefing notes; and

• Dolan-supported housing tenantparticipation newsletter.

5.4.27 Several groups of staff taking part inthe focus groups and some staff taking partin the telephone interviews, highlighted theimportance of providing clear informationto tenants in order that tenants had theopportunity to gain an understanding ofissues to enable them to participateeffectively. Staff gave the followingexamples of how information to tenantshad been revised in response to theirviews:

• One association explained the law,procedures and action possible onabandoned vehicles. This did not solvethe problem, but it did enable tenantsgroup members to explain the positionto other tenants;

• One landlord revised its maintenancehandbook revised at tenants’ request tomake it more accessible and to includepictures of repairs problems;

• One landlord altered its standard lettersto tenants in response to tenantfeedback. Letters were streamlined andmade jargon-free and more userfriendly.


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Design and improvements5.4.28 Responses to the questionnairesurvey showed that levels of tenantinvolvement identified in the design of newhomes and feedback on existing homes,

were significantly higher for housingassociations. This is unsurprising, givenassociations’ leading role in newdevelopments. Figure 18 shows examplesof tenant involvement in design issues.


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Tenants’ newsletter

Vineyard Vale Community Group is made up of tenants and residents of a small estate whoproduce a lively newsletter and have carried out a range of activities to build a strong andclose knit community spirit.

The activities include:

- producing a community newsletter;- working with Pembrokeshire Housing to promote awareness on anti social behaviour,

noise and vandalism; - organising a jubilee event, Easter egg hunt and harvest festival;- setting up a neighbourhood watch scheme;- holding barbecues and social events at Halloween, Xmas and Valentine’s Day;- developing a ‘caring for pets’ scheme; and- organising visits, trips and away days.

Vineyard Vale Community Group won first place at the 2004 TPAS Cymru tenantparticipation awards, for the best tenants and residents group in Wales.

Figure 18: Examples of tenant involvement in design issues

Issue Local Authority Housing Association Tenant Group

Feedback on existinghomes

43% 75% 20%

new homes 14% 30% 5%

new estates 14% 20% 5%

5.4.29 In relation to involvement inproperty improvement schemes, there waslittle variation between landlords. Figure

19 shows the variation in tenantinvolvement in property improvementschemes.


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Figure 19: Variation in tenant involvement in property improvement schemes

Issue Local Authority Housing Association Tenant Group

Propertyimprovement

50% 65% 28%

Communityregeneration

50% 50% 33%

5.4.30 Other examples of involvement inregeneration given were:

• Communities First programme

• Estate Partnership;

• Healthy living centre; and

• Community planning exercise.

5.4.31 Tenant organisations mentionedtheir involvement in a number of specificimprovements to properties including:

• new windows (2 groups);

• insulation;

• central heating;

• exterior decoration;

• installation of handrails; and

• upgraded kitchens and bathrooms.

5.4.32 Participants in the focus groups andtelephone interviews identified thefollowing examples of tenant involvement

in design or estate/property improvementprogrammes.

Choosing and monitoring contractors• Tenant representatives are involved in

the choosing of contractors.

Choices of equipment and materials• Tenants are provided with choices of 3

types of kitchen unit. Staff take thetenant to a kitchen suppliers to choosewhat they would like when putting in anew kitchen;

• Tenants are involved in choosingreplacement kitchens, new windows,new heating systems;

• Tenants were provided with choices ofbricks and colours for new boundarywalls. The contractor built sample wallson the estate, and each street voted onthe type of wall for their street;

• Tenants chose the colours and types ofreplacement doors from a range ofUPVC secured by design types;

• The type of heating on one estate waschanged from solid fuel to gas whentenant feedback showed that this was

the main reason for applicants notaccepting an offer, and for existingtenants wanting to move. This hasmade a huge difference to voids andtransfer requests.

Design brief• Design brief reviewed to take account of

feedback from BME tenants and meetcultural needs, e.g. cooking safety,installing increased ventilation.

Landscape, gardens and community safety• CCTV cameras were installed at the

request of the tenants group. Staffwalked the site with tenants and agreedwhere cameras should be installed;

• Tenant organisation had input on newestate re. the play area;

• Tenants have identified priorities forimprovements on estates;

• Community safety – planning securityimprovements, improved visibility, carparking, street lighting, speedingrestrictions;

• Landscaping and gardens – gardeningcompetitions, bulb planting schemes,garden and landscape design.

‘We have ‘landscape tenants’ whomonitor the contractors, on mostestates. We give them £100 ofbulbs/shrubs for the community andencourage them to involve children inplanting these, so that the children feela sense of ownership as well’ (HousingAssociation)


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Environmental improvements and involving young people

Tan Lan Association represents tenants and residents on a mixed tenure estate in OldColwyn. The association received a Tenant Empowerment Grant to develop the associationand establish concerns of all residents on the estate. A newsletter was produced tellingresidents about the project, a survey was carried out and an estate walkabout was held withward councillors, housing association officers and tenants to make a list of environmentalissues that needed attention. The main achievements of the association so far are:

- producing a regular newsletter for tenants and residents;- improving the environment by clearing ‘grot spots’, planting bulbs, and holding a

gardening competition for residents;- the Council employing a local person as an Environmental Operative to work on the

estate;- involving young people in the association;- young people have arranged their own disco and held their own fund raising activities- the association has received funding from the Community Safety Partnership to buy a

pool table and set of disco equipment;- the association obtained funding for sports equipment for the park, and for a trip for

young people to Trafford Hall to take part in Young Movers – a creativity and expressioncourse.

The association is currently fundraising to enlarge the Community Centre.

Personal development5.4.33 Tenant organisations completing thequestionnaire survey, identified as apositive benefit of tenant participation, theopportunity to enhance their personaldevelopment, including the opportunity toattend conferences and the development oftenant advocates. One tenant said thattheir tenant group had helped them todevelop friendships and opened up anarray of informal, community networks. Anumber of landlords agreed that tenantscould benefit in this way, listing severalpositive results including:

• more positive and confident tenants;

• more knowledgeable and experiencedrepresentatives; and

• tenants having a greater understandingof the landlord structures andprocedures.

5.4.34 Supported housing organisationssaid tenant involvement resulted in tenantshaving a greater enthusiasm for things thatthey had helped to organise, improved selfesteem and more independent living.

Improved tenant/landlord relationships5.4.35 A number of tenants groupscompleting the questionnaire survey citedbetter relationships with their landlord as a

successful outcome of tenant involvement.This included

• better communication;

• ‘common sense’ improvements;

• opportunity to ‘thrash out’ problems;

• gaining a greater understanding ofhousing; and

• the developing of more cordialrelationships.

5.4.36 A significant number of landlordsalso identified improved tenant andlandlord relationships as positive outcomesof tenant participation. This included:

• increased two way understanding (3landlords);

• more open and honest relationships;

• joint ‘ownership’ of issues;

• focussing on tenants’ priorities;

• improved satisfaction; and

• local involvement leading to sustainablecommunities.


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5.5 Problems with tenant involvementDifficulties with sustaining or developinggroups5.5.1 A number of tenant organisationscompleting the questionnaire surveyidentified the following difficulties withsustaining or developing their groups:

• A lack of interest among tenants ingetting involved in groups (7 groups);

• Making existing groups morerepresentative;

• Sustaining involvement;

• Dealing with group ‘politics’; and

• Frequent turnover of members.

5.5.2 The vast majority of staff andtenants taking part in the focus groups,and many of those taking part in thetelephone interviews, identified the mostcommon problem to do with tenantparticipation as a preference by tenants toget involved in ways other than through


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Key points: successful outcomes of tenant involvement• Tenants and landlords identified a wide range of successful outcomes to tenant

involvement in housing management, including policies and procedures, surveys andinformation, estate improvements, new initiatives and Best Value.

• Tenants identified a significant number of positive outcomes that were not housing basedbut related to the community and environment.

• The majority of landlords did not generally identify community or environmentalimprovements as part of successful outcomes of tenant involvement.

• Tenant organisations were more likely than landlords to evidence strategic involvement inlandlord activities.

• Housing associations reported greater levels of tenant involvement at strategic level thandid local authorities.

• A number of landlords were undertaking measures to encourage involvement bysupported housing tenants.

• A small number of tenants and landlords said that tenant participation had led toimprovement in information provided to tenants.

• Several groups of staff highlighted the importance of providing effective information totenants.

• Staff and tenants identified a range of successful outcomes to tenant involvement indesign and/or estate/property improvement programmes, including choosing andmonitoring contractors, choices of equipment and materials, feedback into the designbrief, landscape, gardens and community safety.

• Some landlords, support providers and tenants identified as a positive outcome, tenants’increased personal development as a result of getting involved.

• A number of tenants and landlords identified improved relationships between tenants andlandlords as a positive outcome of tenant participation.

formal groups, and difficulties in recruitingnew members to existing groups,particularly younger people. Severallandlord organisations said that they hadparticular difficulty involving BME tenants,young people and vulnerable client groupswho do not always want to participate ingroups.

5.5.3 A number of tenant organisationrepresentatives identified difficulties withrecruiting and keeping new members.

‘We need to bring in new people. Itsdifficult to get new people involved.We’ve had young people in, but its hardto keep them.’ (Involved tenant)

‘We could do with getting moremembers.’ (Involved tenant)

‘Numbers have dwindled…nowsometimes more staff than tenants.’(Involved tenant)

‘We can’t get people involved – there isa lack of interest.’ (Involved tenant)

A number of staff held similar views:

‘Lack of enthusiasm by tenants, it’sdifficult to get new tenants involved.’(Tenant participation officer, housingassociation)

5.5.4 Two landlords had carried outsurveys with their tenants, finding thatalthough a significant number of tenantssaid they did want to get involved intenant organisations, the majority, 75%and 60% respectively, expressed apreference to get involved in ways otherthan through groups.

‘People often don’t want formalstructures…we’re looking now at amenu of options, - differentopportunities for people to getinvolved.’ (Front line staff)

‘Tenants and residents’ associationsdon’t work in our experience…we can’timpose TP on tenants – they have betterthings to do with their lives…modernday life is about consumerism andcitizenship…tenants must be listened toas consumers.’ (Senior manager)

5.5.5 Participants in two staff groupshighlighted the pressures that the WelshAssembly Government requirement onlandlords to participate can bring on bothtenants and landlords:

‘The problem is that while tenantparticipation is a requirement on thelandlord, there is no requirement on thetenant to turn up!’ (Senior manager)

Ensuring involvement is representative5.5.6 All landlord respondents to thequestionnaire survey had some concernsabout engaging a range of tenants. Theseincluded engaging:

• under represented groups in general;

• younger tenants (2 landlords);

• young people;

• BME communities;

• single parents; and

• disabled tenants.


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5.5.7 6 landlords mentioned difficultiesinvolving tenants in rural and scatteredstock. Two landlords were concernedabout involving owner occupiers and leaseholders. Supported housing organisationsspecifically mentioned problems involvingpeople with profound disabilities, involvingthe frail elderly, involving people over ascattered area, and providing childcare,particularly for demanding children. Anumber of staff and tenants taking part inthe focus groups and telephone interviews,identified difficulties with involving tenantsrepresentative of their tenant profile, inparticular young people and BME tenants.

‘We can’t engage young people.’ (Frontline staff)

‘There are certain sections of thecommunity with which we have failed toengage, including young people and theBME community.’ (local authority)

‘Young and BME tenants don’t want tocome to meetings, we need to look atother ways of involving them.’ (BMEworker)

‘It (tenant participation) tends to be a bitof a minority sport. We have failed tosecure wider involvement, it tends to beolder, retired people that get involved.’(Local authority)

Overburdening existing tenantorganisation members5.5.8 Concern was expressed by aparticipant from a national organisationthat other organisations were adding to thepressures on already stretched tenantactivists, and gave the example of a recentspeech by the Health Secretary whichencouraged tenant organisations to takepart in local health boards. Concern was

also expressed about tenants taking onadditional high level responsibilities withoutadequate support. This was seen asparticularly relevant with the emergingstock options agenda.

