s e c s scottish borders council local housing strategy 2012-17 · 2012. 2. 14. · scottish...
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Scottish Borders Council
Local Housing Strategy 2012-17
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Scottish Borders Local Housing Strategy 2012-2017
1. Introduction - The Local Housing Strategy ................................................................................. 9
2. The need and demand for housing in the Scottish Borders .......................................................15
3. Increasing housing supply.........................................................................................................28
4. Access to good quality housing.................................................................................................39
5. Preventing and tackling homelessness .....................................................................................57
6. Enabling independent living ......................................................................................................65
7. Resourcing the Strategy ...........................................................................................................76
8. Consultation..............................................................................................................................77
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If you would like any further information concerning Scottish Borders Local Housing Strategy, or
have any comments to make, please contact Cathie Fancy, Group Manager Housing Strategy and
Services:
In writing at: Housing Strategy and Services
Social Work
Scottish Borders Council HQ
Newtown St. Boswells
MELROSE
TD6 0SA
By telephone: 01835 825144
By e-mail: [email protected]
On the Web: http://www.scotborders.gov.uk/life/housingservices
If you require this publication in an alternative format and/or language, please contact the Housing
Strategy Team, Tel: 01835 825169, Fax: 01835 825081, [email protected], to
discuss your requirements. The Strategy is also be made available on our website:
http://www.scotborders.gov.uk/life/housingservices
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FOREWORD
The Scottish Government has set an ambitious agenda for change in its vision for housing for the
21st Century by seeking more new houses, by improving the quality and sustainability of existing
houses and neighbourhoods, and by setting targets for the reduction of homelessness, fuel
poverty and climate change. Scottish Borders Council is keen to respond positively to this policy
vision since it is consistent with many of the challenges which we face locally.
Housing is not just a matter of bricks and mortar but is an integral part of the Borders’ physical,
economic and social character. Specifically, accessible, warm, safe, affordable housing, attractive
environments and a sense of place can contribute greatly to meeting Scottish Government’s wider
aims of tackling poverty and health inequalities and building confidence and capacity in
communities. This will enable Borderers to reach their full potential.
These issues are challenging enough, but we are also operating at a time of major changes in the
financial and economic worlds. The credit crunch and the ongoing banking pressures, as well as
the changing political landscapes at Holyrood and Westminster bring additional constraints.
As a stock transfer Council, Scottish Borders Council and its partners are proud of the
achievements they have made through working together on a number of fronts in relation to
housing over the last few years, for example in the Scottish Borders Housing network, in the New
Borders Alliance and in engagement with Community Planning processes. It is recognised that
delivering actions and making a difference is vital to the success of this Local Housing Strategy,
and this is dependant on partnership working.
Key issues to be tackled are:
increasing the supply of affordable housing
addressing the housing and support needs of the increasing numbers of vulnerable people
improving housing conditions
tackling and preventing homelessness
The Local Housing Strategy has been framed by revised Guidance from Scottish Government and
sets out what the Council and its partners aim to do to tackle these issues.
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It is intended that this document will provide a focus for consultation to enable the Council and its
partners to engage with individuals, organisations and the wider community in order to develop
their vision and proposed actions for the next five years.
I am pleased to be able to present this Scottish Borders Council Local Housing Strategy document
to you, and to underline our commitment as a Council to working with our partners, and with the
people of the Scottish Borders, to deliver high quality, affordable homes and services.
Councillor Ron Smith
Executive Member for Social Work (Children and Strategic Services)
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1. Introduction - The Local Housing Strategy
1.1 What is the Local Housing Strategy?
The Local Housing Strategy (LHS) provides the strategic direction to tackle housing need and
demand and to inform the future investment in housing and related services across the Scottish
Borders area.
The Housing (Scotland) Act 2001 places a statutory requirement on local authorities to develop a
Local Housing Strategy, supported by an assessment of housing need and demand for a five year
period. It should bring together the Local Authority’s responses to the whole housing system
including: requirements for market and affordable housing; prevention and alleviation of
homelessness; meeting housing support needs; addressing housing conditions across tenures
including fuel poverty and linkages with the Climate Change (Scotland) Act 2009. Scottish Borders
Council submitted its first Local Housing Strategy in 2004 and a refreshed strategy in 2007 which
was re-graded as `good’ by the Scottish Government. In line with the Scottish Government and
Convention of Scottish Local Authorities guidance1, Local Housing Strategies must now contribute
to Scottish Government’s National Performance Framework and the Scottish Borders Single
Outcome Agreement (SOA).
1.2 Background to the Local Housing Strategy
This new LHS has been developed in a very different context from when the LHS submission was
made 2004. In 2007 the Scottish Government undertook a major consultation on the future of
housing in Scotland through the discussion document Firm Foundations which introduced a new
emphasis on increasing housing supply across all tenures (35,000 aspirational target of per
annum).However, the massive change in housing market conditions since then led to the Scottish
Government issuing a new Green paper in June 2010 - Fresh Thinking New Ideas. This sought
debate on the future of the Scottish housing system as it faces unprecedented challenges: the
Scottish Government stated that to meet the economic, demographic and climate challenges
which we face, the status quo for the housing system is not sustainable and that there is a need to
change how we produce, allocate, price, manage and think about housing in Scotland. This was
1Local Housing Strategy Guidance, Scottish Government, 2008
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followed by `Homes Fit for the 21stCentury’, the Scottish Government’s Strategy and Action Plan
for Housing in the Next Decade: 2011-2020, published in February 2011. The emphasis on
increasing supply remains, but with a strong drive towards finding new ways of financing house
building with a greater emphasis on levering in far more resources from outside the public sector
to maximise the supply of affordable homes. The Scottish Government recognises that there are a
growing number of households whose needs are not met by owner occupation and social renting
and so will support the increase and improvement of the private rented sector, and a significant
expansion of ‘mid-range’ housing products. In addition to its housing supply objectives, the
Scottish Government wishes to see improvement in the quality of existing housing, requiring action
from owners, as well as social and private landlords. This will involve commitments to improve
energy efficiency to meet challenging Climate Change targets.
Apart from the unprecedented economic and financial climate we face, other key policy areas
which impact on the development of this LHS are the new statutory requirements set out in the
Housing (Scotland) Act 2006 on private sector house conditions, a stronger focus on the role of
the private rented sector in meeting housing need and demand, a commitment to achieving
sustainable mixed communities and the challenge of climate change.
1.3 Welfare Reform
In the emergency budget of June 2010 the UK Government announced welfare reform savings of
£11 billion. The October 2010 spending review identified further savings of £7 billion. These
savings are to be made through significant changes to Housing Benefit and far reaching welfare
benefit reform. On 16 February 2011, the Welfare Reform Bill was introduced to the Westminster
Parliament. The Bill legislates for the biggest change to the welfare system for over 60 years
introducing a wide range of reforms that will deliver the commitment made in the Coalition
Agreement to make the benefit and tax credit systems fairer and simpler. Some of the key
proposals contained in the Bill are:
A single universal credit to come into force in 2013;
Tax changes to enable people to keep more income;
Changes to the disability living allowance ;
More details of the back-to-work programme;
Those refusing to work facing a maximum three-year loss of benefits;
Annual benefit cap of about £26,000 per family; and
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Review of sickness absence levels.
Many of the changes to Housing Benefit come through the introduction of secondary legislation
and a number of these amendments came into force from 1 April 2011, with others timetabled over
the next 2 years. Changes will affect both social and private tenants. Some of the major changes
to Housing Benefit are:
Capping the maximum Local Housing Allowance (LHA) payable in the private rented sector
for each property size and applying a four-bed limit;
Calculating LHA rates using the 30th percentile of market rents rather than the 50th
percentile;
Linking LHA increases to the consumer prices index (CPI) which does not include housing
costs, rather than the higher retail prices index (RPI);
Increasing the rate of non-dependant deductions;
A cap on Housing Benefit for social tenants based on under-occupancy; and
Extending direct payments to social rented tenants
In July 2011 the UK Government announced a further consultation on proposals to change the
way Housing Benefit is paid to people living in supported accommodation. The consultation will
run concurrently with the LHS consultation. The impact of the wide ranging reforms will be
significant for social and private tenants, local authorities, the Scottish Government, social and
private landlords. The extent of the full implications of the reforms is not wholly quantifiable at this
time and won’t become clear until the reforms have been implemented. Assessments of the
potential impact of welfare reform are underway and reduced income is being planned for,
along with an increased demand for homelessness services.
1.3 The Housing Vision and Outcomes to be achieved
The LHS has been informed by a number of current plans and strategies and it is underpinned by:
The Single Outcome Agreement for the Scottish Borders
Scottish Borders Housing Needs and Demand Assessment, Updates 2009 and 2011
South East of Scotland Strategic Development Plan Housing Needs and Demand Assessment,
and various Addendums, 2010/11
The New Way Forward, Consolidated Structure Plan, 2001-18 (Alteration Approved 2009)
The Local Plan Amendment (Adoption approved by Scottish Borders Council, February 2011).
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The Single Outcome Agreement (SOA) sets out the joint commitments between the Council,
Community Planning Partners and the Scottish Government to deliver an agreed set of outcomes.
The SOA is based around and builds upon the existing community plan, the Council’s corporate
plan and other plans and strategies existing within and between partner organisations. It therefore
reflects extensive consultation with stakeholders around these existing plans and strategies.
1.4 The Housing Vision and Outcomes to be achieved
Vision
The Local Strategy's Vision for the Scottish Borders is that:
‘every person in the Scottish Borders has a home which is secure,
affordable, in good condition, energy efficient, where they can live
independently and be part of a vibrant community’
To achieve this vision four strategic outcomes and associated action plans have been identified
which Scottish Borders Council and its Community Planning partners are committed to delivering.
These are closely aligned to a number of the Scottish Government’s national outcomes and there
are direct linkages with the Scottish Borders Single Outcome Agreement, as shown below.
The following sections of this strategy set out:
Housing need and demand – our analysis of the key housing issues in the Scottish Borders
LHS outcomes – how the four housing outcomes are to be achieved. Each section sets
out:
o what the key issues are
o what we want to achieve (outcomes)
o what the planned activities are – what we are already doing or planning to do
o what else needs to be done during the life of this LHS and beyond.
Resources - how the strategy will be resourced
Consultation – how people can make a contribution to development of the strategy.
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Figure 1: LHS outcomes and links to the Single Outcome Agreement
LHS Outcome Linkages with SOA
1. The supply of new housingmeets the needs of theScottish Borders communities
National Outcome 7 - We are tackling the significant inequalities inScottish SocietyLocal Outcome 7.1 - The Scottish Borders is a fair and inclusiveplace to live and to workLocal Outcome 7.2 - There is a good supply of high qualityaffordable HousingNational Outcome 10 - We live in well designed, sustainable placeswhere we are able to access the amenities and services we need.
2.People have better access togood quality, energy efficienthomes
National Outcome 7 - We are tackling the significant inequalities inScottish SocietyLocal Outcome 7.3 - Fewer peoples’ lives will be affected by povertyNational Outcome 8 - We have improved the life chances of children,young and families at riskLocal outcome 8.1 - Children grow up in a safe, homely environmentNational Outcome 10 - We live in well designed, sustainable placeswhere we are able to access the amenities and services we need
3. People are less likely tobecome homeless and thoseaffected by homelessnesshave improved access tosettled accommodation
National Outcome 7 - We are tackling the significant inequalities inScottish SocietyLocal Outcome 7.5 - Homelessness will be prevented througheffective prevention and significant actionNational Outcome 8 - We have improved the life chances ofchildren, young and families at riskLocal outcome 8.1 - Children grow up and a safe, homelyenvironment
4. More people with particularneeds and/or requiring supportare able to live independentlyin their own home
National Outcome 6 - We live longer healthier livesLocal outcome 6.1 - Borders people have improved health andwellbeingLocal outcome 6.3 - People live independently, with support, wherenecessaryNational Outcome 7 - We are tackling the significant inequalities inScottish Society
1.5 Equalities Impact Assessment and Strategic Environmental Assessment
Scottish Borders Council embraces the commitments required under the Equality Act 2010 (in
force from April 2011) which brings the general duty to 9 equality strands of age, disability, race,
sexual orientation, gender reassignment, religion and belief, pregnancy and maternity, marriage
and civil partnership. A full equalities impact assessment has been undertaken on the Local
Housing Strategy in line with Scottish Borders Council and NHS Borders Equality Policy and
Impact Assessment. This shows that the strategy has many positive impacts on all of the equality
impact groups. A full copy of the impact assessment is attached as Appendix 4.
When developing plans, policies and strategies, authorities are required to carry out a SEA. An
SEA Screening exercise has been carried out and Scottish Borders Council determined there is no
requirement for a full SEA. The SEA Screening Report can be viewed in Appendix 3.
The LHS is likely to have a positive impact on the environment by making better use of existing
homes, improving the condition and quality of homes, increasing energy efficiency of homes and
reducing carbon emissions.
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Preparation of the Strategic Housing Investment Plan (SHIP), which is reviewed annually, will
direct and prioritise affordable housing investment on sites that are already allocated within the
SESPlan and the Local Development Plan once they are adopted. These plans are subject to
environmental assessment through their preparation process. On this basis the environmental
policies and legislative requirements as set out in the Strategic and Local development plans are
likely to be adequate in identifying and mitigating strategic environmental impacts of housing
development on these sites. Any new specific plan, policy or action which relates to this LHS
would likely have an SEA carried out on that policy or action.
Rural Proofing
A Rural proofing exercise has also been carried out to ensure that the needs of rural areas are
fully taken into account in the development of the LHS and will not be adversely affected by the
strategy.
Rural proofing applies to all areas of Scottish Borders classified by Scottish Government as
`remote rural’ or `accessible rural’. This is relevant for the whole administrative area of the Scottish
Borders out with the towns of Hawick, Galashiels, Peebles, Selkirk, Eyemouth, Jedburgh and
Kelso.
The rural proofing exercise was carried by Housing Strategy in January 2012 as part of the
preparation of the LHS. It was determined that the implementation of the strategy will not have any
adverse impact on the rural area and that the needs of rural areas have been properly taken into
account.
2. The need and demand for housing in the Scottish Borders
This section sets out an analysis of the need and demand for housing in the Scottish Borders.
2.1 Scottish Borders Population an
National and local demographics are
stood at 106,764 and has increased
is strongly influenced by the Edinburg
population increases of 18% over the
increases. Population growth in the S
change Scottish Borders’ population
elsewhere in the Lothian region. With
increase by at least 15% and it is ant
of the Waverley rail link planned for 2
Edinburgh and Scottish Borders, albe
Population and household
are getting smaller and old
than Scotland overall and n
be aged over 65 years by 2
The housing market contin
Lothian’s economy, with a
Edinburgh each year to find
Since the credit crunch in 2
build and the second hand
to increase as households
Edinburgh, East Lothian an
Unemployment is relatively
Scotland (28th lowest out
major implications on what
more than 50% households
Borders.
Housing needs assessme
turnover of existing homes
461 market homes and 10
to 525 actual completions o
and 81 social sector housi
(2006-2010).
