home energy conservation report...the home energy conservation act 1995 (heca) ‘recognises local...

Great Yarmouth Borough Council’s HECA Report 2017/18

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HOME ENERGY CONSERVATION ACT (HECA) REPORT 2017/18


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HOME ENERGY AND CONSERVATION ACT (HECA) REPORT

INTRODUCTION

The Home Energy Conservation Act 1995 (HECA) ‘recognises local authorities ability to use their position to improve the energy efficiency of all

residential accommodation in their areas. In July 2012 the Department of Energy and Climate Change DECC published a requirement under

HECA for all local authorities in England to report on the measures they propose to achieve this aim.

Local authorities are required to produce a Further Report setting out:

Local efficiency ambitions and priorities

Measures being taken to result in significant energy efficiency improvements in residential accommodation

Proposed measures to cost effectively deliver energy efficiency improvements in residential accommodation by using area based/street

by street roll out

The time frame for delivery and local partners.

From 31st March 2015 subsequent reports known as progress reports must be published at two-year intervals through to 31st March 2027.

This report provides an update and gives the current position of the measures the authority is undertaking.


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ABOUT GREAT YARMOUTH

Great Yarmouth is situated on the east coast of Norfolk covering 67.2 square miles and includes the towns of Great Yarmouth and Gorleston-

on-sea and a rural hinterland consisting of 21 parishes, made up from 61 neighbourhoods, stretching from Winterton in the North to Hopton in

the South.

The Council is a stock owning authority and there are a number of Registered Social Landlords that also have smaller quantities of stock within

the borough.

The Indices of Multiple Deprivation 2015 ranks Great Yarmouth as 20th most deprived lower tier local authority nationally. 16 out of the 61

neighbourhoods (26%) in the borough are ranked amongst the most deprived 10% in the country.

Table 1: Housing Stock Profile by Tenure (2017)

Tenure Number Percentage %

Owner – Occupied 28,259* 62

Private Rented 8,951* 20

Local Authority Rented 5,780* 13

Registered Social

Landlord Rented

2,328* 5

*Calculated using BRE Housing Stock Model 2017 methodology


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Fuel Poverty

Table 2: Fuel Poverty 2015 – Sub-Regional Data1

Local Authority

All

Households

Fuel Poor

Households

Percent Fuel

Poverty

Breckland

56,348 5,367 9.5%

Broadland

55,105

3,619 6.6%

Great Yarmouth

43,496

4,276 9.8%

King's Lynn and West Norfolk

65,018 6,567 10.1%

North Norfolk

47,616 5,357 11.3%

Norwich

62,232 6,146 9.9%

South Norfolk

54,575

5,057 9.3%

In 2011 the number of households living in fuel poverty was 5,210 (12.3%) there has been a year on year decreases to 2015 when the number

of households was 4,276 (9.8%).

1 Source - Dpt. For Business, Energy & Industrial Strategy Report 2017


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The above figures in the table are based on the government’s revised low income high cost (LIHC) definition of Fuel Poverty.

In 2012 the Hills Review, an independent review of fuel poverty conducted by Professor Sir John Hills of the London Scholl of Economics

recommended that Government should adopt a new way of measuring fuel poverty instead of the previous indicator which defined someone as

being in fuel poverty if they spent more than 10% of their household income to heat their home to a satisfactory level (21˚C in their living room

and 18˚C in other occupied rooms). Professor Hills looked at the problem from first principles, setting out the causes and impacts of fuel

poverty and assessing whether the 10% definition and indicator of fuel poverty (set out in the Act and the first fuel poverty strategy, which was

published in 2001) were fit for purpose. In considering the causes and impacts of fuel poverty, Professor Hills showed that fuel poverty was a

distinct issue from income poverty. He also showed that the traditional approach to measuring fuel poverty - where a household was fuel poor if

it needed to spend more than 10% of its income on keeping warm - captured many households that were not ‘fuel poor’ (as described by the

Act – for example, it captured many higher-income households in inefficient homes). He also argued that the 10% indicator had painted a

misleading picture of trends, understating the scale of the problem when prices were low and overstating it when prices were high. Concluding

that the current indicator was not accurately measuring the problem, Professor Hills put forward his own proposal for measuring the problem

that characterises fuel poverty as a problem which is distinct from poverty in general. He proposed that households are fuel poor if;

Their income is below the poverty line (including if meeting its required energy bill would push it below the poverty line); and

Their energy costs are higher than is typical for their household type.