5.5.9 Some involved tenants, front linestaff and senior managers taking part in thefocus groups and telephone interviews,said that tenant participation was placingincreasing demands on a few people’stime:

‘The amount of time tenants have tospend on tenant participation…itsdifficult to get new people. It’s a lot ofwork for the same people.’ (Involvedtenant)

‘There’s always a core of people whohave to do everything. Takes a lot oftime.’ (Involved tenant)

‘Tenant participation can be quiteonerous. We ask a lot of their (tenantorganisation) time. Any other serviceswe use, we don’t have to attendmeetings, give up our time. We don’tdo that in our lives.’ (Front line staff)

‘Problem with local groups…work oftengets left to one or two people.’ (Seniormanager)

Inadequate information, communicationand feedback5.5.10 Nearly a third of tenantorganisations taking part in thequestionnaire survey, felt they did notreceive enough information in thefollowing areas:

• Major works and planned maintenance(2 groups);


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• Support from national organisations (2 groups);

• Housing policies;

• Housing finance;

• The Assembly and regulation;

• More information required from theWelsh Tenants Federation;

• Council minutes;

• Stock transfer; and

• Repairs.

5.5.11 Landlord respondents wereconcerned about the commitment andcapacity of their organisations to delivereffective information. A number oflandlords highlighted the difficulty ofsecuring the commitment to tenantparticipation across all departments toensure that participation was a landlordwide initiative rather than just seen asbelonging to the housing department. Thisincluded the need for all departments incontact with tenants to provide informationin clear and accessible formats. Otherconcerns included:

• bureaucratic and over formal structures(2 landlords);

• securing individual staff commitment;and

• lack of involvement in major decisions,e.g. investment option appraisals andmeasuring and evaluating outcomes.

5.5.12 Tenants taking part in the focusgroups and telephone interviews, expressed

a number of concerns regarding lack ofinformation, communication and feedbackon outcomes of participation from thelandlord.

‘There’s a lack of communication andinformation. Our comments are beingignored. We’re told about things, we’renot participating.’ (Involved tenant)

Some staff also said that their organisationdid not communicate effectively withtenants and that lack of interest by tenantsin participating, might link to lack ofaccessible information provided for tenants.

Lack of meaningful consultation5.5.13 Tenants completing thequestionnaire survey identified a number ofproblems relating to ineffectiveconsultation by landlords. These included:

• lack of real consultation;

• paying lip service to tenant participationthrough inaction following consultation;or ignoring tenants views;

• buck passing and evasion;

• patronising, intimidating and oppressiveattitudes; and

• contradictory information fromlandlords.

5.5.14 Several of the involved tenantstaking part in the focus groups andtelephone interviews, said that theirparticipation did not result in anydifferences being made by theorganisation.

‘(the group) is a talking shop, it makesno difference.’ (Involved tenant)


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‘Not a lot comes out of what we discuss.We come back next time and discuss itall again.’ (Involved tenant)

‘We make no difference. Weunderstand more but aren’t influencinghousing management’ (Involved tenant)

‘We get information after the decision ismade. They listen but we make nodifference’ (Involved tenant)

5.5.15 The above contrasted withperceptions of some staff, who identifiedmany instances where tenants’ views hadhad an impact on the policies andprocedures of the organisation, butacknowledged that this information maynot be being adequately fed back totenants. For example, senior staff in oneorganisation described how they had mademajor changes to their lettings policy, anti-social behaviour policy, and introduced atenant incentive scheme, all as a result oflistening and responding to tenants’ viewsand priorities gathered through aquestionnaire. However, a focus group ofinvolved tenants from the sameorganisation did not appear to have beeninformed that the organisation hadintroduced these changes as a result oflistening to tenants.

Time and resources5.5.16 Landlords completing thequestionnaire survey, saw lack of resources,especially finance and staff time, as asignificant impediment to developingeffective tenant involvement. Some stafftaking part in the focus groups said thatasking tenants’ opinions takes time,increases staff workload and results in ittaking longer to review policies.

‘TP is only one of many things we areasked to target. It takes time with noadditional resources. Recent doorknocking exercise took two days andhad two days work to catch up on whenI got back to the office.’ (Front linestaff)

Personality problems5.5.17 A number of involved tenants andfront line staff taking part in the focusgroups and telephone interviews identifiedproblems with individuals in tenantorganisations. These covered the followingareas:

• Strong personalities dominating othermembers of tenant organisations;

• Tenant representatives notcommunicating with other tenantseffectively or feeding back accurateinformation from the landlord;

• Problems with some tenant officers notcarrying out their role effectively, butbeing unwilling to undergo training tohelp them do this; and

• Personality clashes within tenantorganisations.

A number of tenants also identifiedproblems with individual staff attitudes totenants.

The Welsh Assembly GovernmentPattern Book5.5.18 Housing Association participantswere asked to give their views on theeffect that the Welsh AssemblyGovernment Pattern Book has had on theability of tenants to be involved in housingdesign. The Pattern Book sets out housingdesign requirements for housingassociations.


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Many staff taking part in the focus groupsand telephone interviews, said thatprescriptions imposed by the WelshAssembly Government Pattern Bookrestricted the ability of landlords toeffectively involve tenants in the design oftheir homes. Landlords identified thefollowing problems with the Pattern Book,which tenants had identified:

• Restrictions on sizes of kitchens andliving rooms;

• A lack of storage facilities;

• Inadequate standards of soundinsulation.

5.5.19 Participants in one focus group saidthat the Pattern Book was too rigid, andlimited tenant choice in design. ThePattern Book should set out guidelinesrather than requirements, to enableassociations to have the flexibility to makechanges to suit tenants’ needs and choices.One landlord taking part in thequestionnaire survey, suggested that theWelsh Assembly Government should carryout updated market research with tenantsliving in Pattern Book homes, to see if theyare the kind of houses people want to livein. Structured research to gather tenantviews on Pattern Book homes was last

carried out by Tai Cymru in the early1990’s, when a series of focus groups wereheld with tenants living in the first PatternBook homes built in Port Talbot.

5.5.20 The requirement to install baths inall properties was identified by participantsin one focus group as a problem:

‘The Pattern Book demands that we putin baths for new properties even if weknow they are going to be let to elderlytenants. We have to rip them out assoon as they move in and put in ashower.’ (Senior manager)

Inadequate sound insulation standardswere seen as a particular problem by onegroup in view of changes to living patterns,with children having televisions and audioequipment in their bedrooms andincreasingly using them as living areas.

One group identified problems with thelimited size of bedrooms in sharedsupported housing:

‘The size of the bedrooms are very smallwhen they’re the tenants’ only privatearea. They’re too compact for thesupported housing environment.’(Senior manager)


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Key points: Problems with tenant involvement• A number of tenant organisations, and the majority of staff and tenants taking part in the

focus groups and telephone interviews identified the most common problem to do withtenant participation as a lack of success in engaging the majority of tenants in formalgroups, leading to difficulties for tenant organisations with recruiting new members,ensuring that their groups were representative, and sustaining their groups.

• A number of landlords and some tenant organisations said that they have particulardifficulty involving those who prefer not to participate in groups, especially young people,BME tenants, those with support needs, single parents and disabled tenants.

• Concern was expressed by national organisations that non-landlord organisations wereadding to pressures on tenant activists by asking for involvement in other areas, forexample local health boards.

• Concern was expressed by national organisations about tenants taking on additional highlevel responsibilities without adequate support.

• Some tenants and staff said that tenant participation was placing increasing demands ona few tenants’ time.

• Some landlords were concerned about the commitment and capacity of all departmentswithin their organisations both to the process of tenant participation, and to deliveringclear and accessible information to tenants.

• Nearly a third of tenant organisations felt they did not receive enough information in anumber of areas.

• A number of tenants said that there was a lack of information and feedback on outcomesof participation from their landlord.

• A number of tenants said that consultation by their landlord was ineffective and that theirinvolvement did not make any differences to outcomes.

• Some landlords saw lack of resources especially regarding finance and staff time as animpediment to developing effective tenant involvement.

• A number of tenants and staff identified problems with individuals in tenantorganisations. A number of tenants identified problems with staff attitudes.

• Staff from a number of housing associations said that prescriptions imposed by the WelshAssembly Government Pattern Book restricted their ability to effectively involve tenants inthe design of their homes.

5.6 Resources and trainingResources5.6.1 Landlords responding to thequestionnaire survey, together commitalmost £1 million (£0.98m) annually tosupport tenant participation. If the figuresfor respondents are representative of allsocial landlords, then the total budget tosupport tenant participation in Wales isapproaching £1.5 million per annum.

5.6.2 When stock numbers were takeninto account it was found that housing

associations spent almost twice as much aslocal authorities per tenancy, being £9.31and £4.84 respectively.

5.6.3 All landlords spent on average £696on direct grants to local groups and thiswas confirmed by groups themselves whoestimated they received £707 p.a.

5.6.4 Figure 20 shows the breakdown oflandlord funding for tenant participationactivities.


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Figure 20: Breakdown of landlord funding for tenant participation

5%

22%

20%

2%31%

12%

8%

Funding to tenant groups

Funding landlord wideforum

Funding multi landlord federation

Staff costs to support TP

Funding tenants to attend

Staff accompanying tenants ontraining/conferences

Other

training/conferences

5.6.5 Training for, and direct support to,tenant groups and representativesaccounted for 54% of budgets. Nearly40% of budgets went on staff costs andtraining.

5.6.6 64% of local authorities employed atenant participation officer compared with40% of housing associations.

5.6.7 73% of tenant groups said theyreceived support from officers with 68%citing specialist tenant participation staff asthe source.

5.6.8 All supported housing organisationshad staff whose job descriptions includedtenant participation, with 60% having allor a major part of a dedicated post.

5.6.9 In addition to the above, landlordsallocated resources to the following:

• Alternative tenant participation methodsincluding tenant surveys, focus groups,key tenant scheme and aneighbourhood tenant participationcompact;

• Social activities such as day trips,Christmas parties, garden competitionsand a ‘tenants fayre’;

• Payment in kind including printing andpublishing newsletters, mail outs andproviding stationery;

• Fees and subscriptions for supportorganisations such as TPAS Cymru,mediation services and professional andlegal fees.

5.6.10 Significantly more local authorities(57%) than housing associations (35%)had accessed funding from external sourcesto support tenant participation. A total of3 local authorities and 2 associations hadaccessed Social Housing ManagementGrant (SHMG) funding. TenantEmpowerment Grants were mentioned by4 local authorities and 4 associations.

5.6.11 Tenant organisations had accessedgrant support from a wide variety ofsources including:

• Communities First (5 groups);

• Community / Town councils (5 groups);

• Kick Start (2 groups);

• Councillor donation;

• TPAS start up grant;

• WCVA Social Risk Fund;

• Healthy Living;

• Safer Cities; and

• Regeneration funding.

5.6.12 One supported housing organisationhad accessed grants from the CommunitiesFund to support involvement.


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Funding agreement between landlord and tenant organisation

Clackmannanshire Council have a service agreement with the tenants and residentsfederation which sets out the amount of funding to be made available to the federation, tobe paid quarterly in advance and reviewed annually.

Other resources made available to the federation include free photocopying, administrativesupport such as access to computers, information and regular mailings to members and theprovision of meeting space.

The service agreement notes that the federation monitors its spending against the budget.It also sets out the performance expected of the federation in relation to the number ofmeetings to be held, opening hours for the federation offices, and attendance atconferences.

Training5.6.13 All housing associations and 79% oflocal authorities completing thequestionnaire survey, stated that theyprovided some training for their tenantrepresentatives. However only 56% of

tenant groups said they were aware of this.Training was marginally more likely to beprovided in-house than via externaltrainers. Figure 21 shows the types oftraining organised for tenants and staff.


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Landlord Tenant Only Training Joint Staff & Tenant Training

Local authorities 50% 64%

Housing associations 80% 55%

Tenant Groups 45% 66%

5.6.14 Joint training with tenants was morefavoured by authorities; tenant onlytraining by associations.

5.6.15 Training was provided on a widerange of topics including (numbersfollowing topics indicates number of timesit was referred to by differentrespondents):

Basic Organisation (22) • Committee skills;

• Running events;

• Tenant Empowerment Grants;

• Fundraising;

• IT;

• Managing buildings;

• Consulting and engaging thecommunity.