Summary of Key Issues
numbers are growing in the Scottish Borders. Households
er. The Borders has a greater proportion of older people
eighbouring local authority areas – 30% of households will
033, compared to 20% in 2008.
ues to be strongly influenced by the wider Edinburgh and
large number of households moving into the area from
housing which is more affordable.
007, housing supply has more than halved in both the new
markets in the Borders. Meanwhile, house prices continue
are attracted to lower prices in the Borders relative to
d Midlothian.
low in the Borders, but wages are some of the lowest in
of 32 local authority areas). This low wage economy has
housing ‘local’ households can afford. It is estimated that
working locally cannot afford housing market prices in the
nts conclude that the demand for new houses (net of
) is 564 each year for the next five years. This comprises
3 affordable homes each year. These estimates compare
f private sector homes each year over the last five years
ng completions each year over the same five year period
15
d Households
key drivers of the housing demand. In 2001 the population
by 5.5% to 112,680 (latest estimated for mid-2009). The area
h economy and its wider housing market which will see large
next 25 years compared to Scotland’s 7% projected
cottish Borders is driven by net migration: in terms of natural
has declined in greater numbers in recent years than
in this context the Scottish Borders population is likely to
icipated that the population will be more robust with the return
014 which will provide passenger transport between
it this will not directly impact on all parts of the Borders.
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Table1: Projected Population Change 2008-2033
AreaProjected
Change (%)
Scottish Borders 15.7
Edinburgh 18.8
Midlothian 3.2
West Lothian 22.9
East Lothian 33.4
Increase over whole housing market 18.0
Scotland 7.27
Source: Analysis on General Register Office for Scotland (2009), 2008-based Population Projections
The number of households is also increasing and is in line with growth in the neighbouring local
authorities (7% since 2001). These increases will continue in the Borders - by a total of 27% over
the next 25 years. Households will become smaller: 40% of households will be one person in the
Scottish Borders in 2033 compared to 34% now. The area has an older age profile than in
neighbouring authorities and Scotland, and the trend for an ageing population will continue - the
proportion of the population aged over 65 will increase from 20% to 30% representing a 75%
increase in people aged over 65 years living in the Scottish Borders compared to 40% increase in
Scotland overall.2
The 2001 Census shows that 2,697 individuals or 2.5% of the population of the Scottish Borders is
made up of individuals from minority ethnic communities. Of these 2, 108 states that they are
White Irish or ‘Other White’ including people from other European countries or other parts of the
world. A very small proportion – 589 people, or 0.55% of the Scottish Border population includes
other ethic minorities such as Indian, Pakistani, and other south Asian, Chinese, Caribbean,
African or other black. The youthful age profile of a number of minority ethnic communities
suggests that this population is likely to grow at a faster rate than white UK communities.3Section
2(GRO Scotland, 2008 based projections).
3Assessing the housing need of minority ethnic communities in the Scottish Borders, ODS, 2008. Also discussed in
Scottish Borders Housing Needs and Demand Assessment, 2011,
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5 below sets out the particular housing needs of a range of client groups as assessed through a
recent Housing Support Needs Assessment.4
2.2 The Scottish Borders Economy
The other key driver of housing demand is the national and local economy. Household income and
availability of mortgage finance affects the volume of demand and the product that households are
able to afford. The Scottish Borders local and national economy has had to deal with a number of
issues over the last decade:
The decline of the textile industry
The collapse of the electronics sector
Foot and Mouth Disease crisis and impact on tourism
Reform of the Common Agricultural Policy
Changing demands on the fishing industry
The recession, reduced public expenditure and the impacts on employment, development
and housing supply and demand;
Welfare Reform will have a significant impact on the dynamics of demand and supply in the
private and social rented sectors;
Continuing uncertainty in the global and European economy in particular suggests that any
sign of recovery is medium term i.e. 10 years plus.
The profile of Scottish Borders economy results in lower wages than many other places in
Scotland. The largest proportion of the workforce in the Scottish Borders is employed in public
services (32%), similar to the Scottish average: however, there is a greater proportion of people
working in manufacturing industries, agriculture, fishing and water, and construction, and less than
half of the national average working in Financial and Business Services (9% in Scottish Borders
compared to 19% in Scotland)5. This difference is even more acute in the context of the wider
Edinburgh housing market: in Edinburgh over 30% of people work in banking, finance and
insurance6 and while this sector may be more risky than some other sectors in terms of job
4Exploring the Housing Support Needs in the Scottish Borders, 2010. Particular housing needs also evidenced and
discussed with SESPlan HNDA, 2011, and Scottish Borders HNDA 2011, both signed off by Scottish Government 2011.5
Scottish Borders Housing Need and Demand Assessment, 2011 (Scottish Borders HNDA, 2011)6
Nomis Labour market statistics, 2008
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security, it does provide higher incomes and has significant impacts on prices in the wider housing
market. There is higher proportion of self-employed workers and part-time workers in the Scottish
Borders than is found in the wider Lothian’s housing market. 7
The Scottish Borders has a relatively low unemployment rate at 3.2% when compared Scotland
and neighbouring areas (Scotland 4.3%, Edinburgh 3.2%, East Lothian 3.4%, Midlothian 4.0%,
and West Lothian 4.0% in January 2012). In July 2007, unemployment in the Scottish Border was
at its lowest point for over two decades, but in line with the rest of the UK unemployment
increased quickly between 2008 and 2011 to a peak of 3.2% representing a 175% increase
(Figure 2 below).
Figure 2: Level of Unemployment in the Scottish Borders (%)*
*Measured by the claimant count of Job Seekers AllowanceSource: Labour Market Statistics, February 2011, National Statistics
Although the Scottish Borders has relatively low unemployment, the area has a lower wage
economy than many other Scottish areas: it ranks 28 for lowest pay out of the 32 local authorities.
In 2009 the average gross weekly income for full time workers working in the Scottish Borders was
£386. This is 22% lower than the average weekly wage in Scotland (£473), and 13% lower than
the average weekly wage in the wider Edinburgh housing market (£443)–average wages range
from the highest of £516 per week in Edinburgh to the lowest in the Scottish Borders of £386.8
Other evidence produced for the SESPlan Housing Need and Demand assessment shows that the
7Scottish Borders HNDA, 2011
8Nomis Labour market statistics, Earnings by workplace, 2010
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Scottish Borders has the lowest household incomes in the SESPlan area.9 Furthermore, a recent
review of Poverty in the Scottish Borders10 confirmed that median pay in the Borders is one of the
lowest in the UK and concluded that while employment is available, the nature of work is often low
skilled and low paid. In the current economic context, the local economic profile of the Scottish
Borders is unlikely to change in the short to medium term.
2.3 Housing Supply
Household tenure
Home ownership is the most popular tenure in the Scottish Border having increased from 53% to
63%of all households between 1991 and 2007/8. The growth in this sector has been mainly
because of changes in cultural attitudes toward home ownership and the introduction of the `Right
to Buy’ for public authority tenants in 1980. Over 9,112 ex-local authority or Registered Social
Landlord (RSL) houses have been sold through the `Right to Buy’ in the Scottish Borders since
1979, equivalent to 43% of the social rented stock. The social rented sector is now at a similar
level to the national average (22% compared to 23%). The private rented sector is higher than
found nationally at 13% (Table 2).
Table 2: Household tenure in the Scottish Borders and Scotland (%)
Scottish Borders ScotlandTenure
1991 2001 2007/8 1991 2001 2007/8
Owner Occupied 53 61 63 52 63 66
Social Rented 34 24 22 40 27 23
Private Rented 8 9 13 5 6 10
Other 5 6 2 3 5 2
Source: Census 1991 and 2001 and Scottish Household Survey 2007/8 LA Analysis
Housing markets
As part of the Council’s Structure Plan Alteration, Scottish Borders Council reviewed its HMAs in
2007. The four housing market areas and their settlements are shown below in Figure 3 overleaf.
9SESPlan Housing Need and Demand Assessment, Addendum, Version 3, Figure 18
10Poverty in the Scottish Borders 2008, SPIU Glasgow Caledonian University.
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Figure 3: Scottish Borders Housing Market Areas (HMAs)
Source: Scottish Borders Council
New housing supply
There was a steady increase in supply of new housing in the Scottish Borders over the decade
1998 to 200811until the impacts of the credit crunch and recession began to hit. In the decade
1999/00 to 2009/10 the average rate of new housing starts across sectors was 632 units per
annum – in 2009/10 the number of new house starts were down significantly by 62% from their
peak in 2006/7 (45% for Scotland) and completions have dropped by 38% from 2007/8 (32% for
Scotland): these are steeper falls than have been seen in Scotland overall – see Figure 4 below.
The Council and its affordable housing development partners Eildon and Berwickshire Housing
Associations have worked hard at increasing the investment in affordable housing, but these have
typically only been 12% of total completions over the past 10 years: this compares to 18% of
completions nationally. Over the last five years 2006/7 to 2010/11 the average completion rate has
been 81 against a previous LHS target of 100 units. The main constraint to reaching the target of
100 units is the amount of Scottish Government’s subsidy available for affordable housing through
the Affordable Housing Investment Programme (AHIP). The recent reductions in public sector
11Source Scottish Government New House Building Statistics, August 2010. Note - the overall trend was of increasing
supply with the exception of a few years between 2003 and 2006
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funding means this constraint is likely to continue and even worsen through the period of this LHS
2012-2017.
Figure 4: All new house starts and completions in the Scottish Borders by financial year
Source: Scottish Government, August 2010
House prices
House prices continue to rise in the Scottish Borders. In line with the wider housing market, there
were significant house price increases between 2004 and 2008 from monthly averages of
£133,513 to £185,160 - a rise of 39%, or approximately 10% per annum. The chart below includes
the quarterly average house price of £181,806 in July to September 2010 – this is higher than any
of the price ‘peaks’ experienced at the height of the market in 2007/8. Part of the reason for this
new peak will be the natural adjustment made by the market where the number of transactions
has halved from approximately 250 per month in 2007 to an average of 125 during 2010. 12
Price trends vary between Housing Market Areas: house price increases in the Central area
(which holds the greatest population) have been 46%, whereas price pressure has been the
lowest in Berwickshire (27% increase) and highest in the Southern HMA (63%). The particular
increase in the Southern area is due to the lack of supply, low turnover and therefore limited
choice for purchasers.13
12Registers of Scotland, quarterly and monthly statistics
13Scottish Borders SHIP, 2010-2015
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Figure 5: Average house prices in the Scottish Borders
Source: Register of Sasines, http://www.ros.gov.uk, March 2011
In Q3 2010/11, average house prices across all the Edinburgh and Lothian area were £183,308
ranging from the highest of £216,597 in Edinburgh to lowest of £140,288 in West Lothian. The
Scottish Borders prices rank fourth out of the five areas and at £170,744 is £12,564 below the
wider market average, but still above the Scottish average of £158,213 (Table 3).14
Table 3: Quarter 3 2010 house prices Edinburgh and Lothians
Local authority area Q3 2010/11 average prices
East Lothian £202,570
City of Edinburgh £216,597
Midlothian £173,208
Scottish Borders £170,744
West Lothian £140,288
Average Edinburgh and Lothians £183,308
Scotland £158,213
Source: Register of Sasines, http://www.ros.gov.uk, March 2011
14The wider Edinburgh housing market also includes the southern part of Fife, but there are no published house prices
statistics available for a sub-market of a local authority area for this time series.
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Affordability
Lower house prices relative to the wider housing market attract in-migrants from higher priced
areas – according to the Scottish Borders HNDA, the largest proportion of in-migrants to the
Borders come from Edinburgh, but some people also move into the area from further a field in
England. In-migrants have higher purchasing capacities than Borders existing households which in
practice means that the Scottish Borders has a two-tier housing market.
Table 4: Lower quartile house price divided by lower quartile household income 2007-8
Scottish Borders HMA Ratios
Central 5.7
Berwickshire 7.81
Northern 7.37
Southern 8.76
Scottish Borders 6.15
Source: Scottish Borders HNDA, 2011
The Scottish Borders HNDA provided two measures of affordability. One indicator of affordability is
to divide the lower quartile house price by the lower quartile income in each housing market area.
The resulting average ratio in the Scottish Borders is 6.15 and Table 4 shows affordability by area.
Affordability is greatest in the Central HMA and poorest in the Southern HMA.
Another indicator is to look at the proportion of households with incomes below the level required
to secure a mortgage based on a 3.5 multiplier for an entry-level property. The Scottish Borders
HNDA showed that 55.5% of all households in the Scottish Borders have incomes below the level
required to secure a 100% mortgage on an entry-level property. The proportion of households with
affordability problems vary from 51% in the Central housing market to 78% in the Southern
housing market area. These estimates were made based on 2007/8 prices and incomes, but even
with the recession prices are now similar or even higher than 2007/8 levels. The effect is that
housing for sale is out of reach for average and lower income households in the Borders.
The recession has had major repercussions for the Scottish Borders and in particular on housing
supply, demand and affordability. Mortgages have become more expensive, and risky mortgage
products like the 125% mortgages have been removed from the market. This has had the effect of
reducing demand for housing for sale, but increasing demand for rented and affordable housing
options. Supply in the local housing market has adjusted quickly–as noted above the numbers of
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sales have decreased by 50% and new build sales have decreased by almost 40%. The overall
result is that pressure in the housing market has actually increased as evidenced by continuing
price increases – there is less supply, less finance available to access market housing, but
demand and need continues from the underlying demographic and local economic drivers. This all
re-enforces the continuing need for affordable housing for rent and for shared equity to access
home ownership, but also for intermediate housing for those that cannot access home ownership,
social or private rent (either due to price, or ‘need’ criteria).
2.5 Supply and demand in the private rented sector
Supply in the private renting sector has increased from 8% to 13% of all households between
2001 and 2007/8.15The cost of renting in the Scottish Borders has also increased - by between
20% and 50% between 2002 and 2008: there is a huge range of prices due to the different
characteristics of the housing market ranging from £371 per month in the Southern area to £975
per month in Northern which includes Peebles and West Linton and so is more aligned to the cost
of renting in Edinburgh (Table 5 below). The Scottish Borders housing needs assessment showed
that the majority of residents in the Private Rented Sector do not have sufficient household income
to purchase an entry-level home - 79% had less than the necessary amount.
Table 5: Average Monthly Rental Costs in the Private Rented Sector 2002 & 2008 by HMA
HMA 2002 (£) 2008 (£) Increase %
Central Borders 348 485 39%
Berwickshire 342 512 50%
Northern 659 975 48%
Southern 308 371 21%
Source: Scottish Borders Council Housing Strategy Team, Analysis of the Private Rented Sector, 2009
2.6 The requirement for more housing
The Scottish Borders Structure Plan 2001-201816reflects the need to accommodate the growth in
households arising from the increase in projected population and the continued reduction in
household size. A housing land requirement of 8,350 has been set for between 2006 and 2018,
including all provision in the private and affordable housing sectors. This supply includes 20%
15Census 1991 and Scottish Household Survey 2007/8 LA Analysis
16Structure Plan Alteration approved June 2009.
25
flexibility in the land supply to take into account a number of factors relating to the need for
affordable housing, geographical dispersal and incidence of second homes.