Generally it is the most vulnerable in our communities that are most at risk of the effects of fuel poverty.


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Excess Cold & the Impact on Health

There is compelling evidence that directly links cold homes to poor health. In 2015 the National Institute for Care Excellence (NICE) published

its guidance on tackling ‘Excess winter deaths and Morbidity and the health risks associated with cold homes’. Health conditions such as

cardio vascular disease, COPD, strokes and influenza are all exacerbated by the cold. In particular vulnerable groups such as older people and

those with long term conditions and disabilities are more likely to spend longer periods of time in their home.

In England and Wales during the winter months of 2016/17 there were an estimated 34,300 excess winter deaths (EWD) where 20.9% more

deaths occurred in winter months compared to non-winter months.2 Between 2014/2015 and 2016/17 there were annually on average 40 EWD

in the borough.

There are a number of contributory factors to excess winter deaths but with 9% of properties in the Borough having a Category 1 Excess Cold

Hazard and nearly 10% of households living in fuel poverty there is evidence to suggest that cold homes play a significant factor.

2 Source ONS Mortality Data England & Wales 2017


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CURRENT PROJECTS AND INITIATIVES IN GREAT YARMOUTH

Private Sector

The Building Research Establishment BRE was commissioned by the authority earlier in 2017 to undertake a Borough wide Private Sector

Housing Stock Model Survey together with a Housing Health Impact Assessment to provide better data and allow the authority to determine its

future private sector strategy and develop an action plan.

Table 3 overleaf describes the housing stock at ward level, providing estimated percentage and stock totals for the following indicators:

Dwellings with a category 1 Housing Health & Safety Rating System (HHSRS) hazard

Dwellings with a category 1 HHSRS excess cold hazard

Dwellings with a category 1 HHSRS falls hazard

Dwellings in disrepair

Households in fuel poverty (over 10% of income spent to heat home)

Households in fuel poverty (income is below the poverty line and their energy costs are higher than is typical for their household type)

Low income households (in receipt of benefit)

Average simple SAP rating.


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Table 3

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HHSRS Category 1 Hazards Fuel Poverty

Ward Dwellings All Hazards Excess Cold Falls Hazards Disrepair 10% LIHC Low income Households