Housing Policy and Practice (17)• Anti social behaviour;

• Repairs and maintenance;

• Lettings;

• Voids;

• Rents;

• Homelessness;

• Tenants handbook.

Regulation and Legal (7) • Best value / Wales Programme for

Improvement;

• Tenant participation compacts;

• Housing law;

• Human Rights Act.

Equality and Diversity (5)• Black and minority ethnic issues;

• General equalities.

Management and Business Planning (8) • Stock transfer;

• Role of board members;

• Housing finance.

Figure 21: Types of training organised for tenants and staff

Miscellaneous • First aid;

• Child protection;

• Role of housing officers;

• Community development;

• Housing benefit;

• Prescribed drugs;

• Self defence;

• Food hygiene.

5.6.16 88% of tenant organisations thatreceived training said it met theirrequirements. Those that did not receivetraining or were dissatisfied made anumber of comments including:

• training was expensive; and

• access was via the Welsh TenantsFederation and restricted.

5.6.17 All 5 supported housingorganisations provided training for tenants,open to any interested tenants toparticipate. Training had been provided in:

• policies and procedures;

• skills training;

• tenant involvement;

• supporting people;

• mental health issues;

• anger management;

• DIY;

• arts and crafts; and

• black and minority ethnic issues.

5.6.18 The two national tenant supportorganisations provided training in a widevariety of topics including:

• anti social behaviour;

• housing benefit;

• supporting people;

• key tenant scheme;

• best value / WPI;

• mystery shopping;

• stock transfer;

• committee and organisation skills;

• assertiveness;

• newsletter production;

• involving black and minority ethnictenants;

• tenant participation compacts andstrategies;

• major works agreements; and

• tenant management organisations.

5.6.19 Both tenants and staff taking part inthe focus groups and telephone interviews,identified problems with getting tenants totake up training opportunities.

‘We need a proper training programme– its in the business plan, e.g. trainingon the role of officers, how to speak to


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people. Problem is that people don’tthink they need training.’ (Involvedtenant)

‘We have offered lots of training, butgetting people to attend is tricky.’ (Staff)

5.6.20 Some tenants commented that theirtraining had either been too crowded, orthat they had to travel too far to access it:

‘We had training on the benefits ofbeing a panel member. The trainingwas too crowded. Smaller groups wouldbe better.’ (Involved tenant)

‘I would like to see Wales having anequivalent to Trafford Hall here in Walesand not have to travel to England.’ (HAtenant board member)


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Tenant involvement in training

West Glamorgan Housing Consortium have produced a guide to tenant involvement ininterviewing and recruiting staff, based on the experiences of tenants with learningdisabilities who took part in recruiting Consortium’s tenant participation officer.

The guide sets out ways of enabling those with limited reading skills to take a full part in theinterview process including:

- developing a person specification;- familiarisation with interview procedures including confidentiality and equal; opportunities

and role play;- developing questions for informal and formal interviews;- building up picture profiles of candidates’ skills and interests;- scoring and recording; and - agreeing and making the final decision.



First Choice Housing Association, Cartrefi Cymru and West Glamorgan Housing Consortiumstaff and tenants set up the Living in Your Home project, to increase tenants’ understandingof their rights and responsibilities. Staff and tenants worked together to produce and pilot atraining guide and tenant workbook to enable tenants with learning disabilities to train othertenants to understand their rights and responsibilities. The workbook covers:

- running a training session;- using training equipment;- ice breakers and role play; andevaluation.


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The Federation of Flintshire Community Houses has produced a workbook to help tenantsset up and run a community base. The guide was developed by local residents working withthe council. It offers comprehensive, easy to understand advice on all aspects of setting upand running a community house.

The workbook includes sections on:

- undertaking a feasibility study;- launching a community house;- running a community house;- carrying out a review; and- costs of setting up and running a base.

Key points: resources and training• Landlords responding to the questionnaire, together commit almost £1 million annually to

support tenant participation.

• Housing associations spend almost twice as much as local authorities per capita on tenantparticipation.

• Training for and direct support to tenant organisations accounted for 54% of budgets.

• Almost 40% of budgets went on staff costs and training.

• 64% of local authorities employed a tenant participation officer compared with 40% ofhousing associations.

• All supported housing organisations had staff whose job descriptions included tenantparticipation.

• 57% of local authorities, compared to 35% of housing associations, had accessed fundingfrom external sources to support tenant participation.

• Tenant organisations were able to access funding from a wide range of sources for tenantinvolvement in community and environmental activities.

• All housing associations and 79% of local authorities provided some training for tenantrepresentatives. However only 56% of tenant groups said they were aware of this.

• Joint training with tenant and staff was more common for local authorities, tenant onlytraining for housing associations.

• 88% of tenant organisations that received training said it met their requirements.

• All supported housing organisations provided training for tenants.

• Both tenants and staff identified problems with getting tenants to take up trainingopportunities.

5.7 Tenant participation compactsIntroduction5.7.1 This section sets out stakeholders’views on the use and effectiveness oftenant participation compacts. The sectionrelates to the information provided inChapter 4, which contains an analysis ofcompacts to evaluate their compliance withthe Welsh Assembly Government’s corestandards for tenant participationcompacts.

Terminology5.7.2 Feedback from several focus groupsof staff and tenants, indicated that theterm ‘tenant participation compact’ wasnot understood by the majority of tenants.Many participants said they would preferto change the term to “tenantparticipation/involvement agreements”which they felt would be easier tounderstand and better describe what thedocuments are about.

‘The title of them is wrong – ‘compact.’It’s an agreed action plan by landlordand tenants. It should be an agreementwith tenants and the local authority.’(Senior manager)

Numbers and types of compacts5.7.3 Two authorities and two associationscompleting the questionnaire survey, donot yet have compacts in place.

5.7.4 Generally, tenant participationcompacts seem to be established at alandlord wide level with a number ofexamples of local/specialist compacts alsocited. Half of authorities and a third ofassociations had developed localneighbourhood compacts. Specialistcompacts were much more prevalent withassociations who reported 12 of varioustypes compared to 3 authorities. Theseincluded:

• sheltered housing compacts: These hadbeen developed by 6 associations andone authority;

• multi landlord compacts: One authorityand 3 associations had developed these;

• supported housing compacts: These hadbeen drawn up by two associations

• local planned maintenance compact; and

• multi agency compact involving nonlandlord organisations.

5.7.5 Figure 22 shows the different typesof tenant participation compacts developedby landlords and tenants.


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Figure 22: Types of tenant participation compact

Compact Local Authority Housing Association

Landlord Wide 71% 90%

Local 50% 35%

Specialist 14% 60%

5.7.6 60% (3) of supported housingorganisations had tenant participationcompacts in place. One organisation wasconsidering additional specialist compactsfor floating support and young women.

5.7.7 Tenant organisations indicated howthey had been involved in developing theircompacts as follows:

• Joint meetings (13 groups);

• Special panels / forums (10 groups);

• Through the federation (3 groups);

• Assisted by consultant or an externalorganisation (5 groups);

• Pilot scheme;

• Road show;

• Local seminar;

• Via newsletter.

5.7.8 In terms of monitoring andevaluating tenant participation compacts,landlords identified the following means:

• Annual review with tenants(11 landlords);

• Regular meeting with Tenant Forum /Federation (11 landlords);;

• Survey / feedback mechanisms(6 landlords);

• Task and finish review group, includingone two day dedicated session(3 landlords);

• Externally facilitated review(2 landlords);

• As part of a Best Value review ofhousing management.

Positive views5.7.9 Involved tenants in three focusgroups said that they did find compactsuseful and used them as a referencedocument, although most acknowledgethat the majority of tenants in theorganisation do not know what they are.

‘It’s useful if we need to refer to it,we’ve got it.’ (Involved tenant)

‘It’s not static, its improving every year,its always going forward.’ (Involvedtenant)

‘Very helpful…used as a referencedocument.’ (Involved tenant)

5.7.10 Many staff agreed that compactsprovided a useful framework forparticipation, and were positive about theircompacts:

‘It’s my bible! Everything we do is donethrough the compact.’ (Front line staff)

‘The process of developing it was good,it made us look at ourselves.’ (Seniormanager)

‘It’s very helpful….used as a referencedocument…its always going forward.We’re revising to make it more userfriendly, with bigger print, easier tounderstand, not prescriptive.’ (Seniormanager)


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‘Useful for landlords who wouldn’totherwise bother with tenantparticipation.’ (Senior manager)

‘Have allowed us to engage withtenants in a more targeted way withdetailed and structured targets to meet.’(Tenant Participation Officer, HousingAssociation)

Problems identified5.7.11 A number of concerns wereexpressed about compacts by tenantorganisations completing the questionnairesurvey, including:

• compact prepared mainly by officers(5 groups);

• still on going because of disagreements;and

• not yet published / only just distributed(2 groups).

5.7.12 One national organisation expressedconcerns about the current framework andsuggested:

• that the Welsh Assembly Governmentshould consider making the Welshframework for participation a legalrequirement;

• there should be a statutory right toparticipate as in Scotland; and

• there should be minimum standards ofinvolvement.

5.7.13 Tenants and staff taking part inmany of the focus groups and telephoneinterviews, agreed that the Welsh AssemblyGovernment guidance leads to compactsthat are too prescriptive and inflexible,

concentrating on process rather thanoutcomes. Of respondents who say theyhave experienced problems, staff andtenants identified difficulties with:

• apathy and lack of involvement ofmajority of tenants;

• getting representative age range oftenants;

• keeping people involved;

• people trying to move the goalposts/not sticking to the agenda;

• action points not met;

• timescales over optimistic; and

• issues with spread of properties, culturaland language problems.

5.7.14 These concerns were echoed bysome involved tenants:

‘Tenants (other than the tenantorganisation) don’t know what compactsare about.’ (Involved tenant)

‘Not enough tenants know about it andit is long winded.’ (Involved tenant)

5.7.15 This view was confirmed by all butone group of non-involved tenants, whohad not heard of tenant participationcompacts and did not know what a tenantparticipation compact was.

‘Don’t know what it is.’ (Non involvedtenants in four groups)

‘Never heard of it.’ (Non involvedtenants in one group)


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5.7.16 Many staff said that compacts werelong winded and difficult to understandand that both staff and tenants hadproblems with compacts being tooprescriptive and rigid.

‘Too much based on process, it’s theoutcomes that are important.’ (Front linestaff)

‘The problem is that they are a formalframework, allowing no flexibility, butthe relationship between tenants andlandlord is flexible. If you have a workto rule, nothing works.’ (Front line staff)

‘(Compacts are) wide ranging, detailed,ambitious, too many things included,unrealistic’. (Director of Housing,Housing Association)

5.7.17 Some staff said that their compactswere not used as working documents, butare only referred to if there was a problem.In one group of ten front line staff, onlyone member had read the compact. Inanother group, front line staff said that thecompact had not been given to staff andthat most are not aware of it.

5.7.18 Concerns were expressed by staff ofone landlord that their compact did notrepresent the views of the majority of theirtenants:

‘(our compact was) drawn up with anunrepresentative body, so we have nobasis for knowing it is what the majorityof tenants want. The compact onlycaters for 10% of involved tenants.’(Senior manager)


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Developing a tenant participation compact

Charter Housing Association’s tenant participation compact was developed in partnershipwith tenants over a 14 month period. The compact was developed through discussions at 10meetings of the tenants consultative committee, a tenant satisfaction survey and a tenantconference. The draft compact was then subject to further consultation with the tenantsconsultative committee and with the organisation’s recognised tenants groups.

The compact recognises that there are a number of ways that tenants can become involvedin the decision making process in Charter both on an informal and a formal basis. Theseopportunities are set out clearly in a diagram and a table in the agreement. Informalinvolvement enables individual tenants (or applicants) to provide their views by respondingto surveys or participating in focus group meetings. Formal involvement is via traditionaltenant participation routes such as a recognised tenant association or the tenant consultativecommittee.

Ideas for improving compacts5.7.19 Supported housing staff in onegroup said that the format of compactsshould be changed for those with learningdisabilities to make them accessible.