Table 6 below shows that majority of housing is required in the Central HMA where 61% of new
housing is required. This area includes the main towns of Galashiels, Melrose, Newtown St
Boswells, Selkirk, St Boswells, Hawick, Jedburgh and Kelso. The lowest requirement, 2%, is
required in the more rural and remote southern part of the Borders.
Table 6: Housing land requirements 2006-18
Scottish Borders HMA Overall requirement 2006-18
Central 5094
Berwickshire 1503
Northern 1587
Southern 167
Scottish Borders 8350
Source: Scottish Borders Structure Plan 2006-18
The Scottish Borders Housing Needs and Demand Assessment (HNDA)has been assessed as
‘robust and credible’ by the Scottish Government’s Centre for Housing Market Analysis, and
informed the Scottish Borders Structure Plan Alteration 2009 and this Local Housing Strategy. It
has also informed the South East Scotland Strategic Development Plan (SESPlan) Housing
Needs and Demand Assessment, and in turn, the SESPlan Main Issues Report and the
developing Strategic Development Plan.
The HNDAs have concluded that overall the wider Edinburgh housing market system is tight and
growing tighter even in the context of recession and in spite of planned developments. There is
more flexibility in the Borders private market compared to neighbouring Edinburgh’s and East
Lothian’s markets, but as discussed above this causes migratory pressure on the Scottish Borders
markets as people move in to buy more affordable housing. The SESPlan Housing Need and
Demand Assessment17concluded that the demand for new houses (net of turnover of existing
homes) is a housing supply target of 564 each year for the next five year. This comprises 461
market homes and 103 affordable homes each year for the next five years.
17SESPlan Housing Need and Demand Assessment, Technical Note, Version 6, 2011
26
The Scottish Borders HNDA established housing need by housing market area and concluded
53% of housing need is in Central, 22% in Berwickshire and Northern areas, and 2% in Southern.
2.5 Scope for Intermediate housing
The Scottish Government’s policy papers Firm Foundations, and more recently Homes Fit for the
21st Century encourage access to the housing market through shared equity schemes, and
promotes the concept of intermediate tenures e.g. intermediate rent (or mid market rent, priced
between private and social rents). For the Scottish Borders, both HNDAs conclude that there is
scope to draw on the private rented sector and to develop intermediate sectors to address housing
need.
The Scottish Borders HNDA assessed the contribution that a variety of intermediate tenures may
make for those in housing need – it considered the scope for discounted housing for sale, shared
ownership and shared equity. It was concluded that shared ownership has a greater impact than
discounted sale housing, although it would still not be an affordable option for many of those
households identified as being in housing need. For the Central housing market area, shared
equity would be affordable at 30% and at 50% equity share. In the other housing market areas it is
only with a shared equity home at 30% of the market value that a household on lower quartile
income could afford to buy, although it would be highly unusual for shared equity packages to be
as low as 30% equity. In practice the Council has been working with housing associations to
promote the Scottish Government’s shared equity scheme: there has been moderate demand – a
total of 50 shared equity properties have been provided between 2009/10 and 2010/11. It is
anticipated that there is demand for intermediate (mid-market) rent from those households with
similar, low to moderate income levels as those considering shared equity (discussed further in
section 3).
However, the overall conclusion of the Scottish Borders HNDA is that social housing for rent
should continue to provide the majority of new build affordable housing in the Scottish Borders.
Shared equity and other intermediate tenures should be considered where they are shown to be
affordable, but as an addition, not a replacement to social rented housing requirements,
particularly in housing markets demonstrating acute affordability pressures.
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2.5 Conclusion and implications for the LHS 2012-2017
From this evidence there are a number of key implications and challenges that the Scottish
Borders face which the new Local Housing Strategy must tackle:
Market pressure and supply – in the context of recession, how does supply recover in the
Scottish Borders and what can the local authority and its partners do to support that
recovery and to increase new supply?
Affordability of supply – the local authority influences location of supply through the
Development Plan and this includes an Affordable Housing Policy. But supply through this
route is constrained by supply coming through private developers. What more can be done
to increase the supply of market housing which is affordable to local households?
Access to existing stock – given the continuing pressure in the housing market and need
for more effective supply, how can we make best use of the existing stock?
Funding – the short /medium term horizon for public housing investment in the UK and
Scotland is bleak. What can Scottish Borders Council and its partners do to find different
and sustainable funding options for affordable housing?
Older households – does the Scottish Borders have the right type of housing and related
services in place or planned for the projected increase in the number of older households?
The following sections of the Local Housing Strategy set out how we plan to tackle these
challenges.
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3. Increasing housing supply
3.1 What are the key issues?
This summary sets out our understanding of the key issues in relation to housing supply:
The local demographic and economic context means there is a need for more housing in the
Scottish Borders: this is mainly due to migratory increases in population.
The shock of the credit crunch has meant that supply of new housing and turnover of existing
stock has halved since 2007/8. The Scottish Borders’ role in the wider Edinburgh housing market,
combined with the downward adjustment in supply means there will continue to be pressure in the
housing market and prices will continue to rise.
There is a two tier housing market in the Borders – one for ‘local’ households, and one for those
that have migrated to live in the area. Currently 50% of households in the Borders struggle to
afford housing market options due to high house prices relative to incomes.
Housing supply in the private rented sector has increased over the last 10 years, as have prices -
in some areas private sector rents have increased by 50% over the last five years. Wider market
pressures will mean these prices are unlikely to decrease. Approximately 80% of households living
in the private rented sector are unable to afford housing for sale.
The affordability issues in the housing for sale and rented markets means there will be an impact
on the social housing sector – demand and waiting lists are likely to increase.
Housing needs assessments estimate that the demand for new houses (net of turnover of existing
homes) is 564 each year, for the next five years. This is made up of 461 market homes and 103
affordable homes each year, for the next five years. These estimates compare to 525 completions
of private sector homes each year over the last five years and 81 social sector housing
completions each year over the same five year period (2006-2010).
Going forward, public resources for subsidising housing investment is projected to fall. This means
it is unlikely that the shortfall of affordable homes will be met, with a knock on effect on the overall
housing system and local economy.
A key challenge for this LHS is to stretch limited resources as much as possible to deliver more
affordable housing. We also need to consider the demand for ‘intermediate tenures’, such as
shared equity and mid-market rent (priced in-between social and private renting), for those who
cannot access home ownership or social renting, whether for price or priority reasons. Where there
is a demand, intermediate tenures have the advantage of using less public resources.
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3.2 What do we want to achieve?
Strategic outcome 1
The supply of new housing meets the needs of the Scottish Borders communities
This will be achieved by:
Enabling the supply of good quality homes, across all housing sectors;
Ensuring that new supply of affordable housing increases;
Encouraging supply of intermediate housing options;
Developing efficient and innovative ways of building and financing new homes.
The following sections set out what we are currently doing to achieve this outcome, what is
planned, and concludes with what else has to be done over the LHS period 2012-17.
3.3 Housing Market Partnerships
The Scottish Borders Local Housing Strategy (LHS) Partnership is the housing market partnership
for Scottish Borders. It is made up of representatives from officers of Scottish Borders Council
(Social Work Services, Housing, Planning and Economic Development and the Business
Improvement Unit) alongside RSLs, Borders Equality Forum, Rural Housing Service, Care and
Repair, Scottish Rural Property and Business Association and Borders Community Planning
Board. Issues from commissioning to completion of both the Scottish Borders HNDA Update and
the SESPlan HNDA have been reported and discussed at meetings of the Scottish Borders LHS
Partnership. The Partnership has discussed priorities and outcomes for the LHS and considered
drafts of this document. In addition to the Scottish Borders LHS Partnership, the Council and other
partners participate in the South East Scotland Housing Market Partnership in developing the
SESPlan HNDA, contributing the development of the Main Issues Report and the Strategic
Development Plan.
Over and above the Housing Market Partnerships, the Council is hugely reliant on a range of
partners to ensure that the ambitions of the LHS are realised. The range of partnership groups
responsible for development and delivery of LHS objectives include:
The Strategic Housing Investment Plan (SHIP) Project Group
The Borders Housing Network
New Borders Alliance
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3.4 Land supply and housing supply targets
The Scottish Borders Structure Plan has determined a housing land requirement of 8,350 for 2006
and 2018, including all provision in the private and affordable housing sector. The Structure Plan
identified proposed housing allowances of 2,800 to meet the identified shortfall between the 8,350
requirement and the effective or potentially effective land supply of 5,643 (a shortfall of 2,707). The
Local Plan Amendments to meet the allowances for 2006-18 was approved by the Council for
adoption in February 2011. This means the Development Planning framework required to ensure
there is an adequate supply of housing land is up-to-date.
In the longer term, strategic housing land requirements will be determined by the Edinburgh and
the South East of Scotland Strategic Planning Authority’s Strategic Development Plan (SESPlan).
Its Proposed Plan (published November 2011) has a vision of “By 2032, the Edinburgh City
Region is a healthier, more prosperous and sustainable place which continues to be internationally
recognised as an outstanding area in which to live, work and do business”. The SESPlan Housing
Needs Study stated that a total land supply for 155,600 houses is required 2009-2032. For the
Scottish Borders Council area, a total land supply of 13,700 is required 2009-2024.
Housing Supply Targets
Table 7 below sets out the LHS five year housing supply target, broken down by affordable
housing and market housing (and as discussed in section 2 above):
Table 7: Supply targets
Supply targets 2011-2016 Per annum
Market housing18 2,305 461
Affordable housing target19 515 103
TOTAL Scottish Borders Housing Supply Target20 2,820 564
18Includes housing for sale and private rented housing
19The affordable housing target includes social rent, shared equity, other low cost home ownership schemes and
intermediate rent20
Covers all new housing supply across housing tenure, replacement housing, empty properties to be brought back into
use and conversions
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In order to deliver these supply targets, the major task for this strategy will be to continue
partnership working to overcome constraints, to find new ways to resource new housing supply,
and to make best use of the scarce resources, especially long term empty properties. (See section
4).
3.5 Enabling supply of good quality homes, across all housing sectors
Overcoming constraints
The Council and its partners have a key role in removing barriers to supply. These include funding
and supply, water and sewage constraints, public utilities (physical/infrastructure capacity,
approval processes) and flood risk, infrastructure constraints including electricity supply, schools
capacity and health facilities.
Ongoing work includes:
Securing agreements with SEPA and Scottish Water on the required level of investment to
align with the Structure Plan priorities areas. The RSLs and Scottish Water have also
developed a `Settlement Water and Sewage Capacity Analysis spread sheet’ which
outlines all water and sewage capacity at settlement level and this is updated regularly to
reflect changing circumstances.
Continually identifying land opportunities in collaboration with BCIF and RSL partners.
Securing land through section 75s, although this option has reduced dramatically with the
recession and it appears the majority of developers / banks are holding onto land rather
than selling it to RSLs.
Seek to achieve keener construction tender prices e.g. Eildon’s developments at East
Broomlands, Kelso and Kingsmeadows, Peebles.
Enabling the development of affordable housing through the use of the SBC Affordable
Housing Budget, Commuted Sums and through Land Assembly.
Encouraging modernisation in procurement of affordable housing through the Preferred
RSL developer route to help overcome some constraints in the construction industry and to
increase efficiency.
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Working with the housing development industry
The Building and Construction Industry Forum (BCIF) is an initiative led by Eildon Housing
Association originally launched in February 2003. As of 1st April 2011, BCIF transferred to Borders
College. This forum has now become well established as a “one stop shop” vehicle for the industry
across the house building industry to ensure that it is well prepared, properly resourced,
sustainable and able to meet future challenges effectively. It provides a conduit between the
industry and agencies at a local and national level and is now considered to be a model of best
practice that has subsequently been replicated in other areas of Scotland. BCIF has a regular
weekly radio slot every Thursday on Radio Borders and has a website www.bcif.org.uk. BCIF
also delivers the Developing Construction contract for Scottish Enterprise across the South of
Scotland focusing on developing business efficiency. BCIF also continues to support the wider
training and development requirements of the industry to ensure that businesses have access to
the core skills they need. This is through the facilitation of local training courses, delivered either
by specialist local businesses or directly through BCIF.
3.6 Ensuring that new supply of affordable housing increases
The Strategic Housing Investment Plan (SHIP) is a fully costed plan which
sets out housing market, locality based and housing need priorities. This is
developed and agreed through the Strategic Housing Investment Plan Project
Group involving Scottish Borders Council (Housing, Planning), RSLs, Scottish
Water, SRPBA, and the Rural Housing Service.
Land supply strategy for affordable housing
The objective of the land supply strategy is to ensure there is sufficient land supply to facilitate the
delivery of affordable housing strategically in areas of housing need and to respond to potential
opportunities that may arise from future increased availability of Affordable Housing Investment or
other funding. Land supply and control is fragmented in the Scottish Borders and is largely
controlled by private developers and house-builders, with affordable housing being provided via
section 75 agreements. However the downturn in the market means land is not coming forward, or
many developers want to act as contractor to RSLs rather than simply selling on land. The Council
has very little land available for housing developments and where land is declared surplus to
33
requirements it is routinely considered for affordable housing. There is one larger future land
release (approximately 900 units) identified for the expansion of Newtown St Boswells and
although this appears to be a substantial site, the likelihood is that it will be developed in relatively
small phases over a period of 15 years plus. The land here is also controlled by developers.
Control of land supply is the key to successful delivery. The strategy to secure short, medium and
long term land supply to link in with Strategic Housing Investment Plan and beyond is:
Enter into agreements with landowners and developers
Purchase land using revolving fund / SBC short and medium term loans
Use options available for RSLs to front fund land acquisitions
Purchase options to secure control but minimise financial risk
Improve effectiveness of s75 agreements including early intervention with developers – this
has been facilitated by the Council’s Negotiations Officer and a number of protocols
provide clear guideline on communication required between partners
Partnership acquisitions with SBC to assist in strategic land assembly.
Affordable Housing Policy
The Affordable Housing Policy was approved as Supplementary Planning Guidance in 2007. This
was reviewed in 2010 with the draft Affordable Housing Supplementary Planning Guidance
proposing a baseline of 25% affordable housing provision on all sites over five units. The new
policy was approved in January 2011 and is now in place. Unfortunately the recession has
negatively affected the number of planning applications coming forward, and therefore the amount
of land and commuted sums for affordable housing through Section 75 Agreements. A recently
revised protocol between the Council and RSLs means that a more strategic approach is now
being taken for those sites that do come forward, so that the most appropriate tenure balance is
agreed on a site to site basis.
Housing market and locality based priorities for affordable housing
Table 8 summarises the Scottish Borders affordable housing investment priorities by area, client
group, location and tenure.
Within these broad categories of housing market needs, Peebles and Hawick have been identified
as strategic priorities. The key priorities of the Peebles Housing Strategy are to provide a range of
34
sustainable affordable housing options and to re-provide for the outdated accommodation and
existing residential care. The Housing Strategy for Hawick, focuses on the regeneration of SBHA’s
housing stock in the town, primarily the estates of Stonefield, Mansfield, and Wellfield, and
Scottish Borders Housing Association (SBHA) three sheltered housing developments. The Hawick
Strategy is interconnected with SBHA’s Strategy for its Borders-wide Sheltered Housing
(discussed in Section 4 below).