Average Simple SAP

Bradwell

North

2,973 206

7%

85

3%

120

4%

21

1%

255

9%

206

7%

187 61

Bradwell South & Hopton

3,190 234

7%

113

4%

131

4%

29

1%

286

9%

243

8%

383

12%

61

Caister North 2,206 177

8%

82

4%

89

4%

17

1%

183

8%

121

5%

139

6%

60

Caister South 2,272 377

17%

225

10%

167

7%

50

2%

331

15%

243

11%

271

12%

54

Central &

Nortgate

4,045 685

17%

205

5%

435

11%

251

6%

1,101

27%

1,017

25%

776

19%

57

Claydon

3,701 381

10%

93

3%

257

7%

106

3%

649

18%

526

14%

931

25%

59

East Flegg

2,418 828

34%

742

31%

135

6%

36

1%

565

23%

231

10%

174

7%

41

Fleggburgh

1,117 515

46%

480

43%

89

8%

28

3%

284

25%

119

11%

95

9%

38

Gorleston

2,486 299

12%

76

3%

201

8%

73

3%

349

14%

327

13%

230

9%

58

Lothingland 2,320 467

20%

346

15%

153

7%

34

1%

325

14%

158

7%

173

7%

51

Magdalen 3,133 222

7%

37

1%

165

5%

54

2%

438

14%

370

12%

899

29%

60

3 Source: BRE Housing Stock Models & Options for Further Developing Private Sector Report 2017


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Nelson 4,231 681

16%

226

5%

392

9%

274

6%

1,192

28%

1,008

24%

1,018

24%

58

Ormesby 1,994 710

36%

641

32%

129

6%

37

2%

459

23%

174

9%

118

6%

40

Southtown &

Cobholm

2,457 383

16%

82

3%

267

11%

114

5%

570

23%

568

23%

443

18%

58

St Andrews 2,328 376

16%

86

4%

267

11%

111

5%

498

21%

515

22%

349

15%

55

West Flegg 2,360 786

33%

708

30%

140

6%

36

2%

545

23%

234

10%

194

8%

41

Yarmouth

North

2,087 254

12%

59

3%

182

9%

69

3%

324

16%

315

15%

490

23%

57


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The following headline data has been drawn from the above table and the wider report and informs some of the priorities within the HECA Further Report.

Number of private sector dwellings 37,210

Number of vulnerable households4 2,763

Properties with a category 1 excess cold hazard 3,980

Households in fuel poverty5 5,718

Average simple SAP6 rating for the Borough is 54

Number of private sector dwellings with an EPC banding below E 5,328

The following maps give a pictorial representation by Ward of where the issues are within the borough in relation to:

1. Percentage of private sector dwellings with category 1 excess cold hazard

2. Percentage of private sector households in fuel poverty

3. Percentage of dwellings with a category 1 excess cold hazard occupied by low income families

4. Percentage of dwellings with an EPC banding below E

4 A vulnerable household is defined as one in receipt of an income related benefit

5 A household is in fuel poverty if their income is below the poverty line and their energy costs are higher than is typical for their household type (LIHC).

6 The Standard Assessment Procedure (SAP) is the Government recommended system for energy rating of dwellings by calculating the SAP rating on a scale from 1 – 120 based on annual energy

costs for space and water heating


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Map 1: Percentage of private sector dwellings with a category 1 excess cold hazard.7

7 Source: BRE Housing Stock Models & Options for Further Developing Private Sector Report


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Map 2: Percentage of households in fuel poverty (LIHC).8



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Map 3: Percentage of dwellings with a category 1 excess cold hazard occupied by low income families9



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Map 4: Percentage of dwellings with an EPC banding below E10

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Source: BRE Housing Stock Models & Options for Further Developing Private Sector Report


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There are clearly a number of issues within the private sector that can be tackled. To date the Council through the Safe at Home; Home

Improvement Agency has used a number of measures to help assist the most vulnerable residents within the borough.

Between November 2012 and October 2014, the Council through the Safe at Home; Home Improvement Agency were able to assist 44 home

owners in fuel poverty with boiler repairs and insulation measures via Warm and Well funding, which was provided by Health and Social Care.

Through its Private Sector Housing Policy, last updated 2015, the Council also gives emergency loans to provide urgent boiler replacement and

heating measures to vulnerable households. This funding is very limited and is accessed only to deal with the most urgent and extreme of

cases. To date since November 2013 there have been 10 emergency loans given to provide boiler replacement/heating measures. The

majority of enquirers regarding the ‘Green Deal’ were sign posted to the Energy Saving Advice Service (ESAS). All other enquiries have been

sign posted to either the Energy Saving Trust (EST) or one of the energy supply companies offering assistance through the Energy Company

Obligation (ECO). During 2016/17, with funding secured from one of the energy supply companies, Safe at Home joined with Community

Action Norfolk as part of a county wide scheme to deliver home energy improvement measures to 33 households in the borough where the

works were not eligible for ECO. As of September 2016, 2,213 households in the borough have benefited from ECO measures. These

installations have helped to contribute to a borough wide reduction in domestic CO2 emissions from 230.7 Kilo tons CO2 in 2005 to 161.1 Kilo

tons CO2 in 2014.