5.7.20 Staff in a number of the focusgroups suggested that compacts would beimproved if they were shorter and simpler,and less ambitious.

‘They need to be very precise slimdocuments…they are just an aid to

listening and conversing withcustomers…not central to the wholeprocess of tenant participation.’(Director of Housing, HousingAssociation)

‘Compacts are still aimed at the onetrack approach…need a moreinnovative, lateral approach.’ (Supportprovider)


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Key points: tenant participation compacts• A number of staff and tenants said that the term ‘tenant participation compact’ is not

understood by the majority of tenants.

• The majority of compacts are at a landlord wide level.

• Half of local authorities and a third of housing associations had developed local compacts.

• Over half of housing associations had developed specialist compacts.

• Over half of supported housing organisations had compacts in place.

• Many staff and tenants agreed that compacts provided a useful framework and referencedocument for participation.

• A significant number of staff and tenants said that the Welsh Assembly Governmentguidance on compacts was too prescriptive and inflexible, and concentrated on processrather than on outcomes of tenant involvement.

• Many staff said that their compacts were long winded and difficult for staff and tenantsto understand.

• The vast majority of non involved tenants did not know what a tenant participationcompact was.

• Some supported housing staff said that the format of compacts should be changed tomake them more accessible for tenants with support needs.

• Suggestions by some staff and tenants for improving compacts included making themshorter, simpler and less ambitious.

5.8 Ideas for improving tenantinvolvement5.8.1 Staff and tenants taking part in thefocus groups and telephone interviews hada wide range of ideas for improving tenantinvolvement.

Developing a range of ways to involvetenants5.8.2 Tenants and staff from severalorganisations said that they were achievingsuccess with non formal methods ofparticipation. A number of staff said thatthey found that by adopting more of aninnovative and sometimes consumer basedapproach to gather views on some issues,they were able to obtain the views of arange of tenants who would not normallyget involved via a traditional group orforum.

‘We are trying more of a consumerbased approach, ie focus groups.

We are trying to identify ‘communitiesof interest’ around issues such asASB…We find that focusing on oneissue at a time is more helpful andeffective.’ (Director of Housing, HousingAssociation)

‘(we have) moved to a more consumerbased approach…consultation throughtext, internet, telephone etc.’ (HousingAssociation Officer)

‘We need to get away from the idea ofgetting groups of people together in aroom to be able to consult. There areother ways. We need to expand theways people can access us… We allneed to be more innovative.’ (LocalAuthority staff)

‘Usually tenants prefer to get involved inless formal ways. We have foundcombining a meeting with a social eventquite successful.’ (Tenant ParticipationOfficer, Housing Association)

The use of information technology5.8.3 One of the improvementsmentioned most frequently was developingtenant involvement and improvingcommunication and information throughthe use of information technology. Severalorganisations were currently or had alreadyundertaken surveys to establish how manytenants had access to computers and theinternet. The following are some of theideas put forward by participants in thefocus groups and telephone interviews:

• Gather information on tenants’ use ofcomputers and the internet to informinformation procedures;

• Put information on the website;

• Communicate more by e mail (severalgroups);

• Look at flipping out one single questionby text and e mail to get more responsefrom young tenants;

• Ensure questionnaires include questionsto find out how many tenants haveaccess to the internet and e mail;

• Interactive computer project helpingpeople get access to Broadband;

• Home page on landlord website fortenants;

• Pop up surveys on website.


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‘Development of work basedtechnologies, customers conducting theirbusiness with us in different ways.We’re gathering information on (tenant)use of the telephone and internet.’(Housing Association)

‘From our tenant attitude study we havefound out that tenants access to IT hasgreatly increased and is likely to increaseto 27% of our tenants by next year.’(Local Authority)


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Using information technology to promote tenant involvement

TPAS Cymru undertook a survey of tenant organisations and social landlords to establish abaseline of tenant access to information technology and the issues that need to beaddressed to improve access. TPAS worked with Cadarn Housing Group to produce a bestpractice guide and recommendations for landlords and tenants organisations to improveaccess to information technology. Further information about the project is available at:www.tpascymru.org.uk.



West Glamorgan Housing Consortium has produced its Annual Report on its website and ona cd rom. The report includes video and sound clips of tenants, board members and staffproviding information about the organisation and its activities. The report is available at:www.wghc.co.uk (go to tenant pages).



Carr Gomm staff and tenants have developed a lively and informative tenant website with achat room. The website includes:

- information about the organisation and how to get involved;- opinion polls;- discussion forums;- regional newsletters and events listings;- web based e mail facilities;- a tenant chat room which only Carr Gomm tenants can access by using a password;- tenant art, pictures and writing; and- life long learning opportunities.

A group of service users have undertaken training to enable them to train others to accessthe site and to provide basic IT support. Service users are also helped to use the website byvolunteers and staff. The website is available at: www.tenantsonline.org

Tenant involvement at local level5.8.4 Several housing associationsexplained how they encouraged tenants toget involved at local level by empoweringhousing officers to make more decisionsand have more of a presence on site, andby providing budgets for tenants and staffto spend on improvements at local level.

‘We are aiming for instant involvement.Our housing officers are being moreempowered to make decisions and beon site more. We want them to be onthe streets, able to answer questions,not have to pass them on to the office.’(Senior manager, Housing Association)

‘People need to think they can dosomething – have local activities,budgets for tenants to access andmanage for small projects.’ (HousingAssociation)

5.8.5 Several tenants and staff madeother suggestions for improving tenantinvolvement at local level. These included:

• the landlord making resources availableto enable tenants to control smallbudgets to undertake local initiatives;

• the landlord agreeing a local lettingspolicy with tenants and being selectivein allocations to some areas to reduceASB;

• developing service monitoring panelswith reports on performance by the areamanager; and

• holding regular tenant and staff estatewalkabouts to look at estatemanagement, car parking, communitysafety.

Tenant involvement in design5.8.6 A number of housing associationstaff said that the Welsh AssemblyGovernment Pattern Book limited landlords’capacity to effectively involve tenants inthe design of their homes. There weresuggestions that the Pattern Book berevised to make it less prescriptive andrestrictive. One group suggested that theWelsh Assembly Government undertakes


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The TP Herts Group website project aims to promote tenant involvement, and share skills,experience and good practice by offering all tenants the chance to have their say regardlessof sight, hearing, or language impairment, reading and writing difficulties and any otherdisabilities.

Information about opportunities for all tenants to have their say about matters that affecttheir home and/or their community, has been produced on the project’s website whichincludes video and sound clips, and which features more than 30 languages including signlanguage.

The website is intended for use by housing providers, tenants and community groups acrossthe UK. It is available at: www.tpherts.org.uk.

research with tenants living in Pattern Bookhouses, to gather feedback on whetherthey were the kind of houses people wantto live in.

‘Not sure how far the AssemblyGovernment Pattern Book allows foruser preference.’ (Front line staff,housing association)

‘Remove Pattern Book. Take awaystraight jacket to allow innovation. IsTai Cymru model appropriatenowadays? Pattern Book is causing aproblem with the new care home we arebuilding at the moment.’ (Seniormanager, Housing Association)

5.8.7 Other suggestions made by bothtenants and staff, for improving tenantinvolvement in design included:

• consulting tenants on a scheme byscheme basis, e.g. for fencing frontgardens; and

• setting up sub committee to draw up amajor works agreement;

• training officers and tenants on how tolisten;

• tenant organisation to meetdevelopment team to help with anyproposed improvements;

• allowing attic conversions to avoid theneed to move to another property; and

• providing showers for people withchildren who play football and rugby –much cleaner and more efficient than abath. (or at least go 50:50 if a tenantwants to put one in.


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Tenant involvement in redesigning an estate

Swansea City Council carried out redevelopment of one of its estates in partnership withSwansea Housing Association.

A public meeting was held to inform the public and any interested bodies, of the need toredevelop the properties. A selection panel for deciding on the developers for the projectwas formed, comprising 3 tenants, the local ward councillor, the Cabinet Member forhousing, with officers advising.

Council staff visited tenants and homeowners, to carry out an assessment of need, andwhere appropriate, an occupational therapist carried out a formal assessment.

Focus groups were held to gather tenants’ views on a range of different house types andoptions for layout and design. The focus group participants were selected by anindependent research company who also facilitated the discussions. The groups were madeup of tenants over 50, young tenants, and tenants with children.

Landlord/tenant relationships 5.8.8 A number of tenants and staff putforward ideas for improving tenant andlandlord relationships. These included:

• building good relationships of trust andensuring that the landlord followsthrough and responds to requests andissues;

• landlord and tenant representativesbeing open, talking to people andkeeping people informed;

• landlord and tenant representativesdeveloping links with communitygroups;

• landlords ensuring that all new tenantshave a contact meeting with a housingofficer after moving in, to iron out any

problems and check whether anyimprovements can be made;

• landlords sending out more serviceevaluation forms to tenants withincentives to return them, e.g. raffleprizes; and

• landlords holding more road shows anddrop-in surgeries to gather the views ofthe majority of tenants.

Welsh Assembly Government procedures5.8.9 One group of local authority tenantspointed out that consultation papersreceived from the Welsh AssemblyGovernment arrived at the landlord with avery short response time, which did notallow the authority to consult tenantsproperly. They suggested that consultationtimes should be extended to ensure that


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An information day was held for all residents on the estate at which the contractors, localauthority and housing association staff were present. On display were examples of optionsfor house types, samples of different types of kitchen units, tiles, floor coverings, colours,and special needs equipment for those with physical disabilities. A virtual reality computerpackage was available to enable tenants to ‘walk through’ houses, and ‘fly over’ the newestate.

Residents were given choices of:

Plot allocations House typesSpecial Needs adaptations Colour of bathroom suiteTypes and colours of kitchen units and tops Layout of kitchensFlooring Wall tilingDoors Wall coloursBrick colours Garden sizePatio doors

“We were given a choice of colour of bathroom suite, flooring, doors, brick colour,garden size, patio doors, everything really.” (Tenant)

Tenants were given a shopping list of extras available that they could choose if they wantedto pay for these. These included outside taps, and bigger garden sheds.

tenant organisations could receive theinformation and give their views.

5.8.10 Another group of tenants said theywould like the Welsh AssemblyGovernment to produce clear informationfor tenant organisations on the WelshHousing Quality Standard.

5.8.11 A number of landlords said that theywould like the Welsh AssemblyGovernment to take a key role in pilotingand disseminating best practice on tenantinvolvement.


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Key points: ideas for improving tenant involvement• Staff and tenants had a wide range of ideas for improving tenant involvement. these

included the following:

• developing a range of ways to involve tenants which included non formal, innovative andsometimes consumer based approaches;

• more frequent use of information technology to develop tenant involvement and improvecommunication and information for tenants;

• encourage more involvement at local levels by empowering housing officers to makemore decisions and by providing budgets for tenants and staff to spend onimprovements;

• improving tenant involvement in design by undertaking research to gather the views oftenants living in Pattern Book homes, and revising the Pattern Book to make it lessprescriptive and restrictive;

• extending Welsh Assembly Government consultation periods to ensure that tenantorganisations have time to receive information and give their views;

• improving relationships between tenants and landlords by developing more links andundertaking joint activities.

Introduction6.1 This section provides a summary ofkey points, and some conclusions of theresearch findings set out in Sections 2 to 5.The summary and conclusions lead on toChapter 7, which includes a number ofrecommendations for the Welsh AssemblyGovernment, social landlords, tenantorganisations and national organisations.

Evaluation of other studies and goodpractice guidance6.2 All the previous research reviewedas part of the project, agreed that there isa need for a wide range of differentopportunities for participation whichlegitimise informal as well as formalstructures for involving tenants. A recentODPM study looking at the involvement ofblack and minority ethnic tenants andcommunities in the stock options process(ODPM 2004), found that black andminority ethnic groups wereunderrepresented in tenant participationactivities but that this under involvementwas also experienced by many othergroups and individuals. Both these pointssupport the findings of the research carriedout with tenants and landlords during thisproject.