Table 8: Priority Housing Market Needs
HMA Area Comments/Validation Tenure
Berwickshire
Family houses, wheelchair houses, elderly amenities in main
towns and small settlements, special needs client groups to be
identified by Social Work, Brownfield regeneration at Eyemouth
High School
Rent, LCHO*
and additional
Temporary Acc
OMSEP**
Central Borders
Family houses, wheelchair houses, elderly amenities in main
towns and small settlements, special needs client groups to be
identified by Social Work.21
Rent, LCHO and
additional
Temporary Acc
OMSEP
Northern Borders
Family houses and special needs client groups to be identified by
Social Work
Rent, LCHO,
Temp Acc
OMSEP
Southern BordersFamily houses, wheelchair houses and other special needs client
groups to be identified by Social Work
Rent, LCHO and
OMSEP
*LCHO – low cost home ownership, **OMSEP – Open Market shared Equity Pilot
There continues to be a need for small-scale developments in small rural settlements. RSLs will
draw from existing housing needs assessments or commission new Rural Housing Needs Studies
in partnership with local communities and Community Councils to constructively inform current and
future development plans. The Council welcomed the introduction of the `Rural Homes for Rent’
pilot initiative in 2008 and although no Borders projects were successful in this first round, should
the pilot be mainstreamed the Council would be keen to see the mechanism available within the
Borders. Any projects put forward will be prioritised through the SHIP methodology.
Prioritising affordable housing development
The SHIP sets out a consistent method for considering and prioritising development projects. Each
project is assessed against a set of criteria which are weighted according to their importance (see
21Particular housing need requirements are discussed in detail in section 5, and evidenced in the SESPlan HNDA and
Scottish Borders HNDA 2011.
35
table 9). Deliverability is seen as a key factor for considering the viability of a project and so has a
40% weighting.
Table 9: Project Priority Weighting Matrix
Affordable Housing Priority Project Weighting Matrix
Deliverability ( 40% weighting )
Funding (evidence of financial capacity of Registered Social Landlords, private developers and individuals)
Land availability (is there an effective land supply? Is it available/willing vendor?)
Project programme delivery (eg; is it an off the shelf project, implemented immediately, financial capacity)
Constraints (Legal/infrastructure/site/planning/flood risk/industry capacity supply chain etc)
Housing Need ( 25% weighting )
As identified through SBC’s Housing Needs Assessment (HMA’s) –
Validated Source – (eg; RSL waiting list info, local community housing needs study, homelessness)
Equalities - Need identified for specific client groups (eg; wheelchair user, elderly, re-provisioning)
Strategic Fit ( 30% weighting )
Regeneration (Area regeneration/brown field/housing estate community regeneration/re-provisioning)
Rurality (as defined by a population of 250 or less – this incorporates landward areas)
LHS Priority – (is it identified in the LHS?)
Part of Existing Agreed Strategy or Programme (for example Peebles Housing Strategy)
Links with other non-housing Strategies or projects (eg; Peebles links with re-provisioning of Dunwhinny Lodge,
Eyemouth High School)
Does the project meet Best Value and is it Innovative
Impact ( 5% weighting )
Social (is this project likely to have a positive social impact on the Community?)
Economic (what is the economic impact of this project likely to have?)
Environmental (What will the environmental impact of the project be?)
Resourcing the supply of affordable housing
For many Local Authorities, the majority of the funding for running the housing service comes from
the Housing Revenue Account (HRA), which is raised from the rental income from letting council
houses. The HRA can also be used by local authorities to borrow money to invest in the stock and
to build new council housing. As a result of stock transfer, the Scottish Borders Council no longer
has a HRA and so is very unlikely to be able to build new affordable housing directly and relies
solely on its RSL partners to develop new housing. RSLs require subsidy to build affordable
housing, and the Scottish Borders already receives a lower than average AHIP allocation from the
Scottish Government (affordable housing has been 12% of total completions in the Scottish
Borders over the past 10 years compared to 18% nationally – see section 2). Furthermore, as a
rural authority Scottish Borders is further disadvantaged as it does not meet the urban criteria to
enable it to benefit from access to a £50m European Lending Facility offered by European
Investment Bank which offers an alternative private lending source. These are major constraints
for the supply of additional affordable housing in the Borders.
36
The key sources of funding affordable housing in the Borders are the Affordable Housing
Investment Programme (AHIP) and housing association private finance, Council Tax Affordable
Housing Fund, Commuted Sums through Section 75 agreements, Housing Support funding, and
Scottish Water Grant Funding. However, 2011 saw Scottish Government effectively suspending
the normal AHIP processes, and introduced a new £50m “Innovation and Investment Fund” for
2011/12 only. This allocates £20m to assist Council house building, £20m to RSLs, and £10m for
“Innovation” projects. It limits grant payable to £30k/unit for Council new building and reduces
Housing Association Grant to a new 3 person equivalent benchmark of £40k/ per for RSL houses.
It is intended that any grant payable under the new arrangements will only be paid upon
completion of a project, rather than stage payments as is currently the case. As a result, only a
limited number of RSLs with sufficient financial capacity will be able to develop affordable housing
under these new arrangements, and some are now finding it more difficult to secure private
finance under these new funding conditions.
The Council is looking at ways to provide short/ medium term loans to RSLs to take up
opportunities that they would not otherwise be able to do e.g. loans for infrastructure costs/land
banking. There are considerable risks associated with the majority of these funding sources either
because they are public sector based, or driven from the activity in the housing market. Finding
new funding sources is a key priority for this strategy.
3.7 Encouraging supply of intermediate housing options
The housing needs and demand assessments have shown that there is scope to use intermediate
tenures to meet some of the housing need identified in the Scottish Borders.22There has proven to
be moderate demand for shared equity, with 50 homes being sold through this route between
2009- 2011 whether new build or in the second hand market. However, one of the key constraints
to expansion of shared equity is the very cautious attitude of lenders towards this tenure, and the
requirements for relatively large deposits. The Council and its partners believe there is scope to
invest in other intermediate tenures, specifically mid-market rent. The Council is participating in the
National Housing Trust23 initiative to deliver 51 mid-rented homes in Innerleithen and Galashiels,
and it has been agreed to include Scottish Borders in the second round on the basis of the whole
22The Scottish Borders HNDA states that the majority of housing need identified should be met through social rented
provision.23
The initiative is led jointly by the Scottish Government and Scottish Futures Trust
37
of the Scottish Borders will be eligible (the first round only included Peebles/Innerleithen,
Galashiels, and Kelso). This initiative will act as a useful pilot to test demand and success of this
mid-market tenure in the Scottish Borders. Any future expansion of mid-market rent must ensure
there is careful targeting so that people moving into this tenure either cannot afford the private
market (rent or sale), or cannot access the social rented sector. In other words, this tenure must
provide additionality; ensuring people housed in mid-market rent are unable to access other
housing options.
3.8 Efficient and innovative ways of building and financing new homes
Eildon Housing Association is the Scottish Borders preferred developer from April 2011, delivering
new affordable housing across the whole of the Scottish Borders to meet the strategic aims of
Scottish Borders Council. The arrangement will deliver new affordable housing for the New
Borders Alliance including Berwickshire Housing Association, Eildon Housing Association, Scottish
Borders Housing Association and Waverley Housing, as receiving landlords. The key aim of this
arrangement is to maximise value for money via economies of scale and procurement efficiencies
without adversely impacting on local economies or local employment opportunities. While
increasing efficiency in procurement of new housing is important, it is not enough to meet the gap
between the need for affordable housing and the resources available to fund new housing. As
already discussed, a key priority for this LHS is therefore to secure additional resources from
different sources and to investigate alternative methods of financing new affordable housing.
3.9 Key delivery plans
The following lists key delivery plans which the Council and partners are already using to ensure
housing supply is increased in the Scottish Borders:
The New Way Forward – The Scottish Borders Structure Plan 2001-2018 (Alteration 2009)
Local Plan (2008), Local Plan Amendment (Adoption approved by SBC February 2011)
Affordable Housing Supplementary Planning Guidance 2011
Strategic Housing Investment Plan 2010-15
SESPlan Proposed Plan, 2011
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3.10 Priorities for the LHS 2012-17
The following summarises the key actions required to deliver more housing supply.
Continue joint working with Scottish Water and SEPA to ensure investment in line with
framework agreement, and information sharing protocols are developed
Support development of SESPlan, ensuring integration with Structure Plan Alteration
Continue work with BCIF to ensure a sustainable construction industry
Monitor implementation of the Affordable Housing Supplementary Planning Guidance
Encourage supply of shared equity housing
Evaluate implementation of the National Housing Trust initiative for mid-market housing
and based on its results, develop a strategy for expansion of intermediate tenures in
the Scottish Borders
Deliver greater efficiency in affordable housing procurement through the preferred
developer
Find different ways of financing affordable housing to enable delivery of target 103
homes each year
Explore all possible avenues to maximise use of the Innovation and Investment Fund in
the Scottish Borders
Implement on-lending of SBC borrowing to RSLs
Develop local government mortgage scheme
Explore principle of recycling retained capital receipts from RSLs
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4. Access to good quality housing
4.1 What are the key issues?
This summary sets out our understanding of the key issues in relation to housing access and
quality:
4.2 What do we want to achieve?
Strategic Outcome 2
People have better access to good quality, energy efficient homes
This will be achieved by:
Providing better information and advice on housing options
Improving access to social rented properties
Remodelling some properties in the social rented sector
Minimising sales in the social rented sector through the Right to Buy
All social rented properties reaching the Scottish Housing Quality Standard by 2015
Information and advice on the choices and access to housing has traditionally been
fragmented, with people not being fully aware of their housing rights, and options
available to them. Providing more comprehensive housing options advice should ensure
more people are fully informed of their choices, across all housing sectors.
The social rented stock in the Scottish Borders has reduced by 43% since the
introduction of the right to buy in 1979. Waiting times for social rented housing are long
and choice in many areas is very low. Access to social rented housing is provided by
two systems, which complicates access for potential tenants.
A large proportion of the sheltered housing stock in the housing association sector is not
fit for purpose and requires remodelling.
The Scottish Government has set a target for all social rented stock to meet the Scottish
Housing Quality Standard (SHQS) by 2015. According to the Scottish House Condition
Survey, 71% of social rented stock in the Borders fails the standard, which is higher than
the Scottish failure rate of 66%.
Two thirds of the private housing in the Borders fails the SHQS, slightly below the
Scottish average. The Housing (Scotland) Act 2006 aims to encourage homeowners
and private landlords to invest in the quality and ongoing maintenance of their homes.
There are around 1,000 long-term empty dwellings in the Borders, which if brought back
into use may help meet housing demand and need.
Twenty five per cent of greenhouse gas emissions come from houses. The local
authority now has a statutory duty to address climate change, and tackling fuel poverty
is a key Scottish Government objective. In the Scottish Borders one third of households
are living in fuel poverty.
40
Reducing the number of empty properties
Providing information and assistance to private owners to improve their properties
Working with landlords to improve access and condition in the private rented sector
Giving assistance to residents to improve energy efficiency
Identifying more ways to eradicate fuel poverty by 2016 and to reach the requirements of
the Climate Change (Scotland) Act 2009 interim target by 2020.
The following sections set out what we are currently doing to achieve these outcomes, what is
planned, and concludes with what else has to be done over the LHS period 2012-17.
4.3 Providing better information and advice on housing options
Scottish Borders Council provides information and advice through its homeless prevention service
and private sector services and in partnership with specialist providers including the Citizen Advice
Bureau and the Council’s Welfare Benefits Service. The Homelessness Strategy 2009-2013 sets
out a whole range of actions to improve information on housing options, promote existing advice
services and reviewing the advocacy service. Housing staff are trained to the Scottish National
Standards for Information and Advice, gaining a SQA accredited Professional Development Award
in housing law and advice. The Scottish Borders Housing Forum developed a multi agency web
based advice resource in 2003 which was further developed and updated in 2008 by the Council
to provide a comprehensive housing advice service. The Council has now developed and
implemented a Housing Options approach which provides expert assistance to ensure people are
fully informed about the full range of housing options open to them so they can resolve their
housing needs before a housing crisis occurs.
4.4 Improving access to social rented properties
Nature of the social rented sector
There is currently a total of 11,646 social rented units in the Scottish Borders. The Council
transferred all of its housing stock to Scottish Borders Housing Association in 2003, and along with
Berwickshire Housing Association, Eildon Housing Association and Waverley Housing provides
94% of the social housing provision in the Borders. The remainder is provided by a number of
specialist RSLs. Keys facts for supply and demand in the social rented sector are:
41
Since 1979 over 9,112 ex-local authority or RSL houses have been sold through the Right to
Buy equivalent to a total loss of 43% of the social rented stock.
The majority of demand is in the Central Borders, and for one and two bedroom properties,
although it is known that when rare larger properties become available then these are highly
sought after (e.g. bids for new 3 bedroom properties in Galashiels and Peebles can reach in
excess of 90 applicants).
Supply is more likely to be flats (49%) and have two to three bedrooms (66%). This has
implications when considering the growing proportion of smaller households and the ageing
population, many of whom may require smaller properties but some may need the flexibility of
an extra bedroom for family and carer support to enable independent living.
People living in, and applying for a home in the social rented sector, tend to be single (43%)
and have lower incomes than private renters or home owners – the housing needs
assessment showed that a third of people living in social rented housing have low incomes - a
gross monthly income of £550 or less compared to 20% in the private rented sector and 7% in
the owner occupied sector.
New lets in this sector have most commonly been to households already living in social rented
housing (28%), new emerging households previously living with family or friends (23%) or
private renters (19%). However, continuing pressure in the housing market and the symptoms
of the recession are likely to cause an increasing proportion of applications from people out
with the social rented sector. It is also known from social landlords’ exit surveys that a large
proportion of people that leave a social rented home move into the private rented sector and
that their main driver is to find a home in the right location.
Access to the social rented sector
The Scottish Borders RSLs have been operating three systems to access and allocate housing for
the last five years – Borders Choice Homes (used by Berwickshire HA, Eildon HA, Waverley
Housing and a few other smaller specialist HAs), Scottish Borders Housing Association’s
Homechoice, and SHOP used by the specialist providers of Bield, Hanover and Trust. A review of
the operation and effectiveness of Borders Choice Homes has recently been finalised and RSLs
have now streamlined arrangements to ensure greater operational efficiency. A priority for the
Council as the strategic housing authority is to ensure the systems are aligned to maximise
efficiency and simplify access for customers through the development of a single register.
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Remodelling properties in the social rented sector
The Council and its RSL partners have embarked upon a process of reviewing the current
sheltered housing stock, much of which is unfit for purpose. This work involves appraisal of a
range of options including retention and conversion (to mainstream housing, young person’s
accommodation, or more appropriate sheltered/very sheltered accommodation), demolition and
new build. This detailed feasibility work follows on from the comprehensive Best Value Review
Transforming Older People Services (TOPS) and the Accommodation with Care Strategy (see
more under section 6 below). The Council and its RSL partners are implementing a regeneration
masterplan in Stonefield, Hawick which has historically been a low demand estate. Remodelling
includes comprehensive improvements to meet the SHQS, demolition and new build.