In 2016 the charity Community Action Norfolk (CAN) bid for capital funding from the British Gas Energy Trust for heating improvements across

the county as part of the ‘Warm and Well’ campaign. Working with each of the seven local authorities across the county CAN provided funding

to raise awareness of the Warm and Well campaign, deliver training to frontline staff and carry out a range of grant aided works. In Great

Yarmouth 33 elderly or vulnerable home owners benefitted from heating system repairs and improvements arranged by Safe at Home.


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A new initiative introduced by the Council in 2017 has been Healthy Homes Assistance; using part of its Better Care Fund (BCF) allocation the

Council will assist vulnerable residents of the borough, with specific health needs, to make improvements to their homes, including heating and

insulation measures, where the housing conditions are having a detrimental effect on their health. In the first three months of operation the

project has received 5 referrals for the installation of full heating systems.

The Council’s Environmental Health team take both informal and formal action under the Housing Act 2004 against private sector landlords to

remedy hazards identified by officers using the Housing Health and Safety Rating System (HHSRS). Excess cold is one of the principal

hazards encountered and Officers try to encourage landlords to upgrade insulation and heating systems, using formal notices and other

enforcement if required. Action is taken in respect of all types of properties; flats, houses in multiple occupation and single family dwellings.

Since 2014/15 officers haven taken action in respect of over 200 properties.

Council Housing Stock.

Great Yarmouth Borough Council is responsible for over 5,900 properties across the Borough. The management of these properties is

coordinated by Great Yarmouth Borough Council; however, a Joint Venture Company was established in late 2014 between the Borough

Council and Norse Commercial services to design and deliver housing repair, maintenance and investment services – this Joint Venture

Company is called Great Yarmouth Norse Asset Management Services (GYN).

From mid-June 2016, an independent assessment of stock condition was commissioned from, and undertaken by Michael Dyson Associates

(MDA). With 95% of all Council properties surveyed by March 2017, the data gathered was checked and has been used to inform immediate


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repair and maintenance demands and the Council medium-to-long term investment requirements. Within the report produced by MDA (July

2017), the average SAP rating for GYNC properties is estimated at 66.9, which is consistent with the national average.

From early 2010, capital replacement activity has been focused on the provision of ‘modern’ facilities, as defined by the Decent Homes

Standard but more latterly included work would seek to address carbon reduction and fuel poverty targets. This list of works included;

Type of work 2013/14 2014/15 2015/16 2016/17

Replacement Boilers 210 263 218 230

Replacement window (double

glazing) programme

440 535 21 0

Replacement external door

programme

785 928 69 2

Top-up of loft insulation 440 270 10 240

Installation of renewable

technology

0 0 5 6

Further recent success has been had with the replacement of an existing, inefficient communal heating systems with air source heat pump

technology and the conversion of inefficient lighting, particularly in communal areas, with efficient LED technologies.


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This work of providing decent and modern facilities is expected to rise following need identified in the Stock Condition Survey report, continuing

through to 2022/23. Specific programmes of work proposed include;

Continued programme of loft-insulation top-up with roof replacements.

Installing external wall insulation to the most challenging, solid-wall properties, and for its consideration in other whole-house

refurbishment programmes, where practicable.

Replacement of first-generation double-glazing with new window units, with a particular focus on addressing reveal details and

eliminating cold-bridging.

Removing storage heaters and upgrade to heating systems with Air Source Heat Pump technology.

Extensive programme of boiler upgrades, replacing with new, highly efficient boilers.

Continue the programme to remove open-flue, solid fuel secondary heating from properties, often in rural locations, and undertaking

essential upgrades to primary system of heat distribution.

For properties off the gas grid, and where the existing oil system is reaching or has passed its expected useful life, heat distribution

systems are replaced and upgraded to use Air Source Heat Pump technology.

GYBC and GYN will continue to pursue opportunities for grant funding in line with the above or other programmes to improve property

performance but recognise these opportunities are limited. As a result, we anticipate moderate improvements in SAP levels for most

properties, with the greatest changes made to heat-to-treat properties and those perceived to be most vulnerable.