6.3 While the review found no separateevaluation of informal methods, the use ofsuch methods were considered as part ofevaluations such as Communities Scotland2004, ‘Analysis of the Baseline Study ofTenant Participation’. In addition, theODPM study found examples of somesuccessful informal methods of involvingblack and minority groups, for example, asurgery at a local supermarket, doorknocking consultation exercises, and

contacting tenants via English languageclasses for refugees.

6.4 Most previous studies reviewedfound a wide variation in the level ofresources landlords invested in tenantparticipation. Studies reached conflictingconclusions on whether there was acorrelation between money spent andeffective participation. Two studies found alink between organisations whichperformed well and the commitment theymade to effective participation (TPASCymru/WTF, 1998 and CommunitiesScotland, op cit), while one study foundno such correlation (Housing Corporation,2000). These findings suggest that it isnot resources alone which are needed todevelop successful participation, but alsonumber of other factors. These mightinclude the culture of the organisation andstaff’s general attitude to tenantparticipation, the organisation’s historicalinvestment in tenant participation, and theextent to which the landlord has previouslyresponded to tenants’ concerns.

6.5 The Scottish research also foundthat monitoring and measuring theoutcomes of participation was the leastwell developed element of tenantparticipation practice. This supports thefindings of the project, which show thatmonitoring and measuring procedures inWales generally concentrate on the processrather than on the outcomes ofparticipation.

Tenant participation frameworks6.6 The research found that theframeworks for tenant participation and forcore standards for developing compacts in


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6. Summary and conclusions

Wales and England are very similar.However Welsh core standards include anadditional element, “Getting TenantsInvolved”, which focuses on requirementsfor developing formal structures forparticipation.

6.7 In Scotland, the Scottish Executivehas passed legislation which places astatutory duty on local authorities andhousing associations to engage withtenants, and offers tenant organisations theopportunity to register as Registered Tenantorganisations.

6.8 There is a statutory duty on theNorthern Ireland Housing Executive toconsult with tenants, and the Executivehave established a voluntary framework forcommunity involvement. In NorthernIreland, the level of tenant involvement inboth housing and community developmentis impressive, and is extremely wellresourced by the NIHE and the NorthernIreland Assembly compared with tenantparticipation in Wales.

6.9 The framework in England andWales does not have a statutory basis forthe involvement of tenant organisations,leaving landlords in England and Wales toput in place structures and processes fortenant involvement as they see fit. Theevaluation of tenant compacts across Waleswould suggest that this approach producesa wide variety of practice and differingviews from tenants on the effectiveness oftenant participation. The approach adoptedby the Scottish Executive should create agreater consistency of approach amongstScottish social landlords. However, theapproach adopted in Scotland appears tofocus on formal tenant involvementstructures and on a narrower range ofhousing activities than in England and

Wales. In Northern Ireland the level oftenant involvement is impressive, butrequires significantly greater levels ofcentral funding than elsewhere in the UK.

Tenant participation compacts 6.10 The research found that the term‘tenant participation compact’ was notunderstood by the majority of non-involved tenants and that they did notknow what a tenant participation compactwas. A number of participants suggestedthat the term be amended to ‘tenantinvolvement agreement’ to more accuratelydescribe the content and status of thedocument

6.11 The research found that themajority of Welsh social landlords whoprovided tenant participation compacts,generally have fairly low levels ofcompliance with the guidance produced ontenant participation compacts by the WelshAssembly Government. Of particular noteis the fact that 21% of local authoritylandlords, and 24% of housing associationlandlords who provided compacts, appearnot to have developed these in partnershipwith tenants. This finding suggests avariation in the commitment of sociallandlords to tenant participation, and linksto the finding that 33% of tenantorganisations responding to thequestionnaire survey, do not think theirinvolvement makes any difference to whattheir landlord does. Only 8% of the sociallandlords who provided copies of theirtenant compacts, also provided copies oflocally developed compacts and a further13% of social landlords provided examplesof specialist compacts.

6.12 The above conclusion suggests thatthe low levels of compliance with theguidance on compacts reflects not just on


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some landlords’ lack of enthusiasm fordeveloping compacts, but also on thepractical relevance of the guidance itself.This interpretation is supported by thefindings of the focus groups and telephoneinterviews, in which a significant number oftenants and landlords expressed the viewsthat that the Welsh Assembly Governmentguidance on compacts is too prescriptiveand inflexible, and that it leads to compactsbeing required to concentrate on theprocess of participation rather than on theoutcomes of tenant involvement.

6.13 The research found that theguidance on tenant participation compactsencourages social landlords in the directionof following traditional routes of tenantparticipation, rather than validating thedevelopment of a range of ways to involvetenants. The research found that manytenant organisations and landlordsidentified problems in recruiting newmembers and sustaining involvement intenant organisations, particularly fromyoung people, black and minority ethnictenants and those with support needs, andthat landlords were increasingly adopting arange of ways to ensure the involvementof the majority of tenants.

6.14 The review of tenant participationcompacts found that only 42% of localauthority landlords and 40% of housingassociation landlords, complied with 6 ofthe 12 components of the Welsh AssemblyGovernment’s core standards that relate tothe provision of information to tenants. Apre-requisite for involving tenants in theprocess of decision-making is the provisionof good quality, relevant, timely andunderstandable information to enable themto reach informed views on issues andparticipate effectively. This is particularlyimportant for local authority landlords who

are, or will be, consulting tenants on stockoptions.

Stakeholders’ views of tenantinvolvement6.15 The research found that a significantnumber of participants in the focus groupsunderstood the term ‘tenant participation’to describe only involvement by tenants intenant organisations, rather than todescribe the whole range of methodscurrently used to gather tenants’ views onthe service.

6.16 The research found that themajority of tenants said that they did wanta say in the services provided by theirlandlord, and for their views to be takennotice of and to make a difference. Themajority of non involved tenants takingpart in the focus groups said they wouldprefer to have their say in ways other thanthrough tenant organisations. The majorityof landlords were positive about tenantparticipation. Tenant organisations andsocial landlords identified a wide range ofissues that tenants were consulted on, andagreed on areas of the service wheretenants had been involved.

6.17 A significant number of tenantorganisations said either that they did notknow what difference their contributionshad made, or that their involvement madeno difference to what their landlord did.This contrasted with the views of themajority of social landlords who were ofthe view that tenant participation always orsometimes resulted in positive outcomes.This contradiction would suggest thateither many landlords do not take accountof tenants’ views, or that they do notfeedback effectively to tenants on howtheir involvement has influenced policiesand procedures. The research found


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specific instances of where tenants had notbeen involved in processes, including thedevelopment of tenant participationcompacts. It also found some instances ofwhere tenants’ views had contributed tomajor changes undertaken by landlords,but where the tenant organisationsinvolved were not aware that they hadinfluenced these changes.

How tenants are involved6.18 Over a third of local authoritytenants lived in areas covered by tenantsgroups, compared with under a fifth ofhousing association tenants. Both involvedtenants, and landlords expressed concernsabout the difficulties of attracting specificgroups of tenants to take part in tenantorganisations to ensure that groups wererepresentative of all the landlord’s tenants.

6.19 Non-involved tenants taking part inthe research included young people, blackand minority ethnic tenants and those withsupport needs. The majority of thesetenants clearly stated that they generallypreferred to have their say individually, orin other informal ways, rather than throughjoining a group. The research foundevidence that landlords were addressingthis concern by undertaking a range ofinitiatives to encourage the involvement ofspecific groups of tenants. However,representatives of a national tenant supportorganisation expressed unease at landlordsdeveloping different methods to involvetenants. There appeared to be concernsthat involving tenants through alternativemeans undermined the role of those tenantorganisations.

Successful outcomes of tenantinvolvement6.20 The research found a wide range ofsuccessful outcomes of tenant involvementacross the range of landlord activities, both

at local and strategic levels. Housingassociations were more likely than localauthorities to involve tenants at strategiclevel, including through board membership.

6.21 The research found evidence thattenant organisations were active andachieving positive results in a wide range ofareas, including non housing activitiesrelating to the local community and localenvironment. However, landlords weresignificantly less likely to identify nonhousing activities as successful outcomes oftenant involvement, tending to focus on anarrower definition of the role of tenantinvolvement.

6.22 A number of tenants, landlords andsupport providers agreed that one of thesuccessful outcomes of involvement intenant organisations was the opportunityfor tenant representatives to increase theirpersonal development and to increase theirconfidence, knowledge and skills.

Resources and training 6.23 The research found evidence thatlandlords provided substantial resources toensure the success of tenant involvement,being an estimated total of £1.5 millionper year. Over half of overall resourceswent on training and direct support fortenant organisations, with most of theremainder going on staff costs and training.

6.24 Although housing associationsspend almost twice as much per tenancy aslocal authorities on tenant participation,local authorities are more likely to employ aspecialist tenant participation officer tosupport involvement. This can be apositive benefit as specific skills arerequired to effectively develop tenantinvolvement. However, there is also a needto ensure that tenant participation issupported by other staff and departments


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in the organisation, so that it is‘mainstreamed’ rather than seen as theresponsibility of one staff member ordepartment. In addition, the researchfound that almost twice as many localauthorities had managed to access externalfunding to support participation, whichmay suggest that having a designatedofficer responsible for participation makes itmore likely that organisations have moreresources available for preparing fundingapplications.

6.25 The research found a contradictionin perceptions of training opportunitiesbetween tenants and landlordsorganisations. While all housingassociations and the vast majority of localauthorities said that they provided sometraining for tenants, only just over half oftenant organisations said that they wereaware of this. The overall majority oftenant organisations that did receivetraining said that it met their requirements.However, both staff and tenantrepresentatives identified problems withpersuading tenants to take up trainingopportunities. Some tenants commentedon the difficulty of having to traveldistances to access training, includingsometimes to England.

Problems with tenant involvement6.26 The research found consistent viewsfrom tenant organisations and staff thatthe most common problem to do withdeveloping successful tenant involvementwas a reluctance by the majority of tenantsto take part in formal groups. Staff andtenant representatives alike wereconcerned about the lack of representationof a range of tenants in formal tenantparticipation structures, particularly citingyoung people, BME tenants, those withsupport needs, single parents and disabled

tenants as least likely to get involved intenant organisations. Non involvedtenants from these groups confirmed theview that they would prefer to get involvedin a variety of other ways, including givingtheir views individually, as part of socialevents, by attending one off discussions togive their views on a particular topic, or bytaking part in a specific project such asproducing a newsletter. This finding wassupported by the results of tenant surveysundertaken by two landlords, whichshowed that the majority of their tenantsdid not want to get involved in groups

6.27 The above finding reflects concernsexpressed in other areas of society today.Generally, commitment to communityactivism and involvement has dwindledover the past twenty years. It is not justtenant organisations that are finding itdifficult to recruit new members and toencourage people to participate collectively,but also political parties, voluntaryorganisations and community groups.Turnout of those eligible to vote in bothgeneral, local and European elections isconsistently low. According to researchcompiled by MORI in 2002, 90% of youngpeople express an interest in politics, butonly 39% of young people turned out tovote in the 2001 general election.However, there is evidence that engagingpeople in voting by text, internet andtelephone for TV reality game shows suchas Big Brother and Pop Idol is consistentlyhigh, particularly amongst young people.This supports the findings of the research,that all tenants say they want to have a sayin the service, but only a limited numberare prepared to get involved throughformal structures. It is also worth notingthat the Government is currentlyinvestigating introducing alternativemethods of voting by text messaging and


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the internet, to encourage higher levels ofparticipation in elections.

6.28 There is a need to recognise andacknowledge the imbalance within theWelsh Assembly Government’s regulationsfor housing associations and guidance forlocal authorities, which require sociallandlords to consult with their tenants andtake into account their views when makingdecisions, but do not require tenants toparticipate in consultation processes.Current requirements on social landlordsare based on the assumption that tenantsare willing to give their time voluntarily toget involved and commit to groups.Forcing tenants to voluntarily engage in theprocess of participation is obviously not arealistic option, since it is unlikely that thiswould be positively received by themajority of tenants, and such arequirement would hardly encouragepositive and trusting relationships betweentenants and landlords.