Minimise reduction of housing in the social rented sector through the Right to Buy
Scottish Borders Council and its RSL partners have considered the use of ‘pressured area status’
to minimise the reduction of social rented housing through the Right to Buy (RTB). However, there
are conflicting outcomes in selling homes through the RTB – on the one hand RSLs obtain
important capital receipts to invest in social rented homes (and so meet the Scottish Housing
Quality Standard), but on the other hand RTB reduces the amount of critically needed social
rented housing. The Borders Housing Network now wishes to consider the impact of Housing
(Scotland) Act 201024 and wishes the Council to pursue pressured area status applications.
4.5 Improving housing conditions in the social rented sector
Housing conditions in the social rented sector
The Scottish House Condition Survey 2008 estimates the Scottish Housing Quality Standard
(SHQS) failure rate in the RSL sector is 71% which is higher than the private sector locally, and
higher than the Scottish average of 66% in the public/RSL sector. The differences in condition
between tenure occurs despite the fact that three quarters of all houses in the social rented sector
in the Borders were built post war whereas privately owned dwellings have an older age profile.
The main reason for failure in this sector is around energy efficiency. The Council tracks the RSLs’
compliance with SHQS on an annual basis. Table 10 below sets out the compliance position at
24The Housing (Scotland) Act reformed the RTB by removing the right from all new supply and new tenants. Housing Fit
for 21st
Century included the Scottish Government’s intention to extend the reform by removing the right from all existing
tenants.
43
November 2011 – this suggests an overall 43% compliance rate (67% failure) which is an
improvement on the published position in SHCS 2008 of 71% failure rate. The table includes a
summary of the main reasons for failures for the four main providers. The two providers with the
most significant problems in achieving compliance are SBHA and Waverley housing at around
20% compliance, both of which have significant stock in the Borders (5,874 and 1,534 units
respectively). Even though 100% of Margaret Blackwood Housing Association’s stock is non-
compliant, this only involves 39 properties which will be subject to remodelling along with other
RSL sheltered housing stock (see Section 6). Though the prospect of compliance by 2015 is
generally good, it should be noted that the RSLs have a continuing commitment to keep to the
Standard, which may also be enhanced in the near future. These investment commitments must
be met from RSLs own business plans (i.e. there are no additional resources).
Table 10: SHQS compliance for RSL stock in the Scottish Borders at December 2011
RSLNo. propertiescomplying with
SHQS
Level ofcompliance /
(failure)Main reasons for failure
Berwickshire 1,734 100% (0%)Energy efficiency, modernservices and facilities
Eildon 1,901 96% (4%)Various – only small number offailures
SBHA 1,611 27.5% (72%)
Modern services and facilities,energy efficiency, and health,safety and security
Waverley Housing 69 4.5% (95.5%)Energy efficiency, modernservices and facilities
Ark 5 100%
Bield 94 68% (32%)
Hanover 132 55% (45%)
Link 105 100% (0%)
Margaret Blackwood 0 0% (100%)
Trust 61 70% (30%)
Source: Scottish Housing Regulator, Table 9a, December 2011
Improving housing conditions in the social rented sector
The RSLs are required to produce an annual Standard Delivery Plan (SDP) which sets out
progress towards compliances with SHQS by 2015 and their plans to improve housing conditions.
The Scottish Housing Regulator has the role of monitoring and engaging with RSLs on progress
towards the SHQS 2015 deadline. Recent updates to the SHR show that a total of £38m
investment in the RSL housing stock will be made between 2010 and 2015 to achieve compliance
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with the Standard (see table 11). There will be some dwellings that will never be able to fully
comply with the Standard due to the type of building or construction, or due to mixed tenure
issues. This is particularly relevant for SBHA and Waverley Housing where the impact of the `Right
to Buy’ and Tenants Choice Transfer means there is considerable pepper potting of RSL/privately
owned stock. New guidance from the Scottish Government is still awaited on the SHQS
exemptions which should provide more clarity on this issue.
Table 11: SHQS planned investment 2010-2015 in Scottish Borders
RSL Capital investment to meet SHQS by 2015 (£000s)
2010/11 2011/12 2012/13 2013/14 2014/15 Total
Berwickshire HA 835 835 835 835 835 4,174
Eildon HA 0 247 23 7 0 277
SBHA 6,336 5,702 6,921 6,579 6,143 31,681
Waverley 435 435 630 690 0 2,190
Total 7,606 7,219 8,409 8,111 6,978 38,322Source: Scottish Housing Regulator, extract from Annual Returns from RSLsNote: Berwickshire’s return to SHR included a total figure only which has been profiled evenly over 5 years
4.6 Reducing the number of empty homes
In March 2010 the number of long term empty properties in the Scottish Borders was 1,003 and
the number of second homes was 997. The figure for second homes has remained largely
unchanged since 2008, but the number of empty houses has increased by 57% over the same
period. The main cause for this large increase is the economic and housing market downturn with
owners experiencing much longer sale periods than previously. The areas with the highest level of
empty properties are in the postcode sectors of Galashiels and Hawick - the two largest
settlements. However, there are also significant numbers of empty properties in areas which are
predominantly rural. Work has started to establish where there are concentrations of empty
properties and to find out the specific reasons why properties are left empty, and what the most
effective policy responses would be to bring this stock back into use. The conclusion of this work
will be an empty property strategy during the early part of the LHS period 2012-2017.
45
Table 12: Number of long term empty properties and 2nd
homes by HMA
New HMA Long Term Empty 2nd homes
Berwickshire 204 320
Central 611 417
Northern 146 188
Southern 42 72
Total 1003 997
Source: SBC Revenues and Benefits (April 2010)
4.7 Improving housing conditions in the private sector
Housing conditions in the private sector
The Scottish Borders has a slightly higher proportion of people living in the private sector than
elsewhere in Scotland, and latest estimates suggest it has one of the highest proportions of
households living in the private rented sector. In order to achieve a better understanding of the
profile and condition of private housing in the Scottish Borders, the Council contracted the Scottish
Government in 2008 to undertake a boosted sample of 500 homes as part of its annual Scotland
wide house condition survey (SHCS). The following summarises the key findings and conclusions:
Just under two thirds (64%) of private dwellings fail the SHQS, but this is less than found in the
rest of Scotland (75% in 2007).
Failure rates are the highest in the Berwickshire area (77%) and in dwellings in the private
rented sector (84%).
Dwellings in the Borders’ rural areas more often fail the Standard and are more likely to be
inhabited by older people, single people and those on low incomes.
The main types of failures relate to the energy efficiency and healthy, and safe and secure
elements of the Standard.
There are very low levels of Below Tolerable Standard (BTS) dwellings – 0.2% or 86
properties, and a lower proportion than found in Scotland overall. All dwellings assessed as
BTS were found to be in Berwickshire.
Part of the reason for poor quality housing will be the age and type of the housing stock - the
Scottish Borders ranks 3rd in the percentage of pre 1919 properties (31%) behind the highest in
Argyll and Bute and Edinburgh, both at 33%.
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One of the consequences of this stock profile means there is less scope to make viable energy
efficiency improvements in many older house types, which makes it more difficult and
expensive to meet the SHQS and also results in a greater risk of people living in fuel poverty.
Improving housing conditions in the private sector
The Council’s key activities in relation to private sector housing are set out in the Private Sector
Implementation Plan 2009-2011. The Plan is geared towards improving access to housing to meet
a range of local community needs and to improve the quality and condition of private sector
housing in the Scottish Borders. The three key aims are as follows:
To ensure that there is sufficient supply of and improved access to houses that meet the
needs of local communities
To ensure a significant increase in the number of houses in Scottish Borders are of a
quality that meets the Scottish Housing Quality Housing Standard (SHQS)
Promote social inclusion by supporting a reduction in economic and social disadvantage.
The Action Plan was reviewed in early 2010 to ensure targets were being achieved. All key areas
of work are being delivered and many of the larger scale actions have been completed such as the
Scheme of Assistance and the Young Peoples Housing Implementation Plan. The key actions in
these plans to improve housing conditions in the private sector are:
Housing information and advice provided through trained staff (trained to Scottish National
Standards) and range of advice and assistance as set out in the ‘Scheme of Assistance’.
Published information and advice is set out in a range of leaflets, in the Landlord
Newsletter and on the Housing website. Advice is also provided through the Private
Landlords Forum.
Elderly and vulnerable households are given priority for access to housing repair and
adaptation services, facilitated through the Care and Repair project.
The Scheme of Assistance sets out the areas of assistance (advice and resources) across
all the Council departments and partner organisations.
The Council is working with the Scottish Association of Landlords/SRPBA on it’s the
Landlord Accreditation Scheme (see below).
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Following consideration of the new LHS guidance there is no longer a requirement to produce a
separate private sector strategy therefore upon completion of delivery of the plan, work will
continue with in the private sector to ensure that the Council continues to meet the aims and
objectives set out above and these will be monitored through the LHS monitoring and evaluation
process.
Declaration of Housing Renewal Areas
Where it is established that an area has a significant number of houses which are sub-standard or
that the appearance or state of repair of any houses are adversely affecting the amenity of that
area,
Scottish Borders Council may consider declaring a Housing Renewal Area with the purpose of
improving that area. Where a house is defined in a HRA action plan as a house which the Local
Authority considers to be in a state of serious disrepair and ought to be demolished, the Local
Authority may require the homeowner or private landlord to demolish it by the serving of a
Demolition Notice.
When considering whether an area is to be declared a Housing Renewal Area, Scottish Borders
Council will consult with the owners and representative groups within that area in order to:
Advise on how an HRA operates and what it will mean for that particular area;
Agree on the boundary of the area to be included;
Agree on an appropriate action plan that will ensure that any agreed works can be carried
out;
Advise on what assistance if any can be provided.
Scottish Borders Council currently has no active plans to seek to declare any Housing Renewal
Areas but the situation will be reviewed where circumstances, resources and priorities are
changed as reflected in Scottish Borders Council’s Local Housing Strategy.
Landlord registration and accreditation
The introduction of the Antisocial Behaviour etc. (Scotland) Act 2004 required all private landlords
in Scotland to be registered with the local authority in which they rent residential property. The
legislation came into force on the 30 April 2006. By 31 March 2011, 4491 landlords had registered
with Scottish Borders Council and a total of 7240 properties were registered. The Council’s 2008
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research highlighted that the majority of landlords accept the case for landlord registration but
have concerns about the need for more enforcement action against unscrupulous landlords.
Since the launch of the Private Landlord Registration Scheme, the Council has been committed to
ensuring all private landlords are registered and deemed Fit and Proper to rent residential property
in the Scottish Borders. In order to ensure landlords on the register are adhering to their legislative
responsibilities the Council’s Private Rented Sector Enforcement Officer undertakes annual
inspections of at least 50 properties. This allows the Council to continue to assess private
landlords under the Fit and Proper criteria with regards to property management and condition.
The table below shows the enforcement activity as at 31st March 2011.
Table 13: Enforcement activity as at 31 March 2011
Enforcement action No.
Action following failure to renew registration 345
Repairing Standard cases 65
Management standard cases 10
Rent penalty notices 42
In addition the Council provides training opportunities for private landlords through the Private
Landlords Forum and promotes the voluntary Landlord Accreditation Scheme which was launched
in the Scottish Borders in 2008. As of 31 March 2011, 15 landlords/Agents and 385 properties
were accredited. The uptake of the scheme has not been as successful as hoped for, despite
publicity through newsletters, training and landlord forums. Landlord Accreditation Scotland also
undertakes its own promotion. The scheme will be reviewed during this LHS period.
Private sector leasing and rent deposit schemes in the Scottish Borders
Scottish Borders Council has established a Private Sector Leasing Scheme (PSL) where they
lease properties from private sector landlords and then rent them to homeless applicants, normally
for use as temporary accommodation. The introduction of the PSL scheme has increased the
supply of good quality affordable housing and provides an alternative to the use of B&B
accommodation. The Council is committed to future procurement of private sector housing for the
leasing scheme. The Council has commissioned an independent evaluation of the scheme to
ascertain value for money with a view to developing a new model of private sector leasing.
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Some tenants who want to rent privately cannot afford to pay the deposit normally required by
landlords. Under the Deposit Guarantee Scheme, Scottish Borders Council provides a guarantee
that the deposit will be paid if any damage is done to the property while the tenant is living
there. The deposit will be the equivalent of a maximum of two months’ rent.
Since the scheme was launched in 2007 to March 2011 it has facilitated 184 private sector
tenancies for households in the Scottish Borders equivalent to £73,795 guaranteed. To date only
15 claims have been made by landlords for damages, equivalent to £9,445 or 13% of the total rent
guaranteed.
A survey of Scottish Borders landlords in 2008 showed that 21% would be interested in leasing
their properties to homeless households and 28% of landlords surveyed were also interested in
using a Rent Deposit Guarantee Scheme. This suggests that a good proportion of landlords in the
Scottish Borders are now receptive to schemes that assist low income households and
households in housing need. The Council will continue to promote and expand the scheme over
the next 5 years.
4.8 Fuel Poverty
The eradication of fuel poverty is a key priority for the Scottish Government and it has set a target
to ensure that by November 2016, so far as is reasonably practicable, people are not living
in fuel poverty in Scotland. Scottish Borders Council has a statutory obligation to take fuel poverty
into account in developing this Local Housing Strategy and make a contribution to achieving the
2016 target. This requirement is across all tenures.
A person is living in fuel poverty if, in order to maintain a satisfactory heating regime, they would
be required to spend more than 10 per cent of their household income (including Housing Benefit
or Income Support for Mortgage Interest) on all household fuel use. Extreme fuel poverty is where
a household spends more than 20 per cent of its income on household fuel.
Three factors influence whether a household is in fuel poverty:
Low household income - The costs of heating a property form a greater proportion of total
income for those on low incomes.
Fuel costs - Higher prices reduce the affordability of fuel. Prices of different types of fuels
can vary considerably, as can the availability of different fuels in different areas, and of
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different types of heating systems. This affects the ability of consumers to exercise choice.
It should be noted that even with high levels of investment in energy efficiency measures,
the recent upward trend in fuel prices has pushed many families back into fuel poverty.
Energy efficiency - The thermal quality of the building and the efficiency of the heating
source determine the amount of energy that must be purchased to heat the home
adequately.25
The Incidence of Fuel Poverty in the Scottish Borders
Fuel poverty is monitored through the SCHS26. Latest findings show that 31% (16,000) households
in the Scottish Borders are fuel poor. This is a higher proportion than Scotland (25%) and a
substantial deterioration since the 2002 SHCS when 17% (8,000) households were fuel poor in the
Borders. The level of extreme fuel poverty is 10% compared to the national average of 7%. As
noted by the SHCS 2008 report27changes in fuel prices has been an important factor in the
increase in fuel poverty since 2002, and similar increases in fuel poverty are evident across the
country.