New Build properties

Equinox Enterprises Ltd, a Local Authority Trading Company wholly owned by Great Yarmouth Borough Council, was establish in late 2016 to

develop new homes across the Borough, with the first six new homes constructed in 2017 adding to the number of properties owned by GYBC.


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Through late 2017, the first phase of a 287 home development commenced adjacent to the Beacon Park Enterprise Zone, delivering new

housing for sale. For this first phase of development, Equinox Enterprises has selected to comply rather than enhance upon the current

building regulations.

Summary

Great Yarmouth Borough Council will continue to develop and deliver projects and awareness campaigns across all tenures in conjunction with

its partner organisations. For its own property, GYBC through GYN will focus on ensuring measures and interventions undertaken to its stock

of 5,900 can be built-upon in future years and preventing the transfer/creation of new repair and maintenance demands.

The HECA Action Report builds on the work to date and sets out council’s ambitions and proposals for the coming years.


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ACTION DETAILS TIMESCALE

1. LOCAL ENERGY EFFICIENCY AMBITIONS AND PRIORITIES

Strategic Commitments

Great Yarmouth Borough Council ‘s Corporate Plan for 2015 -2020 sets out the following priorities: Promoting economic growth and job creation. Developing an attractive mix of housing that will be fit for purpose

for all and meet both the Borough’s existing and future needs. Creating strong, safe communities that are resilient and work

together. Specific work around these priorities that is linked to the Council’s HECA Report actions include: Ensuring homes across all sectors contribute to good health and

reduce fuel poverty Working with our partners to improve outcomes for children and

young people, older people and vulnerable people Improving the quality of the existing housing stock Supporting communities to help themselves through

neighbourhood based approach Bidding for funding and external investment.

Our geographical location means Great Yarmouth is at the forefront of developments in the energy and renewable energy industries having Centre for Offshore Renewable Energy (CORE) and Assisted Area status the Council is developing plans to create an Energy Park with land for new energy related businesses. The Council’s core planning strategy seeks enhanced energy standards in larger developments of more than 1,000m² of non-residential floorspace, where the density, layout and mix of uses, plus economies


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of scale, generally make enhanced energy requirements more feasible and viable, a reduction of at least 10% of carbon emissions (over the requirements set by Building Regulations) will be sought from enhanced energy efficiency measures or the installation of renewable or low carbon sources.

The Council is working with NHS Great Yarmouth & Waveney Clinical Commissioning Group, East Coast Community Health and Norfolk County Council on a programme to integrate health, social care and district council services for the benefit of residents. One major issue will be improving housing conditions for residents including energy efficiency and fuel poverty.

2. MEASURES WE ARE TAKING TO RESULT IN SIGNIFICANT ENERGY EFFICIENCY IMPROVEMENTS OF OUR RESIDENTIAL ACCOMMODATION

Energy Company Obligation ECO

The Council will promote nationally available schemes through the Council’s Safe at Home Improvement Agency and provide information and links on the Council’s website to ensure that households can access information and advice on the most appropriate schemes to meet their needs. The Council has been in discussion with other Local Authorities to seek agreement on a county wide criteria for ECO ‘Flexible Eligibility’ in Norfolk and the Council will be publishing its ‘Statement of Intent’ on using Flexible Eligibility to target households who are in fuel poverty but don’t fit into the qualifying criteria for the rest of the scheme.

On going January 2018

Council’s Own Housing Stock

GYBC and GYN will continue to work to provide decent and modern facilities through to 2022/23, as identified in the recently completed Stock Condition Survey but in-line with available financial resources.


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Specific programmes of work proposed include;

Continued programme of loft-insulation top-up with roof replacements.

Installing external wall insulation to the most challenging, solid-wall properties, and for its consideration in other whole-house refurbishment programmes, where practicable.

Replacement of first-generation double-glazing with new window units, with a particular focus on addressing reveal details and eliminating cold-bridging.