6.29 The research found many examplesof tenant organisations working effectivelyand in partnership with their landlord.There is no doubt that tenant organisationshave a key role in delivering successfultenant participation. Whilst acknowledgingthat involvement in tenant organisations isthe choice of the minority of tenants, it isimportant to recognise that tenants havethe right to organise independently, andthat many tenant organisations are workingto develop ways of engaging with thewider community. The research shows thatwhile landlords need to support and workwith tenant organisations, they must alsotake account of the preferences expressedby the majority of tenants living in socialhousing, and develop additional ways ofinvolving all tenants.

6.30 The research shows that it is theoutcomes of tenant involvement as muchas the process, that are important totenants. A number of tenantrepresentatives expressed concern thattheir involvement did not make anydifference to what their landlord did.Several tenants said that they wereconsulted and listened to, but that theirlandlords took no notice of their views.The evidence is that current regulation,performance indicators, monitoring andevaluation all concentrate on the process ofparticipation rather than on the outcomes.This can too easily lead to high levels oftenant involvement through impressivestructures, which result in no positiveoutcomes. Shifting the emphasis byregulation for housing associations, andstrengthening the guidance for localauthorities, to place equal importance onevaluating the outcomes of the process aswell as the process itself, would ensure thatlandlords have to take notice of and act ontenants’ views, and that tenants have to beinformed of the action that has been takenas a result of their involvement.

6.31 A number of housing associationsexpressed concern that the WelshAssembly Government Pattern Book forhousing associations imposed restrictionswhich limited the ability of tenants toeffectively participate in the design of theirhomes. The research also identified anumber of difficulties with the detailedrequirements of the Pattern Book whichresulted in them being unable to designhomes to take account of individualtenant’s needs.

Improving tenant involvement6.32 The research found that one of themost frequent suggestions for improvingtenant involvement was making more


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frequent use of information technology togather views and improve communicationwith and information to tenants. Severallandlords had carried out research toestablish tenants’ access to computers andthe internet, and several were planning oralready had introduced initiatives whichinvolved communication via websites andmobile phones. This again reflects thegrowing trend in society, particularlyamong young people, to communicate viathese means.

6.33 Another of the most frequentsuggestions for improvement involvedencouraging more tenant involvement andautonomy at local levels. It was suggestedthat this be done through empoweringhousing officers to make more decisions

and so be able to deliver directly on tenantrequests, and by providing budgets for areaimprovements which can be spent onpriorities identified by the people living andworking in the area.

6.34 It was also suggested by a numberof housing associations that the WelshAssembly Government undertake furtherresearch with tenants who have lived, orcurrently live in Pattern Book homes, togather their views on the Pattern Bookdesign. It was suggested that it would behelpful to loosen the requirements of thePattern Book in order to allow landlords totake account of tenants’ views and toenable them to work with tenants toproduce homes suited to individual needs.


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Introduction7.1 The summary and conclusions of theresearch lead to the followingrecommendations for the Welsh AssemblyGovernment, local authority and housingassociation landlords, tenant organisationsand national organisations to consider. Therecommendations aim to bring aboutchanges that should ensure that sociallandlords and tenants across Wales canbest harness the benefits that tenantinvolvement can bring to housingmanagement and design.

Recommendations for the WelshAssembly Government7.2 The term “tenant participation”should be amended to become “tenantinvolvement” in order to encourage acreative and innovative approach toinvolving tenants and to recognise thatboth formal and informal ways of involvingtenants are valid.

7.3 The term “tenant participationcompact” should be amended to become“tenant involvement agreement” to reflectthe content and status of the document.

7.4 The research found that the currentguidance requiring housing associations tohave in place both a tenant participationstrategy and a tenant participationcompact, is cumbersome. In addition, theresearch shows that tenant participationcompacts are not being used as effectivelyas originally envisaged. It is thereforerecommended that the Welsh AssemblyGovernment removes the mandatoryrequirement on social landlords to put inplace tenant participation compacts. Thecurrent compact guidance should be

rewritten to develop a National TenantInvolvement Strategy.

The Strategy should loosen the currentemphasis in requirements for landlords andtenants to follow traditional routes oftenant participation, and should validate arange of ways of involvement as outlinedin this report, to ensure that the views ofall tenants can be heard. The Strategyshould emphasise the importance ofachieving positive outcomes to tenantinvolvement as well as effective processes.New guidance should be issued to bothlocal authorities and housing associationsrequiring that they put in place a tenantinvolvement strategy based on the WelshAssembly Government model, togetherwith a voluntary tenant involvementagreement (compact) if this is the wish oftenants and landlords.

It is recommended that the National TenantInvolvement Strategy:

• sets out specific minimum standards forinvolving tenants;

• recognises the validity and role ofrepresentative tenant organisations;

• contains a range of valid methods oftenant involvement to obtain the viewsof all tenants;

• requires that landlords consider thesemethods in consultation with all tenantswhen developing their strategy fortenant involvement;

• sets out procedures for ensuring thattenants receive accurate and accessible


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7. Recommendations

information under the ‘Right to Know’requirements;

• includes processes for measuring thelevel of responses from tenants to eachdifferent tenant involvement method;

• sets out the ways in which landlords willrecord and use the information theyreceive as a result of tenant involvementactivities;

• sets out the ways in which landlords willinform tenants of how their views haveaffected landlords’ decisions;

• identifies the level of resources andtraining that landlords will commit to

developing and sustaining tenantinvolvement;

• allows for the development ofoverarching, local and specialist tenant;involvement agreements, depending onthe requirements of individual tenantorganisations, landlords and the widertenant community; and

• includes an action plan which allows forregular evaluation of the outcomes andprocess of tenant involvement.

A visual guide showing this approach in aWheel of Involvement, is set out below:


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7.5 The Welsh Assembly Governmentshould advise and support local authoritieswho are consulting their tenants aboutstock options to ensure that all tenantsreceive accurate, adequate and accessibleinformation in accordance with the ‘Rightto Know’ about:

• the Welsh Housing Quality Standard;

• its impact on landlords;

• the options available to their particularlandlord;

• the options that they can support; and

• the consequences of supporting eachoption.

7.6 The Welsh Assembly Governmentregulation and related guidance should beamended to require that all social landlordssupport tenant organisations and help toensure that such groups are independentand tenant led, by providing them withinformation to enable them to accessservices, such as those provided by theTenant Participation Advisory Service(TPAS) Cymru, the Welsh Tenants’Federation (WTF), the Welsh Council forVoluntary Action (WCVA), and Cymorth.

7.7 The Welsh Assembly Governmentshould set out information for tenants andlandlord organisations on appropriatesources of independent funding forsupporting and developing tenantinvolvement both in housing, communityand environmental issues. This shouldinclude amendments to current regulationand guidance to require that all sociallandlords provide information to tenantorganisations on potential sources offunding for tenant involvement, and assist

tenant organisations in drawing upapplications for independent funding suchas Tenant Empowerment Grants, SocialHousing Management Grant, CommunitiesFirst Trust Fund, Princes Trust, NationalLottery, Children in Need, Comic Relief, etc.

7.8 The Welsh Assembly Governmentaudit and inspection framework for sociallandlords should include the testing oftenant involvement strategies andoutcomes. The focus of testing should beon identifying the outcomes of tenantinvolvement as well as the process. It isrecommended that the following areassessed:

• The accuracy, adequacy and accessibilityof information provided to tenants;

• The different methods by which theorganisation gathers the views oftenants on its service;

• What areas of the organisation’s serviceshave been affected or influenced bytenants’ views;

• How information on changes made as aresult of tenants’ views is reported totenants; and

• Tenants’ views of the ways in which theyhave been involved and the impact thishas had.

7.9 The Welsh Assembly Governmentshould review the Pattern Book for housingassociations in consultation with landlordsand with tenants who live, or have lived, inPattern Book homes. It is recommendedthat the Pattern Book requirements berevised to made them less prescriptive andrestrictive, to enable landlords to effectivelyinvolve tenants in the design of their


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homes and to take account of the needs ofindividual tenants.

7.10 The Welsh Assembly Governmentshould develop a dissemination, supportand training strategy for tenantorganisations and landlords which includesmaintaining:

• an up to date database of good practicein tenant involvement which can beavailable to tenants and landlords;

• a database of training and supportopportunities for tenants and landlordswishing to develop effective tenantinvolvement; and

• up to date information on potentialsources of funding for tenantinvolvement and training.

Recommendations for tenantorganisations7.11 Tenant organisations should exploreways of extending and encouraging theinvolvement of a range of members, andensure that they share successes, and makeuse of good practice examples of othergroups. This could be achieved through

• study visits to other organisations;

• regular use of the proposed WelshAssembly Government’s database ofgood practice; and

• exploring new initiatives with the help ofexternal funding sources such as theTenant Empowerment Grant and SocialHousing Management Grant scheme.

7.12 Tenant organisations should seekclarification from their landlords about:

• what training and conference activitiestenant organisations are expected tofund from their budgets;

• whether tenant organisations haveaccess to funding from the landlord’sother budgets for training andconferences; and

• whether the tenant organisation’sbudget is sufficient to cover members’training needs.

7.13 Tenant organisations shouldrecognise that it is acceptable for theirorganisations to ‘staircase’ up and down inactivity and numbers according to currentneeds and circumstances, and to build intotheir constitutions provision for restingperiods and reviewing mechanisms to takeaccount of this fact.

Recommendations for social landlords7.14 Social landlords should developtenant involvement strategies in line withthe Welsh Assembly Government NationalTenant Involvement Strategy, (seerecommendation 7.4), and explore ways ofextending and encouraging theinvolvement of all tenants through utilisingthe processes set out for tenantorganisations in recommendation 7.11.

7.15 Social landlords should keep an upto date database of contact details for alltenants to enable them to effectivelycommunicate with tenants and to gathertheir views. These should include whereapplicable, land and mobile phone numbersand e mail addresses. It is suggested thatlandlords combine the tenant contactinformation held by different departmentsof the organisation, to ensure thatcomprehensive information is held by all.


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7.16 Social landlords should carry outsurveys with their tenants to establishtenants’ access to the internet, maketraining available for tenants oninformation technology, and explore waysof developing the organisation’scommunication with tenants through thesemeans.

7.17 Social landlords should ensure thattenant involvement activities become acore activity for all departments of theirorganisation, and that all informationprovided for tenants is clear, accurate andaccessible and timely, to enable them toreach informed views on issues andparticipate effectively.

7.18 Social landlords should ensure thatthey develop systems to feedbackeffectively to tenants on the outcomes oftheir involvement, how tenants’ views havebeen taken into account and the actionthat has been taken as a result of theirinvolvement.

7.19 Social landlords should supportrepresentative tenant organisations andhelp to ensure that such groups areindependent and tenant led, by providingthem with information and resources toenable them to access services such asthose provided by the Tenant ParticipationAdvisory Service (TPAS) Cymru, the WelshTenants Federation (WTF), the WelshFederation of Housing Associations(WFHA), the Welsh Council for VoluntaryAction (WCVA), and Cymorth

7.20 Social landlords should ensure thatthey clarify to tenant organisations:

• what training and conference activitiestenant organisations are expected tofund from their budgets;

• whether tenant organisations haveaccess to funding from the landlord’sother budgets for training andconferences; and

• whether the tenant organisation’sbudget is sufficient to cover members’training needs.

7.21 Social landlords should developstrategies which recognise and respond tothe fact that tenant involvement will ofteninclude community development issues,and ensure that they can respond positivelywhen such issues are raised by tenants, forexample by:

• building up effective networks withrelevant organisations to develop a multiagency approach;

• providing tenant organisations withinformation on funding opportunities,and signposting them to relevantorganisations; and

• assisting tenant organisations withfunding applications for communityinitiatives.

7.22 Social landlords should explore waysof encouraging more tenant involvementand autonomy at local levels, through:

• empowering housing officers to makemore decisions and deliver directly ontenant requests; and

• providing budgets for areaimprovements which can be spent onpriorities identified by the people livingand working in the area.