The level of fuel poverty in the Scottish Borders can be compared to several other rural local
authorities with similar or higher levels of fuel poverty (Aberdeenshire 33%, Dumfries and
Galloway 36%, Highland 32%, EileanSiar 53%). In terms of energy efficiency levels, the SHCS
2008 report showed that in the Scottish Borders the majority of dwellings (60%) have a moderate
NHER classification (i.e. NHER between 4 and 8) which is higher than the national trend (51%).
However, the Scottish Borders also has a slightly higher proportion of dwellings rated ‘poor’ (7%)
than the rest of Scotland (5%). Overall only a third of private dwellings have a good NHER rating
(i.e. 8 to 10) which is lower than the rest of Scotland (45%).
The factors prevailing in the Scottish Borders as with many other Scottish rural areas are related
to the type and cost of heating, types of property and the low wage economy. In the Scottish
Borders many households have no access to mains gas supplies, so alternative heating systems
are more expensive to run, such as electric storage heaters, oil and LPG central heating systems.
There is more pre-1919 housing than the national average, so cavity wall insulation, one of the
most cost-effective grant-supported energy efficiency measures is not an option for many
25Guidance to local authorities on Fuel Poverty, May 2009
26SHCS 2005-8 LA analyses. As noted above, SBC contracted the Scottish Government to undertake a boost to the
survey of 500 in 2008 to provide more detailed information on the private sector housing conditions27
SHCS Report 2008
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households. As discussed in section 2 of this strategy, the Borders have a greater proportion of
older households, and have a low wage economy.
Looking at fuel poverty by tenure, the Council’s boosted 2008 survey showed that a lower
proportion of households in the private sector are fuel poor compared to the RSL sector (16%
compared to 22%)28. Within the private sector, those more likely to be suffering from fuel poverty
are those living within the private rented sector, will be aged at either end of the age range 16-
24years or 75-84+ and will be living in pre-war housing. There is less specific data available on the
profile of fuel poor households in the RSL sector, but mapping undertaken in 2005 shows
geographical concentrations where people are at more risk of being in fuel poor. Although the
proportion of households in fuel poverty has increased since this mapping exercise, it is expected
the high risk areas will be the same. These include some RSL concentrations at Burnfoot,
Mansfield and Mossilee, and some other areas including Hermitage, Kelso Central, and Central
and West Linton and District are considered to being at great risk of being in fuel poverty.
The impact of fuel poverty on health and independent living is also relevant for the LHS, and
should be considered alongside the Strategy’s independent living objectives (see Section 6).
Disabled people who have difficulties with mobility and often spend more time at home require an
adequate level of heating which can be difficult to achieve due to fuel poverty. People living on a
low income struggle with the high costs of gas and electricity, often are forced to choose between
food and warmth. Unemployed people spend more time at home and live on a low income. By
dealing with issues such as these, Scottish Borders Council can support help to enable
independent living. The Marmot Review of The Health Impacts of Cold Homes and Fuel Poverty
(2011) also highlights the impacts of living in a cold home on young children and the mental health
of adolescents. It shows the main impacts of fuel poverty as:
There is a strong relationship between cold temperatures and cardiovascular and
respiratory diseases
Children living in cold homes are more than twice as likely to suffer from a variety of
respiratory problems than children living in warm homes.
Mental health is negatively affected by fuel poverty and cold housing for any age group.
More than 1 in 4 adolescents living in cold housing are at risk of multiple mental health
problems compared with 1 in 20 adolescents who have always lived in warm housing.
28SBC Private Sector Survey Boost Analysis, May 2009 and SCHS 2005-8 LA analysis
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Cold housing increases the level of minor illnesses such as colds and flu and exacerbates
existing conditions such as arthritis and rheumatism.
Despite some higher risks in relation to fuel poverty, the Scottish Borders environment makes
several renewable technologies more attractive than they would be in more urban areas. There is
a well-established forestry industry providing cheap waste wood fuel for wood-fired boilers. Micro
wind and hydro schemes are also more likely to be suitable for more remote properties.
Figure 6: Fuel Poverty, by pre-2007 Electoral Ward
Tacking Fuel Poverty
Tackling poverty and fuel poverty is a key priority for the Council and its Community Planning
partners. As discussed in Section 2 of this strategy, the Scottish Borders is recognised as having a
53
low wage economy and average weekly wages are 22% lower than the average weekly wage in
Scotland.29Addressing fuel poverty and household energy use are included in the SOA as follows:
Local Outcome 7_3 There are fewer people living in poverty (Targets 2009/10 to 2011/12)
Increase in monetary gains Targets: £4.49m, £4.58m, £4.67mIncrease in the number of benefit issues dealt withby CAB
Targets: 7,600, 7,800, 8,000
Increase in the monetary value of benefit issuesdealt with
Targets: £0.83m, £0.84m, £0.84m
Increase in the number of new debt clients assistedby CABs
430, 440, 450
Increase in the number if people accessing welfarebenefit
2,654, 2,680, 2,700
Local Outcome 014_2 Energy Consumption by households, communities and employers is reduced
and the use of `renewables’ is increased (Targets 2009/10 to 2011/12)
Increase the number of households receiving energyefficiency advice from the Council’s Home EnergyAdvice Service
Targets: 700, 745, 782
The Strategic Partnership Against Poverty (SPAP) is the main monitoring group for the delivery of
the Anti-Poverty Strategy and was set up following discussions between Scottish Borders Council
and local MSPs. The key aim of this group is to “reduce and prevent Poverty in Scottish Borders”.
Membership of the group includes representatives from all departments from Scottish Borders
Councils, NHS Borders, the Citizens Advice Bureaux, Registered Social Landlords and the
Department for Work and Pensions. It monitors the action points in the Council’s Fuel Poverty
Strategy and the Tackling Poverty and Financial and Inclusion Strategy.
The Council’s `Tackling Poverty and Financial Inclusion Strategy’ sets out an action plan and
commitments to achieve three objectives over the next three years 2010-2013:
Reduce the number of households in the Scottish Borders currently in debt, or at risk of
being in debt
Improve access to affordable and manageable financial services in order that households
manage their money more efficiently.
Improve access to information and advice to help maximise incomes.
29Nomis Labour Market Statistics, 2009
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Tackling fuel poverty specifically is integral across many aspects of this Local Housing Strategy
with commitments and actions set out in the Fuel Poverty Implementation Plan 2009-2014, the
Private Sector Housing Delivery Plan, the Scheme of Assistance, RSL Standard Delivery Plans,
the Homelessness Strategy, and the Young Persons Implementation Plan. These aim to improve
conditions while targeting advice, information and assistance to the most vulnerable at the
extremes of the age spectrum - the young and old, as well as those with disabilities and other
vulnerabilities.
The Fuel Poverty Implementation Plan 2009-14 sets out the objectives and related actions to
tackle fuel poverty and increase home energy efficiency in the Scottish Borders. The objectives of
the strategy are:
To improve the understanding of fuel poverty in the Scottish Borders in order that the
Council can improve targeting of services
Provide ongoing fuel poverty advice and information to households in all tenures
Increase energy and fuel efficiency of housing in all tenures
Reduce the number of low income households living in fuel poverty
Work with partner organisations to reduce the number of households in the Scottish
Borders living in fuel poverty.
The main way in which the strategy is being delivered is through the Council’s Home Energy
Advice Service and the Borders Fuel Poverty Partnership which includes the Council, NHS
Borders and the four locally based RSLs. In 2009 the remit of the Home Energy Advice Service
was extended through financial support from all the Borders Fuel Poverty partners in recognition
that this is a priority issue and the increasing demands placed on the service. The Home Energy
Advisor provides energy and income maximisation advice to households across all tenures in the
Borders through home visits and telephone advice, and gives energy efficiency talks to community
groups. Extension of the services allowed for increased hours of the service, a hardship fund for
those not able to access government grants, information surgeries at locations convenient to the
public, training to staff in various organisations including RSLs, letting agents, specialist advice
services for the terminally ill/disabled people to ensure they are warm in their home and outreach
work in areas identified as having a high risk of fuel poverty. The service promotes and makes
referrals to the Scottish Government’s Energy Assistance Package/ Energy Saving Scotland
55
advice centre30 to ensure that fuel poor households receive grant funding for energy efficiency
measures, and works closely with the Energy Saving Scotland advice centre to ensure the
services are complementary and maximise impact. The Council’s service also works to maximise
resources through bidding for government schemes: it has been working with local community
groups to develop schemes to utilise the Scottish Government / utility companies Climate
Challenge Fund (CCF): in March 2010 six community projects were approved to the value of
£0.36m. A successful bid was also made in 2010 to participate in the Home Insulation Scheme
and activity began in the Berwickshire area in September 2010. The Council also made a
successful bid for Universal Home Insulation Scheme (UHIS) for the Tweeddale area which
secured just under £1/2m and ended in 31st March 2011.
The Council also offers the Council Tax Energy Efficiency Rebate Scheme to provide up to £65 as
a one-off rebate on Council Tax when cavity wall and or loft insulation is installed, and is working
with Energy Saving Scotland to offer a discount offer on solar PVs in selected areas of the
Scottish Borders to encourage the uptake of renewable technologies. To date17 properties have
participated in renewable area targeted scheme.
Scottish Borders Council recognises the commitment required by the Climate Change (Scotland)
Act 2009.The legislation includes targets to reduce Scotland's emissions of greenhouse gases by
80 per cent by 2050, with an interim target for 2020 of at least 42 per cent reductions in emissions.
It is estimated that around three-quarters of savings required to deliver the interim target could be
delivered from housing – this requires substantial behavioural change as well as increasing home
energy efficiency and moving to low carbon heat. The energy efficiency measures required to
make a difference to the emissions targets require a step change in insulation of domestic
buildings, including the insulation of all suitable cavity walls in Scotland and enhancement of all loft
insulation where it is practical to do so.31Given the type of area’s housing stock, finding new and
feasible ways to substantially increase energy efficiency in the Scottish Borders will be a
challenging, yet critically important task over the next five years of the strategy.
30Funded by the Energy Savings Trust to provide energy advice.
31Climate Change Delivery Plan, Scottish Government 2009
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4.9 Key delivery plans
The following lists key delivery plans which the Council and partners are already using to ensure
housing access and quality is improved in the Scottish Borders:
4.10 Priorities for the LHS 2012-17
The following summarises the key actions required to improve housing access and quality.
Homelessness Strategy 2009
RSL Standard Delivery Plans
Scheme of Assistance, 2010
Private Sector Implementation Plan 2009-12
Tackling Poverty and Financial Inclusion Strategy 2010-13
Fuel Poverty Implementation Plan 2009-14
Evaluate the housing options approach and continue to improve provision of
information and advice across tenures – this will include joint working with RSLs to
ensure consistent advice across sectors
Monitor and evaluate the means of access to social housing and develop action plans
with the RSLs
Work with local housing associations in the implementation the regeneration of
Stonefield in Hawick
Assess the impact of the Housing (Scotland) 2010 on right to buy take up and consider
any future requirements for pressured area status
Monitor achievement of SHQS 2015 target in the RSL sector
Develop and implement an empty homes strategy
Assist private landlords to improve management standards
Review the landlord accreditation scheme
Monitor implementation of the scheme of assistance to improve condition in the private
sector, and prioritise assistance to older and vulnerable households
Monitor implementation of the Fuel Poverty Strategy
Develop a fuel poverty action plan
Commence shared services local authority pilot for empty homes officer
Promote discounted sales and improved access to mortgages with banks.
5. Preventing and tackling homelessness
5.1 What are the key issues?
This summary sets out our understanding of the key issues in relation to homelessness in the
Scottish Borders:
While the Council transferred all its housing stock to Scottish Borders Housing
Association, it still has a statutory duty for homelessness and works closely with all local
housing associations to meet the short and long term housing needs of homeless
households.
The Housing (Scotland) Act 2003 introduced the phasing out of priority and non-priority
need distinctions, and the Scottish Government has set a statutory target that from
December 2012 onwards, all unintentionally homeless households will be entitled to
settled accommodation.
Since 1998/9 the number of homeless applications in the Scottish Borders from 471 per
annum to a peak of 1,093 per annum in 2007/8 – a 70% increase. This level of increase
was close to the Scottish average.
Some of this increase is to do with the legislative change introduced in 2001 and 2003 -
this has been hailed as one of the world’s most progressive pieces of homeless
legislation. It widened the definition of homelessness and the entitlement to temporary
accommodation, and put a strong emphasis on prevention, and information and advice
rather than ‘gate-keeping’.
The main increases in applications in the Scottish Borders have come from single people,
and young people aged 16-17 years.
The main reasons for homelessness in the Scottish Borders are where family of friends
are no willing to accommodate the homeless applicants, violent and non-violent
relationship breakdown, and loss of private tenancies. This is in line with trends across
Scotland.
The Council adopted its new homelessness strategy in February 2010 which has a strong
emphasis on prevention. Since a peak in 2007/8, the trend in homeless applications has
been steadily downward to 780 in 2010/11.
Access to permanent housing remains a serious challenge in the Scottish Borders. In
addition to the local housing associations, the Council is now working with private sector
57
landlords to provide settled accommodation.
58
5.2 What do we want to achieve?
Strategic Outcome 3
People are less likely to become homeless and those affected by homelessness have
improved access to settled accommodation
This will be achieved by:
Delivering effective preventative services
Increasing and improving the supply of temporary accommodation
Maximising access to a range of support and assistance
Increasing the supply and improving access to settled accommodation
Putting suitable management and delivery systems in place to ensure delivery on the
homeless strategy’s objectives.
5.3 The scale and nature of homelessness in the Scottish Borders32
Figure 7 shows how a 10-year trend of increasing homelessness in Scotland stopped in 2005/6.
There was a lag before this trend was replicated in the Scottish Borders, but there is now a
downward trend from a peak of 1,093 in 2007/8 to the 780 in 2010/11. This reflects the merits of
the prevention led approach in the Council’s new homelessness strategy.
Figure 7: Homeless applications Scotland and the Scottish Borders
Source: Scottish Government, August 2011
32Further detailed information and data tables are held in the Homelessness Strategy 2009.
59
Detailed analysis on the nature of homelessness is included in the homelessness strategy 2009. A
large proportion of homeless applications are from young people: 60% of homelessness
applicants are under 35 years old. In the 16-24 years age bracket applicants are predominantly
female, and in the 25-34 year age bracket applicants are more commonly male. Analysis of the
growth in homeless applications since 2003 shows an increase in single person applicants and
young people aged 16-17.
Figure 8: Age profile of applicants
Source: HL1 system 2009/10
Figure 9 below shows the greatest proportion of homeless applicants is single households,
followed by single parents (female) and couples without children. This is very closely aligned to the
Scottish pattern, but the Borders has a lower proportion of single parents and higher proportion of
couple applicants – with and without children.
Figure 9: Percentage homeless applications by household type, Scottish Borders and Scotland,
2009/10
Source: Scottish Government, August 2010
60
The most common reasons for people becoming homeless are disputes in the household (33% -
whether violent or non-violent) or being asked to leave the home (19%). A key indicator of success
in homelessness prevention is the extent to which the underlying reasons for homelessness have
been resolved, often indicated by the proportion of repeat applications: in 2010/11, 5% of all
applications in the Scottish Borders have been reassessed as homeless within the same year
compared to 6% for Scotland - considerable progress has been made in the Borders since 2007/8
when the proportion of repeat homelessness was very high at 16%33. A key action identified within
the Homelessness Strategy is to record and analyse the reasons for repeat homelessness.