Removing storage heaters and upgrade to heating systems using Air Source Heat Pump technology.

Extensive programme of boiler upgrades, replacing with new, highly efficient boilers.

Continue the programme to remove open-flue, solid fuel secondary heating from properties, often in rural locations, and undertaking essential upgrades to primary system of heat distribution.

For properties off the gas grid, and where the existing oil system is reaching or has passed its expected useful life, heat distribution systems are replaced and upgraded to use Air Source Heat Pump technology.

Advice Measures Through range of Councils services such as Tenancy Support, Safe at Home (the Home Improvement Agency) and through the Neighbourhoods That Work programme. We will provide a range of non-financial services and assistance to promote and enable the take-up of energy efficiency measures that tackle fuel poverty and cold homes. We will do this by:

Continue to trainee key staff and ensure they have access to the

On-going


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most up-to-date information.

Providing impartial advice based on an individual household circumstances and needs to enable the householder to make an informed decision

Provide support/signposting to any available initiatives as appropriate

Working with partners to ensure a wide coverage in terms of access to benefit take up and income maximisation advice

Affordable Warmth The Council currently does not promote a collective switching scheme. It has been researching other options including joining the county wide scheme ‘Norfolk Big Switch and Save’. Currently support and information for residents about switching energy suppliers as an individual is offered to through Safe at Home. The charity Community Action Norfolk operates a domestic heating oil collective purchasing scheme that covers Great Yarmouth borough and the remainder of Norfolk. We will ensure key staff have information relating to this scheme and provide information on how access the scheme on our website.

On-going

Domestic Renewable Heat Incentive

We will provide general information on the existing Domestic Renewable Heat Incentive scheme for residents on our website, and in response to enquiries.

As appropriate

New homes from 2015

The Council’s core planning strategy (2015) encourages developers to look at ways to incorporate renewable and low carbon energy into all new developments, however small, through the use efficient site layouts and good building design.

Minimum energy efficiency standards in the private rental

The Domestic Private Rented Sector Minimum Energy Efficiency Regulations come into force in April 2018 where by properties with new tenancies must meet a minimum energy efficiency rating of band E.

On-going


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sector from 2018 In order to prepare for this we are and will continue to:

Make information and advice available to landlords and prospective tenants

Highlight the benefits of energy efficiency works

Where necessary take enforcement action against private landlords to remove Category 1 Excess Cold Hazards from their properties.

Smart Meters by 2020 Working with partners we will make available appropriate information and respond to queries regarding the national roll out of Smart Meters by the Utility Companies. With partners we will develop information and advice on how manage energy consumption following the installation of Smart Meters. With partners we will support those vulnerable groups who are more likely to be experiencing fuel poverty to understand how they use energy and if necessary help make changes to reduce their energy consumption.

As information becomes available

Norfolk Cold Homes Partnership

We will continue to work with partners to raise awareness of the importance of keeping warm and the impact cold can have on health and wellbeing. We will use Safe at Home the Council’s Home Improvement Agency to ensure that practical help and advice is available and targeted at those most at risk.

On-going

3. MEASURES WE PROPOSE TO COST EFFECTIVELY DELIVER ENERGY EFFICIENCY IMPROVEMENTS IN RESIDENTIAL ACCOMMODATION BY USING AREA BASED/STREET BY STREET ROLL OUT

We will use data from our 2017 Private Sector Housing Stock Model and Health Impact Assessment together with data we hold as a landlord and cross reference with national data sets to inform future campaigns.

On-going

4. TIMEFRAME FOR DELIVERY AND NATIONAL AND LOCAL PARTNERS


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NHS Great Yarmouth & Waveney Clinical Commissioning Group East Coast Community Health Norfolk County Council Public Health England Registered Providers Health & Wellbeing Board ECO Providers Voluntary Organisations

Older People’s Network

Children & Families Network

Community Action Norfolk

DIAL

British Red Cross

Age Uk

home energy conservation report...the home energy conservation act 1995 (heca) ‘recognises local...

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