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Recommendations for nationalorganisations7.23 The two national tenant supportorganisations, WTF and TPAS Cymrushould acknowledge that the preferencesof the majority of tenants are to have theirsay in other ways than through formaltenant participation structures. Theorganisations should take this into accountwhen:

• planning their future strategies; and

• developing their services to ensure thatthe involvement preferences of themajority of tenants are taken intoaccount.

7.24 National organisations shoulddisseminate information effectively ongood practice in tenant involvement, boththrough their websites, informationprovided to members and by regularcontributions to the Welsh AssemblyGovernment’s database as outlined inrecommendation 7.10.

7.25 The two national tenant supportorganisations, WTF and TPAS Cymru,

should work together to establish andmaintain fully comprehensive, accurate andup to date information on contact detailsfor all tenant organisations in Wales. Theprocess should include:

• carrying out an initial joint ‘health check’of current database information held byboth organisations on tenantorganisations; and

• informing all tenant organisationscontributing information to bothdatabases that their details will beshared by the two organisations unlessthey lodge an objection.

7.26 National housing association andtenant support organisations, WFHA andTPAS Cymru should ensure that theyprovide adequate and effective supportboth for existing tenant Board members,and for potential tenant Board memberswhere new stock transfer organisations arebeing set up. This support should includean annual audit of Board members’ trainingneeds.


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LIST OF PARTICIPANTS IN THERESEARCHA total of 130 organisations participated inthe research and contributed informationand their views. A detailed breakdown oforganisations is set out below:

1 Questionnaires completed (108)Housing Associations (20)Aelwyd

Bro Myrddin

Cadwyn

Clwyd Alyn

Cantref

Clwyd

Cynon Taf

Dewi Sant

Family

First Choice

Glamorgan and Gwent

Gwalia

Gwerin

Hafod

Mid Wales

Pembrokeshire

Rhondda

United Welsh

Valleys to Coast

Wales and West

Local Authorities (14)Bridgend

Caerphilly

Carmarthenshire

Conwy

Denbighshire

Flintshire

Monmouthshire

Neath Port Talbot

Pembrokeshire

Powys

Rhondda Cynon Taf

Swansea

Vale of Glamorgan

Wrexham

Support Providers (2)Foundation Housing

Innovate Trust

Tenants and Residents Organisations(72)Aberystwyth and North Ceredigion Tenantsand Residents Association

Barracks Field Tenants Association

Barry Hafod Tenants Association

Blackmill and Glynogwr Tenants andResidents Association

Bilton Park Tenants and ResidentsAssociation

Bridgend County Residents Federation

Bridgend Tenants Federation


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Appendix 1

Bronhaul Residents Association

Bruton Park Residents Association

Bryntirion Tenants and ResidentsAssociation

Cadwyn Tenants Panel

Cefn Llan Rhydaraf Fro ResidentsAssociation

Coedcae Tenants and Residents Association

Colcot Residents Association

Croesern Residents Association

Cwmbran Southville and Tower ResidentsAssociation

Cwmcelyn Tenants and ResidentsAssociation

Cwrt Severn RA

Cwrt WM Hughes Tenants Committee

Cynon Taf Tenants Consultative Forum

Darren Las & Bryntawel Residents Group

Eastern Valley Tenants Panel

Eastside Tenants and Residents Association

Elis Fisher Tenants Association

Family Housing Tenants Association

Ffordd Seign Tenants Association

Fir Tree Drive Tenants and ResidentsAssociation

Glamorgan and Gwent St Mellons Tenantsand Residents Association (2)

Garden City Tenants and ResidentsAssociation

Garth Owen, Maes y Rhandir & Maes yDail Tenants and Residents Association

Gilfach Fargoed Tenants and ResidentsAssociation

Golden Hill Community Group (2)

Graig Community Association

Hanover Court Residents Association

Harbour View and Royal Clase ResidentsBoard

Hill Top (South Side) Tenants and ResidentsAssociation

INTACT

Isgraig Tenants and Residents Association

Llansawel Residents

Llys Ednyfed Residents Association

Maerdy/Ferndale Tenants and ResidentsBoard

Maes y Deri Tenants and ResidentsAssociation

Marsh Community Association

Moriah Tenants and Residents Rhymney

Mornington Meadow Tenants Association

Neath Port Talbot County Borough CouncilResident Participation Forum

Newton and District Tenant and ResidentForum

Old Gurnos Tenants Association

Old Hereford Residents Association

Pant Tenants and Residents

Penplas Tenants Panel

Petit Goffa Residents Association

Powys and District Partnership Board

Rassau Garnwydden Tenants and ResidentsAssociation

Residents Panel (South) Wales & WestHousing Association

Sealand Manor Residents Association


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Selwyn Morris Court Association

Shakespeare Residents Association

St Mellons Tenants Association

Tan y Lan Tenants Association

The Hill

Thompson Street Estate Residents

Thornhill Tenants and Residents Association

Top Gwaun Helyg Tenants and ResidentsAssociation

TPAS Gwynedd

TRAC

Trem yr Wyddfa

Treowen Village Tenants and ResidentsAssociation

Twmbarlwm View Residents Associationand Tenant Consultative Committee

Vale Housing Federation

West Mill Community Association

Wildmill Area Tenants and ResidentsAssociation

2 Telephone interviews (33 interviews with sample oftenant/board/members, senior managers,front line staff and tenant and residentorganisation representatives)

Housing associationsClwyd

Eastern Valley

Glamorgan and Gwent

Gwerin

Hafod

Pembrokeshire

Rhondda

Taff

Local authorities Blaenau Gwent

Monmouthshire

Powys

Torfaen

Cardiff

Merthyr Tydfil

Vale of Glamorgan

Wrexham

Support providers Caer Las

Hafan

First Choice

Llamau

Trothwy

West Glamorgan Housing Consortium

3 Focus groups - Case studyorganisations Cadwyn Housing Association

Charter Housing Association

Gwynedd County Borough Council

Mid Wales Housing Association

Rhondda Cynon Taf County BoroughCouncil

City and County of Swansea *

Swansea Housing Association *

* combined focus groups


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4 Interviews with nationalorganisations Cymorth

Tenant Participation Advisory Service(TPAS) Cymru

TPAS Cymru tenant participation officersnetwork

TPAS Cymru tenant board membersnetwork

Welsh Federation of Housing Associations(WFHA)

Welsh Local Government Association(WLGA)

Welsh Tenants Federation (WTF)

5 Presentations and discussions atconferences WTF/TPAS Cymru annual conference 2003

Chartered Institute of Housing Cymruannual conference 2004


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DETAILED METHODOLOGY1 Evaluation of other studies andgood practice guidance The following represents a detaileddescription of each phase of the research.This part of the project was carried out inthree stages.

• The first stage involved a review ofrecent studies carried out in England,Scotland and Wales to evaluate differentelements of tenant participation. Asummary of the main findings andrecommendations from each study wasidentified. This led to an analysis ofcommon themes to emerge from thestudies.

• The second stage comprised a review ofexisting good practice guidance ontenant participation from the studiesreviewed in the first stage, and fromother sources such as the CharteredInstitute of Housing Good PracticeBriefing Innovation in ResidentInvolvement. Specific points of goodpractice guidance were summarisedunder the common themes identifiedfrom existing studies.

• The third stage identified good practiceexamples and examples of innovationfrom a variety of sources, including thestudies reviewed in the first stage and

validated sources of good practice suchas the Chartered Institute of HousingGood Practice Unit, HouseMark andpositive practice identified in AuditCommission inspection reports

2 The questionnaire surveyThe purpose of the survey was to gain apicture of tenant involvement in housingmanagement and design throughoutWales. The questionnaire was circulated to:

• all 22 local authorities;

• the 29 major housing associations;

• a range of supported housingorganisations / managing partners; and

• 333 tenants and resident groups.

The survey was the first stage in gatheringinformation and views from organisationsand individuals involved in TP across Wales.

Respondents were given an assurance thatall information would treated asconfidential to CIH Cymru and RowanAssociates and that individual responseswould not be disclosed to otherorganisations without the consent of theorganisation concerned.

Responses were received from:


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Appendix 2

Landlord No % No of Properties Average

Local Authorities 14 64% 107,084 7649

Housing Associations 20 69% 50,121 2506

Total 36 67% 157,355

78 responses were received from Tenants &Residents Associations, which is 23% ofthose the researchers attempted to contact.

5 responses were received from supportproviders.

3 Evaluation of Tenant Participation CompactsEach local authority and housingassociation landlord in Wales was asked toprovide a copy of their organisation’stenant participation compact for evaluationas part of the research. A total of 39tenant participation compacts werereceived. Of these, 14 compacts werereceived from local authority landlords and25 were received from housingassociations, representing an overallresponse rate of 64%.

4 Telephone interviewsA total of 33 telephone interviews werecarried out. The aim of the telephoneinterviews was to follow up issuesidentified from the questionnaire survey, toprovide a more detailed snapshot of tenantparticipation across a range oforganisations and stakeholders.

The breakdown of those interviewed is setout below

5 The case study focus groups28 focus groups were held, gathering theviews of a total of 72 staff and 98 tenants.

The case study organisations were:

Local authorities Housing associationsGwynedd CadwynRhondda Cynon Taf CharterSwansea Mid Wales

4 focus groups were carried out withineach case study organisation. Each focusgroup comprised different stakeholders asfollows:

Group 1 Senior managers and sometenant board members

Group 2 Front line staffGroup 3 Tenants involved in formal tenant

participation structures and sometenant board members (referredto in this report as “involved tenants”)

Group 4 Tenants who are not involved informal tenant participationstructures (referred to in this report as “non-involved tenants”)

This group included:

• people with learningdisabilities;

• sheltered housing tenants;• those with physical

disabilities;• young people;• BME tenants; and• people living in supported

housing including exoffenders, those with mentalhealth, drug and alcoholproblems.


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Participants No

LA staff 7

LA chairs 1

RSL staff 8

RSL Chairs 1

Tenant board members 4

Supported housingorganisations

6

Tenant representatives 6

The breakdown of participants taking partin the focus groups was as follows:

In summary, the breakdown ofstakeholders contributing to the researchwas as follows:


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Group 1 Group 2 Group 3 Group 4

Housing Associations 10 30 29 21

Local Authorities 13 19 24 24

Total 23 49 53 45

Questionnairestenant organisations 72social landlords 34support providers 5

Telephone interviewstenant organisations &tenant board members 10social landlords 17support providers 6

Focus groupssocial landlord tenants 98social landlord staff 72


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BIBLIOGRAPHY OF OTHER STUDIES AND GOOD PRACTICE GUIDANCE

Audit Commission (2002) Connecting with Users and Citizens London: Audit Commission

Audit Commission/HouseMark (2003) CD Rom of Housing Inspectorate Positive PracticeSeptember 2000 to September 2003 Coventry: HouseMark

Chartered Institute of Housing (2004) Good Practice Briefing Innovation in ResidentInvolvement Coventry: CIH

Communities Scotland (2004) A Good Practice Framework for Tenant Participation inScotland Edinburgh: Communities Scotland

Communities Scotland (2003) Analysis of the Baseline Study of Tenant ParticipationEdinburgh: Communities Scotland

Communities Scotland (2003) Methodologies for Obtaining Customers’ Views of ServiceQuality Edinburgh: Communities Scotland

Community Housing Task Force (undated) Communication and Consultation Strategies inOptions Appraisal London: CHTF

Community Housing Task Force (undated) Tenant Empowerment Strategies in OptionsAppraisal London: CHTF

Housing Corporation (2002) Customer Involvement: Opportunities for Learning fromthe Private Sector? London: Housing Corporation

Housing Corporation (2001) The Involvement Business: The Business Imperative forInvolving Consumers in the Work of Registered Social Landlords London: Housing Corporation

Housing Corporation (2000) Study of Tenant Participation in Registered Social LandlordsLondon: Housing Corporation

ODPM (2003) Interim Evaluation of Tenant Participation Compacts London: ODPM

ODPM (2004) Empowering Communities, Improving Housing: Involving Black andMinority Tenants and Communities London: ODPM

ODPM (2003) Interim Evaluation of the Innovation into Action ProgrammeLondon: ODPM