A key feature of the Scottish homelessness legislation is that all unintentionally homeless
households will be entitled to settled accommodation by 2012. Currently homeless people who are
found by the Council to be in a category of 'priority need' and who are unintentionally homeless
with a local connection to the area have the right to settled accommodation. This right will be
expanded to include all unintentionally homeless people by abolishing priority need by 2012. Many
Scottish local authorities have been gradually extending their definition of priority need to ease in
the implementation of the 2012 target. In 2010/11 the Scottish average for priority need
determinations was 88% of all homeless or potentially homeless assessments. The Scottish
Borders figure was 69% in 2010/11 which is a reduction from 73% in 2008/9. It is anticipated that
the removal of the priority need qualification will increase the pressure for housing with an
anticipated 700-800 homeless households being entitled to settled accommodation by 2012,
unless robust preventative measures and interventions are put in place.
The Council commissioned research in order to better understand the housing needs of minority
ethnic group in the Scottish Borders in 2008. This showed that, based on the 2001 Census, 2.5%
of the population of the Scottish Borders is made up of individuals from minority ethnic
communities and that the majority of these are from white, non UK communities (typically from A8
countries). Research undertaken for the homelessness strategy confirmed that there has been a
large increase in homeless applicants recorded as ‘other white’. In 2002/3 only five such
applications were made, whereas the average for the years between 2005/6 to 2007/8 was 45 (an
800% increase). The homeless strategy research also involved discussions with the migrant
worker project based with Eildon Housing Association: this recorded 16% of its enquiries being
from homeless people, most of which were from A8 countries (notably Polish) but also a significant
number from Portugal. The migrant worker project also noted that these households were often
33Source: Homelessness Strategy 2009, page 59, HL1 data
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living in poor quality housing, frequently with no tenancy agreements, and often with housing tied
to a job.
5.4 Tackling Homelessness in the Scottish Borders
The homelessness strategy was developed at a time when the
economic outlook for Scotland (and the rest of the UK) was
pessimistic and uncertain and this remains to be the case at time of
development of the LHS 2012-2017.As discussed in the early
chapters of the strategy, the recession and pressure in the wider
housing market has implications for people’s ability to buy a house,
increasing the pressure on rented housing, and increasing household
debt34. The removal of priority need will add pressure for the need for
more accommodation.
The availability of existing affordable housing is decreasing and the supply target of 103 units of
new affordable housing per annum may be difficult to achieve. In addition, it is anticipated that in
order to meet the increased demand created by removal of priority need, the majority35 of re-lets of
RSL properties would have to be homeless households. While the Council is committed to
achieving the 2012 target, it is also realistic about the role that new supply can play in reaching it.
Improving access to existing housing in both the social and private rented sectors, and a strong
approach to homelessness prevention will be critical.
The Council’s Homelessness Service was inspected by the Scottish Housing Regulator in June
2007 and judged the service as ‘Fair’. Following this inspection the Council developed a
comprehensive Homelessness Strategy around six overarching objectives:
Provide a service that takes all reasonable steps to prevent people becoming homeless
Provide services to homeless households that will be accessible, of the highest quality and
tailored wherever possible to their specific needs
Seek to maximise the access to and range of support and assistance offered to help
people achieve or maintain independence
34Borders Citizen Advice Bureau saw in increase in multiple debt problems totally £12,473, 715 compared with £8, 813,
466 against the previous period (Borders CAB Annual Report 2009-2010)35
At least 75% of Housing Association re-lets compared with 40% currently
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Operate a fair, accessible and responsive system for finding homeless households settled
accommodation
Put in place well publicised housing and related advice services that tackle the particular
problems facing Scottish Borders residents
Put in place an excellent management and delivery system to ensure delivery on the
homeless strategy’s objectives.
Following endorsement of the Homelessness Strategy by Council in February 2010, the
subsequent three year 2010-13 involves implementation of the strategy’s detailed action plan – its
overall aim is to meet the 2012 target. The strategy covers six key areas of activity to support the
objectives listed above. This also includes establishing a dedicated Homelessness Prevention
Team that will provide a service that takes all reasonable steps to avoid people becoming actually
homeless and introducing a housing options approach. The Council will continue to develop
homelessness services that are accessible, of the highest quality and tailored wherever possible
to the specific needs of homeless households and those households at risk of homelessness.
The Council is now adopting a Housing Options approach and is working with RSL partners and
other advice agencies on how to roll out this approach more widely to ensure that consistent
information and advice is provided on housing access and homelessness prevention. This will
include joint training.
The Regulator’s inspection report noted that the current supply of temporary accommodation is not
meeting demand, and pointed to shortages in the supply of:
Suitable temporary properties across all areas
Accessible accommodation for wheelchair users
Supported accommodation for particular needs groups
The homelessness strategy and temporary accommodation strategy have specific actions and
targets to increase the amount of temporary accommodation, including supported accommodation
for young people and those with specific needs. The strategy also includes actions to improve
physical and management standards in temporary accommodation, and to minimise the use of
bed and breakfast accommodation.
In realising the vital role that the private rented sector plays the Council has recently reviewed and
increased the use of the private sector through widening the criteria of the Council’s deposit
63
guarantee scheme to enable more people to access the scheme. The Council will also
commission supported transitional accommodation for young homeless people and will continue to
work with its RSL partners in order maximise access to and range of support and assistance
offered to help people achieve and/or maintain independence. The Council plan to establish a
Peer Mentoring Scheme to support homeless or potentially homeless young people. The Council
also aims to develop a `host family’ scheme to accommodate young people in crisis for a short
period of time and is looking to develop a volunteer `befriending support scheme’ to support other
vulnerable client groups. The private sector leasing scheme is also a vital resource for housing
homeless households and during the life of this LHS the outcome of a recent evaluation of PSL
will be implemented.
Section 32A of the Housing (Scotland) Act 1987, allows the Council more flexibility in discharging
its homelessness duties, with a view to enabling wider use of the private rented sector where this
will meet the needs of homeless households. The Council has recently implemented procedural
guidelines on re-housing homeless people in the private rented sector.
The Council is also re-designing how accommodation and services are delivered to women fleeing
domestic violence in order to produce a range of services that lead to better outcomes for women
and children and with an emphasis on homelessness prevention. The vision is to establish an
integrated, coordinated, community based response to addressing domestic abuse in the Scottish
Borders in line with good practice and that is reflective of the key elements of Provision,
Protection, Prevention and Participation. Currently in the Scottish Borders, domestic abuse
services are primarily delivered by the voluntary sector, supported by a range of funding streams
from the Council, primarily from the Scottish Government.
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5.5 Key delivery plans
The following highlights the key delivery plans which the Council and partners are already working
on to prevent and tackle homelessness:
5.6 Priorities for the LHS 2012-17
The following summarises the key actions required to prevent homelessness and improve access
to temporary and settled accommodation.
Homelessness Strategy Action Plan 2010-13
Temporary Accommodation Strategy 2009 (currently under review)
Children’s Services Plan 2009-2012
Drug and Alcohol Action Plans
Strategic Housing Investment Plan 2010-15
Local Health Improvement Plans
Private Sector Implementation Plan 2009-2012
Homeless Prevention Strategy (being developed in 2011/2012)
Housing Support Strategy (being developed in 2011/12)
Review and evaluate new homelessness prevention team
Develop homeless prevention strategy
Develop a new housing support model
Relocate the homeless team to Galasheils
Review access to the homeless service to ensure it is full, fair and open
Implement a revised temporary accommodation strategy
Review section 5 protocols with RSLs
Review the private sector leasing scheme and develop a new model
Assist private landlords to improve management standards, particularly for those at risk
of homelessness
Develop a specification for homeless and advice services for women fleeing violence
Improve the quality of the appeals process
Strengthen partnership working with NHS Borders
Monitor housing and homeless issues affecting migrants and revise policies and
procedures accordingly.
Develop and roll out peer mentoring scheme for young people
Develop host family scheme for young people in housing crisis
Develop befriending support scheme for vulnerable homeless households
Explore handy-person scheme for young people
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6. Enabling independent living
6.1 What are the key issues?
This summary sets out our understanding of the key issues in relation to housing support and
housing required for particular needs in the Scottish Borders:
6.2 What do we want to achieve?
Strategic Outcome 4
More people with particular housing needs and/or those who require support
are be able to live independently in the own home
This will be achieved by:
Working closely with Scottish Borders Social Work Services and NHS Borders to
implement community care strategies
Working with local housing associations to provide housing which is fit for purpose
Providing housing support, directly and with partners to help people remain in their own
home and prevent homelessness.
Developing a Housing Support Strategy for Homeless Households as outlined in previous
chapter
Housing and related support services are critical in enabling people to live independently
within their own communities. The Local Housing Strategy has an important role in
underpinning the Scottish Borders Community Care plans.
The number of people that may require support to live independently in the Scottish
Borders is increasing – particularly older people and those suffering with dementia,
people with physical disabilities and learning disabilities.
These projected increases will result in increased demand for housing support, housing
adaptations, and specifically designed or adaptable housing.
There are many others that also require support to enable independent living, but who do
not necessarily need specific types of housing. A recently completed review of housing
support needs in the Scottish Borders showed that many people have inadequate access
to housing support – these include people with mental health problems, people with
alcohol and drugs misuse problems, young people and people at risk of domestic
violence.
There are considerable challenges around the demand for housing support services,
access to services, and the reduction in funding for these services.
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6.3 Particular housing needs in the Scottish Borders
Older people36
The Scottish Borders Community Health Partnership Health and Wellbeing Profile 2008 states that
people in the Scottish Borders have a significantly better life expectancy and ‘expected years of
life in good health’ compared to Scotland. The implications are that the Borders will have
proportionally older people to care for than is found nationally: as shown in Figure 10 below
projections suggest a 55% increase in people aged 65-74 years and 102% increase in people
aged over 75 years. Overall, this is 37% more than the national increase of people aged over 65.
This will result in increased demand for support services, home adaptations and in a minority of
cases specifically designed housing. As noted in the recent Scottish Borders Community Care
Best Value Review “Transforming Older People’s Services” (TOPS), the majority of older people
have low level needs which can be addressed through preventative services and at home.
However, compared to the rest of Scotland, the Borders has relatively high levels of older people
in care homes, and relatively low numbers of people assisted to live at home, including those
receiving more intensive home care or ‘Extra Care’ services. A recent sheltered housing review
showed that the majority of the existing sheltered housing stock is not fit for purpose, due to the
housing type, quality and accessibility. Furthermore, there is currently no extra-care housing
currently in the Scottish Borders which could offer a suitable alternative for those who would
otherwise be moving into residential care but for whom conventional sheltered housing is not
suitable.
362009 Scrutiny Review, Changes in Demographics of the Scottish Borders, Transforming Older People’s Services 2009
including the Accommodation with Care Strategy, and Population projections, GROS (2008 based)
67
Figure 10: % Change in 65-74 and 75+ year olds 2008-2033
Source: GROS (2008 based)
People living with dementia37
The increase in people with dementia is also strongly linked to the increase in life expectancy. It
has been estimated that between 2006 and 2021 there will be a 57% increase in the number
people with dementia in the Scottish Borders; this is above the expected increase of 38% for
Scotland. This means the rate of increase in the Borders is half as much again as in the rest of
Scotland.
People with learning disabilities38
In the Scottish Borders, there were an estimated 543 adults with learning disabilities known to the
Local Authority in 2008, this equates to 6 adults per 1,000 members of the population, in line with
the average for Scotland of 5.9 of those adults who are known to the Local Authority. 69% do not
live with a family carer, 62% live alone and 63% live in the social rented sector. There is a
projected increase in the people with learning disabilities aged over 65 years of 9.5% between
2006 and 2021 (compared to 4.4% in Scotland). This is again linked to the better in life expectancy
in the Borders. 131 clients with learning disabilities received Housing Support in 2007/8 – 4% of all
37TOPS, 2009
38Exploring Housing Support Needs in the Scottish Borders, 2010, and 2009 Scrutiny Review, Changes in
Demographics of the Scottish Borders
68
housing support clients compared to 5% nationally. According to the recent Exploration of Housing
Support Needs in the Scottish Borders (2010), while there is a range of support available for
people with learning disabilities, there is a requirement for more flexible housing options which
meets people’s long term housing and health requirements (in terms of location, access and
adaptions). The rural nature of the Borders places considerable pressure on visiting housing
support services due to travelling time, and there is a requirement to supply core and cluster
housing that provides a good housing option for some clients, combined with a more efficient
model of supported housing.
People with physical disabilities and sensory impairment39
According to the Scottish Government, nearly one in five people of working age in Scotland are
disabled. This means that approximately 13,082 people of working age in the Scottish Borders
were disabled in 2006. Currently there is limited information on the total number of people with
disabilities, but the NHS/SBC strategy Living Well with a Disability (2010) provides some detailed
information on the number of service users with a physical disability or sensory impairment. There
is less information on how many people should be planned for in the future, and whether there are
service gaps within certain communities. However, the number of people aged 16plus claiming
Incapacity Benefit (IB) or Severe Disablement Allowance (SDA) gives an indication of the overall
disability population. This suggests the number of people with physical disabilities in the Borders is
increasing whist it is decreasing for Scotland as a whole. In the Borders a very small proportion of
all clients receiving Housing Support are clients with physical disabilities or sensory impairment –
15 people or 1% of all HS clients (compared to 7% in Scotland as a whole) but in line with other
evidence, there is increasing numbers of service users placing demands on service provision.
Scottish Borders Council compares favourably with other Scottish areas in the proportion of
funding that is spent on supporting people at home, who need a high level of care, but at the same
time, the number of people funded in care homes by Social Work and NHS Borders has increased
since 2007. This is despite the promotion of multi-funded care packages to support people with
complex needs, and the development of a new service in Duns. Some key reasons for this appear
to be:
It is difficult to provide robust 24 hour support in a cost effective way, particularly when 2-3
carers and overnight support are required;
392009 Scrutiny Review, Changes in Demographics of the Scottish Borders and Living Well with a Disability (2010)
69
There is an insufficient stock of wheelchair accessible housing - locally there are 102
houses of wheelchair standard in the housing association stock; Scottish Government
guidelines recommend that there should be 535 houses;
There have not been enough vacant tenancies in the new Duns service to meet the
demand for this service.
The key housing issue for this need group is the requirement for accessible housing, problems
over the funding and timescales for adaptations to be completed and demand for an affordable
gardening service.
People with mental health problems40
In general, the Scottish Borders area is a low user of emergency and short term mental health
detention. According to official figures there were 13 emergency detention certificates awarded in
2007/08 and 51 short term detentions. This equates to approximately 12 emergency detention
certificates per 100,000 population. This is less than the average for Scotland. Another 20
compulsory treatment orders (long term compulsion) were issued in the Borders over the same
period, a rate of 18 per 100,000 people, slightly lower than the Scottish rate as a whole. However,
according to supporting people data, the Scottish Borders provides a higher than average level of
support to this client group. The key issues for housing for this client group are the supply,
suitability and affordability of housing in the Borders. There is a lack of supply of core and cluster
supported housing and there are also gaps in relation to the provision of tenancy/ accommodation
sustainment and assistance in crisis.