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Appendix 3

ODPM (2002) Tenants Managing: An Evaluation of Tenant Management Organisationsin England London: ODPM

Scottish Executive (2001) Housing (Scotland) Act 2001: Guidance on TenantParticipation Edinburgh: Scottish Executive

Scottish Consumer Council (2003) Open house? A study of tenant organisations inScotland Glasgow: SCC

Tenant Participation Advisory Service Cymru/Welsh Tenants Federation (1998) Count Us In!A Report on Tenant Participation in Wales Cardiff: TPAS Cymru/WTF

Tai Cymru (1998) Tenant Participation Topic Audit Cardiff: Tai Cymru

Tai Cymru (1997) Regulatory Requirements for Registered Social landlords in WalesCardiff. Tai Cymru

Welsh Assembly Government (2001) Review of Tenant Participation: A Good PracticeNote

Welsh Assembly Government (2000) Tenant Participation Compacts for Local Authoritiesin Wales Cardiff. Welsh Assembly Government


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WELSH ASSEMBLY GOVERNMENT CORESTANDARDS FOR TENANTPARTICIPATION COMPACTS

Housing ServicesThe first element of the core standardsrelates to the areas of housing services towhich tenant participation compacts shouldapply. The framework states that these arethe housing services to which tenantparticipation compacts should apply:

• Developing the local authority’s housingpolicy and strategy, including andreviewing investment options;

• Drawing up the authority’s spendingprogrammes;

• Developing and putting in placeregeneration and improvementprogrammes;

• Budgets, finance and rents;

• Policies for setting rents and servicecharges;

• Policies for allocation and letting homes;

• Managing housing services;

• Tenancy conditions and agreements;

• Leaseholder issues and charges;

• Anti social behaviour policies;

• Service and performance strategies andarrangements for monitoring andreviewing the authority’s performanceand dealing with any problems;

• Setting, monitoring, reviewing serviceperformance standards and targets formanaging housing and neighbourhoodservices and dealing with problems;

• Neighbourhood issues which affecttenants homes or managing the housingservice;

• Environmental works;

• Customer care;

• Arrangements for obtaining tenantsviews on the quality and extent ofservices provided by the landlord;

• Arrangements for providing informationfor tenant consultation and involvement,including handling complaints anddealing with any problems.

ResourcesThe guidance sets out six components ofresources to tenants to enable them toestablish new structures and to maintainexisting structures for participation. The sixcomponents of resources are set out in theframework, which states that supportshould include:

• reasonable financial support, forexample start up grants, annual grants,loans and estate budgets;

• facilities, for example, access to premisesand equipment, stationery,photocopying and help in sending outnewsletters;

Appendix 4

• advice, community developmentsupport, and support for local tenantnetworks;

• training to meet the needs of tenantsrepresentatives or tenants representativegroups, including joint training with localauthority staff and members, if this isappropriate;

• providing new approaches to encouragetenants to become involved and stayinvolved; and

• provision of information on level ofresources available, the lead officersresponsible for delivering specific goalsin its strategy, and the resourcesavailable specifically to support trainingamongst tenants and tenant groups.

MeetingsThe guidance sets out five components toensure the effective conduct of meetingsbetween landlord and tenants. Theframework states that the landlord should:

• publicise meetings effectively withadequate notice. This may include,where appropriate, personal invitationsto every service user, advertisements inlocal newspapers and public places, andinformation in community languages;

• provide allowances, transport ortechnical help for people who needspecial help, for example childmindingallowances to allow people with childrento attend relevant meetings, orarranging for interpreters, signers andinduction loops as appropriate andpractical;

• hold meetings at suitable times and insuitable places;

• make sure that meetings are run in a fairand democratic way, so that everyonegets the chance to have their say and iskept informed; and

• make sure that information on theoutcomes of meetings and otherfeedback is provided to everyone whoattended, and affected tenants.

InformationThe guidance sets out twelve componentsto ensure that information is effectivelyprovided to tenants. The framework statesthat information should:

• be expressed clearly, using plainlanguage and avoiding jargon;

• be accessible (using large print, Braille,cassette, translations etc.);

• not use racist, sexist or other biasedlanguage; and

• be of good quality, timely and relevantto tenants needs.

Tenants should receive information on:

• housing strategies, policies and priorities;

• housing investment options and plans;

• arrangements for developing andputting in place best value, includingmonitoring and reviewing performance,and setting service standards andtargets;

• housing management and other relevantlocal services;

• reports on the local authority’sperformance in achieving housingmanagement targets set;


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• plans for spending and for future workwhich will affect tenants, their homesand their area;

• opportunities and support for tenantinvolvement, influence and control; and

• other local matters which tenants see asrelevant.

Getting tenants involvedThe framework states that successfulstructures for getting involved should makesure that:

• tenants are given a choice in how theyare consulted and they are told howtheir views affect housing servicedelivery and targets;

• most tenants and residents arerepresented by recognised and activetenant and resident organisations, andthat all tenants are represented in otherways;

• where appropriate, a tenants federationor other similar organisation is in place;

• other informal measures are in place,such as tenants panels or focus groups;and budgets are controlled by tenantswhere this is appropriate.

Tenant organisations, a menu of optionsThe framework states that if tenants takepart in formal structures with a role indecision making, they should show thatthese structures are democratic and have:

• a model constitution;

• equal opportunities policies which theykeep to;

• regular elections, and a minimummembership level;

• open financial records;

• regular meetings and minuted AGMwith the minimum number of memberspresent;

• a minimum number or set percentage oftenants in the membership;

• open membership;

• arrangements for making complaints andhaving matters put right; and

• arrangements for an annual review withaccess to independent help to carry thisout.

Monitoring and measuring performanceThe framework states:

In monitoring TP compacts, the localauthority and tenants should:

• assess the benefits and outcomes of theTP compacts against their originalexpectations;

• set clear service standards and targetsfor tenants to be consulted andinvolved;

• monitor and evaluate the effect andvalue for money of different approachesto getting tenants involved, includingthe scope for changing and developingthese to make sure they continue to beeffective and efficient;

• monitor tenant representatives andgroups to make sure there are equalopportunities; and


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• check the authority’s procedures fortenant consultation and involvement areeffective, kept to, and encouragetenants from all parts of the communityto become involved.

Performance standards and targets shouldbe set each year for the following:

• Whether tenants are satisfied with thearrangements;

• Keeping tenants informed;

• Taking tenants views into account indecisions;

• What tenants think of value for money;

• Tenants satisfaction with the area.


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111

FURTHER INFORMATION AND RESOURCESThis appendix includes information on:

1) Websites and good practice services

2) Recent and relevant publications

1) Websites and good practice services

Appendix 5

Who Description Where

Communities Scotland Tenant Participation Development Team

www.communitiesscotland.gov.uk/Web/Site/Whatwedo/Tenant_Participation.asp

Community Housing Task Force

Assists local authorities, tenantsand acquiring RSLs through theprocess of stock transfer,developing Arms LengthManagement Organisations(ALMOs) and the Private FinanceInitiative (PFI), and guidesauthorities through the Option Appraisal process

www.odpm.gov.uk/stellent/groups/odpm_housing/documents/page/odpm_house_601949.hcsp

[email protected].

Good Practice Unit,Chartered Institute of Housing

Unit holding examples of goodpractice and able to answerpractical and legal queries

Subscription service

www.cih.org

024 7685 1767

Housing QualityNetwork

HQN examines and evaluatesmeasures which can lead toimprovements to the performance,quality and value of housing services

Subscription service

www.hqnetwork.org.uk

01723 350099


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Who Description Where

Tenant Participation andAdvisory Service Cymru

TPAS Cymru works nationallyto promote and supporteffective, sustainablepartnerships between tenantsand social landlords

www.tpascymru.org.uk

029 2023 7303

Welsh Assembly Government Website includes Assembly guidance

www.housing.wales.gov.uk

Welsh Tenants Federation Assists tenants and residentsthroughout Wales to improvequality of life by empoweringthem to take a full part inrelation to their homes andcommunities

www.welshtenantsfed.com

029 2064 5168

2) Publications


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Title Description Available from

A Good Practice Framework forTenant Participation in Scotland

Published in2004

Communities Scotland

www.communitiesscotland.gov.uk/web/FILES/CSPrecis35.pdf

Analysis of the Baseline Study ofTenant Participation

Published in2003


www.communitiesscotland.gov.uk/web/FILES/CSPrecis28.pdf

Communication and ConsultationStrategies in Options Appraisal

Undated Community Housing Task Force


Connecting with Users and Citizens

Published in2002

Audit Commission

www.audit-commission.gov.uk/Products/NATIONAL-REPORT/F1B75570-9AA7-469E-8BA6-3354AA457D61/Making%20Connections_FINAL.pdf

Customer Involvement:Opportunities for Learning fromthe Private Sector?

Published in2002

Housing Corporation

www.housingcorplibrary.org.uk/housingcorp.nsf/AllDocuments/C33610636D6E639980256D35003DE0AA

Empowering Communities,Improving Housing: InvolvingBlack and Minority Tenants andCommunities

Published in2004

Office of Deputy Prime Minister

Good Practice Briefing Innovationin Resident Involvement

Published in2004

Chartered Institute of Housing

024 7685 1752

Housing (Scotland) Act 2001:Guidance on Tenant Participation

Published in2001

Scottish Executivewww.scotland.gov.uk/library5/housing/gotp-00.asp


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Interim Evaluation of TenantParticipation Compacts

Published in2004



Interim Evaluation of theInnovation into ActionProgramme

Published in2003



Just do it: a directory of examplesof service user involvement insupported housing

Published in2000

Housing Corporation

020 7393 2000

Methodologies for ObtainingCustomers’ Views of ServiceQuality

Published in2003


www.communitiesscotland.gov.uk/web/FILES/RR13.pdf

Open house? A study of tenantorganisations in Scotland

Published in2003

Scottish Consumer Council

www.scotconsumer.org.uk/reps03/rp05open.pdf

Review of Tenant Participation inWales: A Good Practice Note

Published in2001

Welsh Assembly Government

www.housing.wales.gov.uk/archive.asp?a=99

Study of Tenant Participation inRegistered Social Landlords

Published in2000

Housing Corporation

www.housingcorplibrary.org.uk/housingcorp.nsf/AllDocuments/6077F9D411E41EB980256AB9003E235A

Tenant Empowerment Strategiesin Options Appraisal

Undated Community Housing Task Force



115


Tenants Managing: An Evaluation of TenantManagement Organisations in England

Published in 2002 Office of Deputy Prime Minister


Tenant Participation Compactsfor Local Authorities in Wales

Published in 2000 Welsh Assembly Government

www.housing.wales.gov.uk/pdf.asp?a=i3

The Involvement Business: The Business Imperative forInvolving Consumers in theWork of Registered SocialLandlords

Published in 2001 Housing Corporation

www.housingcorplibrary.org.uk/housingcorp.nsf/AllDocuments/064CA54BF0F58A2F80256AB9003E2304

Organisation Example Contact

Carr Gomm Equalities: people withsupport needs

www.carr-gomm.org.uk

Clackmannanshire Council Resources for participation www.clacksweb.org.uk/dyna/participstrategy

East NorthamptonshireHousing

Gathering and acting onusers’ views

www.longhurst-group.org.uk/infoForTenants-TenantInvolvement.html

Liverpool Housing Action Trust

A community-led interactiveTV channel

www.superchannel.org

London Borough of Southwark

Equalities: BME tenants www.southwark.gov.uk/OurServices/Councilhousing/YourCouncilTenancy/Consultation.html

Rochdale BoroughwideHousing

Link between goodperformance and consultingwith/involving service users

www.rochdale.gov.uk/living/housing.asp?url=rbh

Royal Borough of Kensingtonand Chelsea TenantManagement Organisation

Mainstreaming participation www.tmo.org.uk


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South Gloucestershire DistrictCouncil

Measuring success www.southglos.gov.uk/Housing/NewHousing/Tenants.htm

Southampton City Council Tenant involvement in budgetsetting

www.southampton.gov.uk/housing

Swaythling Housing Society Options for participation www.swayhs.org.uk

TPAS Cymru Tenant participation awardentries, 2004

[email protected]