People with alcohol / drug misuse problems41
It is estimated that over 2,000 people in the Borders have alcohol and, or drug misuse problems.
In terms of drugs misuse, the reported cases in the Scottish Borders are relatively low and the
area has a lower rate per 100,000 than Scotland on average (163 new cases in the Borders
compared to 244 in Scotland – rate per 100,000 in 2008).People with addiction problems are often
likely to have chaotic lifestyles and experience repeat homelessness. The lack of suitable
supported housing supply and temporary accommodation can result in recurring misuse.
40Exploring Housing Support Needs in the Scottish Borders, 2010
41Exploring Housing Support Needs in the Scottish Borders, 2010
70
Offenders or people at risk of offending42
According to information from Scottish Neighbourhood Statistics, the Scottish Borders dealt with
494 social enquiry reports in 2008, around 1% of the total for Scotland. This is slightly lower
proportion than would be expected given that the local authority total population is around 2% of
the Scottish total. Offenders can often have a complex mix of needs which could be associated
with mental health and/or substance misuse. In terms of housing provision, the situation is thought
to have improved since the SOLO officer has been in post, although there remains an issue
around the provision of short term housing.
Young People Leaving Care43
Scottish Government statistics show that 0.8% of the 0-18 population were looked after by
Scottish Borders Council in 2007/8. This is lower than the Scottish figure of 1.3%. The Council’s
16+Transition Team address the needs of vulnerable young people aged between 16 and 21 and
at any given time the council supports between 70 and 90 young people – from this is it estimated
that about 20 young people each year will be looking for re-housing each year44. These vulnerable
young people often have multiple and complex needs including mental health problems, learning
disabilities, alcohol and drug misuse and offending behaviour. SBC is currently developing
teenage foster placements, self contained supported accommodation for four young people, a
training flat, supported carers and a protocol with RSLs etc to prevent care leavers having to
access accommodation via the homeless route. Historically, there has been little housing choice
for young people and many have taken on tenancies at the age of 16, without any support to
manage them. There is a need to provide more tenancy sustainment services for young people in
the Borders, particularly for those living in RSL accommodation.
42Exploring the Housing Support Needs in the Borders
43Exploring the Housing Support Needs in the Borders
44It should be noted that these 20 people are only those known to the Transition Team and does not include many other
vulnerable young people approaching the Council for housing assistance that have not come through the Looked After
route
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People at risk of domestic violence45
The exact number of people in Scotland suffering from domestic abuse is unknown as many
victims are unwilling to go to the police or contact local authorities. In the Scottish Borders
statistics for 2008/09 shows that there were 659 incidences of domestic violence, a rate 591 per
100,000 (compared to 1039 per 100,000 in Scotland). 58-60% of these were repeat incidences. In
2008, the Council launched new services and advice for people living with domestic abuse and for
people to leave abuse. This was accessed by 174 women that year. Supporting People data
shows that the proportion of people receiving housing support who are at risk of domestic violence
is slightly below the average for Scotland: 23 people received a housing support service in the
Borders in 2007/8. There is lack of suitable move-on accommodation for people and families
leaving refuge accommodation in the Borders (some people are staying in refuges for up to a year
due to lack of move on accommodation). In particular it is difficult to re-house large families due to
the lack of suitably sized accommodation.
6.4 Enabling independent living
This section sets out current and planned activity to enable people to live independently.
Older people and those suffering from dementia
In line with Scottish Government policy, the Borders Community Health and Care Partnership is
aiming to steadily increase support to assist older people to continue to live independently in their
own homes and decrease reliance of residential care home places. TOPS notes that in 2009/10
SBC had a budget of £26.5m for social care services for older people, but of this, 62% was spent
on less than 3% of the 65+ population for care home places. The strategy acknowledges that
future services must be delivered in a way that meets rising demands and expectations of older
people now and in the future, and make the best use of resources.
The recommendations from Accommodation with Care Strategy are the main focus of activity for
enabling older people to live independently in the Borders: These are:
45Exploring the Housing Support Needs in the Borders
72
Reducing reliance on residential care with a significant increase in the number of people
supported with intensive home care packages in the community by providing services for
686 service users by 2018.
Increasing the availability of Extra Care Housing by 147 units and by building upon the
strong co-operation of our housing partners.
Developing a new role and focus for SBC Residential Homes, delivering a combination of
enhanced care, specialist dementia care, residential short breaks, intermediate care and
assessment beds depending on the local level of demand and market supply.
Working with RSLs to decommission 10 sheltered housing developments that are
considered not fit for purpose and offer no effective re-development potential (also
discussed in sections above).
Commission a new model of care facility in Duns and Eyemouth to provide nursing and
enhanced care.
Working with the provider of the registered housing with care service in Jedburgh to re-
design the facility and offer nursing and enhanced care.
Maximising the use of Telecare and Telehealth to support people in their own home
Working with the independent sector to commission and deliver 362 modern good quality
long term enhanced care or nursing care placements by 2018.
A key element of the housing strategy to enable independent living is through Care and Repair.
This service provides advice, assistance and adaptations for older and disabled people living in
the private sector. The service is managed by Eildon Enterprise (a subsidiary of Eildon Housing
Association). In 2009/10 the service delivered 157 major adaptations, 120 small repairs, 178 minor
adaptations, 3764 handyperson jobs and 1354 Social Work adaptations. The service achieved a
98.65% “very good” through its user satisfaction survey. In addition to Care and Repair providing
aids and adaptation services for residents living in the private sector, adaptations are also
undertaken by RSL for tenants living in housing association homes – in 2009/10 there was a total
investment over £722,000 for the benefit of 363 tenants requiring a variety of house adaptations to
enable independent living. However it is recognised that public sector cuts mean that in future that
this level of funding may be at risk. Recognition of the impact this will have on the adaptation
budgets has led the Council and RSLs to undertake a review of the type of adaptations
undertaken, the priority system and relevant protocols between Social Work and RSLs. The
changing financial position means that a flat rate charge for access to the Handyperson Services
has now been introduced to ensure the service can be retained.
73
People with physical disabilities and sensory impairment
The Living Well with a Disability sets out how the Council and its partners will enable people with a
disability to live independently. Current and future activity includes:
Care and Repair - In 2006 the Care and Repair service was rolled out across the Borders;
and as noted above 335 adaptations were installed, plus 1,354 Social Work adaptations.
Compared to other local authorities Scottish Borders spending is high on adapting housing
for people with a physical disability and so future provision must ensure best value is being
achieved.
Equipment - such as toilet raisers, shower chairs, perching stools are crucial for many
people to live more independently. Given the demand for equipment the Council is trying
to improve access to it and reduce waiting times for this.
Investment - working with the Scottish Government and RSLs to identify and increase
wheelchair accessible housing where needed, through adapting houses and through new
housing development.
Support - Develop support solutions to provide 24 hour support where required. This will
include: improving access to ability equipment; ensuring the use of telecare is maximised
to promote independence and safety; working with care providers to increase the range of
24 hour support solutions.
Support people in care homes out of the area to return to the Borders.
Ensure that there are services for end of life care in people’s homes, for those who want
this option, or close to people’s homes.
People with mental health problems
The Council recently undertook a mental health rehab option appraisal in May 2010; the event was
attended by NHS staff, Social Work staff, Mental Health users and carers. The outcome of the
option appraisal identified a preferred model and RSLs have been engaged to explore if these
solutions are possible. The preferred model identified during this process is a core and cluster
model with an intensive support team. Over and above this bricks and mortar provision the Council
will continue to support independent living through visiting support in people’s own homes
Young People
Following a process of research and consultation with young people, the Young Person’s Housing
Vision Statement and Action Plan sets out the Council’s strategic aims:
74
To prevent homelessness among young people wherever possible
Improve the quality, type and availability of accommodation for young people
To ensure the provision of appropriate support for homeless and badly house young
people.
The strategy identifies a number of key actions to achieve these aims, along with indicators and
targets to track achievement in this area.
People at risk of domestic violence
The Council and its partners have embarked upon a five year Domestic Abuse Redesign process.
This has been supported by a ‘Hearing Your Voice’ research project which clearly reflects
women’s experiences of accessing services and suggested ways in which service provision could
be improved, and an option appraisal which scoped out the key areas required to inform service
improvement. The focus of the service redesign is ultimately mainstreaming the response to
violence against women and domestic abuse by increasing both personal and organisational
advocacy, effective prevention of women requiring refuge (ie increasing home safety and
preventing homelessness) and providing the long term practical support required. In terms of
refuge provision, the aim would be to move to a more modern, effective refuge service, fit for
purpose and which is cost effective. This five year project will enable a long term view of the
changes required. Potential funding sources are being explored, and more work is required to
suggest the re-alignment of current funding to maximise outcomes from potentially reduced
resources.
6.5 Key delivery plans
The following highlights the key delivery plans which the Council and partners are already working
to enable independent living:
TOPS 2009
Accommodation with Care for Older People 2009
Dementia Strategy 2009
Physical Disability Strategy 2010
Young Person’s Housing Vision Statement and Action Plan 2009
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6.6 Priorities for the LHS 2012-17
The following summarises the key actions required to prevent enable independent living.
Remodel 10 RSL sheltered housing developments
Put in place a long term investment strategy for Care and Repair
Monitor and evaluate procedures, value for money and impact of adaptations and
equipment provision
Increase supply of wheelchair and specifically adapted housing
Develop a housing strategy for people with learning disabilities
Monitor availability and impact of housing support for young people and other
vulnerable client groups through implementation of the Homelessness Strategy
Contribute to the domestic abuse redesign process
Develop a priority client group delivery plan
Undertake Social Return on Investment study for adaptations service for dissemination
with NHS Borders and other Community Planning Partners.
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7. Resourcing the Strategy
For Local Authorities, the majority of the funding for running the housing service comes from the
Housing Revenue Account (HRA), which is raised from the rental income of letting Council
housing. The HRA can also be used by Local Authorities to borrow money to invest in the stock
and to benefit from prudential borrowing in order to build new council housing. As a result of stock
transfer, the Council no longer has a HRA and is unlikely to benefit from prudential borrowing but
is currently pursuing various options to assist the delivery of additional affordable housing via
Government subsidy to Councils. Set out in the table below are the various resource options that
the Council’s relies on to deliver this strategy.
It should be recognised that all the Council’s partners are going through considerable change in
relation to resources. The RSL sector is particularly important for delivery of this strategy – they
are experiencing considerable challenges in relation to Welfare Reform (impacting on tenants and
the ability for RSLs for recover rent), reductions in grant funding for supply of new housing, and
more difficulty in securing private finance to fund the balance after grant funding.
LHS Outcome Resources
1. The supply of new housingmeets the needs of theScottish Borders communities
Scottish Government Housing Association Grant/AHIP
(2011 Innovation and Investment Fund), RSL Private
Sector Borrowing, 2nd Homes Council Tax, Commuted
Sums, Local Authority Borrowing, PWLB, RTB Receipts,
Income from RSL land disposal, Scottish Water Grant
Funding, Private Developers (NHT)
2.People have better access togood quality, energy efficienthomes
Scottish Government and UK Government Initiative
Funding, Public Utilities, NHS&RSL Funding,
Householders, private sector lenders,
3. Less people becomehomeless and those affectedby homelessness will haveimproved access to settledaccommodation
SBC Core Funded Homeless Services, Partnership
Working, Private Sector Landlords, Private Developers
(NHT), Voluntary Organisations, Individual Households
Violence Against Women,
4. More people with particularneeds and/or requiring supportare able to live independentlyin their own home
SBC SW Core Budgets, Change Fund, NHS, Mental
Health Service Funding, Learning Disability Service
Funding, Voluntary Organisations
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Most importantly, the current economic climate and cuts in public sector resources will have a
considerable impact on individual residents in the Scottish Borders, some of whom are the most
vulnerable in society. Welfare Reform will reduce resources for many households, and the lack of
affordable housing to meet increasing demand will mean that many homeless people will stay in
temporary accommodation for longer periods of time.
8. Consultation
Scottish Borders Local Housing Strategy Partnership group was involved in developing the
consultative draft LHS. The draft LHS was then published for consultation in August, with the three
month consultation period closing on 2nd December 2011. It was issued to Scottish Government,
and invitations to participate in the consultation were issued to 395 statutory agencies, partners
and other consultees. The consultation was issued in the form of a summary consultation
document and online questionnaire, and the full consultative draft document was also made
available.
In 2009, in preparation for the LHS 2012 – 2017, the Council sent out a survey to gather local
views on housing related issues to help ensure the needs of the community are met. The survey
was sent to 2,390 households living in the Scottish Borders who were members of the People’s
Panel. A total of 974 households (41%) responded to the survey.
As a result issues to be addressed in the LHS 2012 – 2017 included:
Providing affordable housing
Addressing Anti Social behaviour
Improving the allocation of housing
Reducing the level of homelessness
Getting empty property back into use
Ensuring an appropriate infrastructure for new homes
Ensuring second homes do not prevent local people from accessing housing
The main priorities were ensuring a good supply of affordable housing through addressing empty
properties, future house building and second homes.
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8.1 Consultation feedback
A total of 53 responses to the formal consultation were received. 43 responses were received via
the online survey and a further ten were received through direct written responses. The responses
were broadly split 60/40 by individuals and organisations, with 23 responses coming from
organisations. These organisations included Scottish Government, the Borders Housing Network,
Eildon Housing Association, Energy Saving Scotland, NHS Borders, three local authorities, four
community councils, three land-owners/housing developers/housebuilders, and a number of
organisations representing equality groups. The majority of respondents stated that the Strategy
was well written, easy to read and understand.
A summary of the consultation findings can be found in the consultation report (Appendix
6).
Further information on the Local Housing Strategy process can be discussed with:
Gerry Begg
Housing Strategy Manager
Scottish Borders Council
Newtown St. Boswells
TD6 0SA
Telephone: 01835 825 026 or email [email protected]
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9. Glossary
AHIP Affordable Housing Investment Programme
AHT Affordable Housing Taskforce
BCIF Borders Construction Industry Forum
BCTG Borders Construction Training Group
BHA Berwickshire Housing Association
BRPCP Borders Regional Procurement Partnership
EHA Eildon Housing Association
GN General Needs housing
GIS Geographic Information System
HA Housing Association
HAG Housing Association Grant
HCS House Condition Survey
HECA Home Energy Conservation Act
HID (E) Housing Investment Division (East)
HMA Housing Market Area
HNS Housing Needs Study
LA Local Authority
LD Learning Difficulties – (housing for people with)
LHF Lothian Housing Forum
LCHO Low Cost Home Ownership
LHS Local Housing Strategy
LHS PG Local Housing Strategy Partnership Group
ME Minority Ethnic
MBHA
OMV
Margaret Blackwood Housing Association
Open Market Value
OMSEP Open Market Shared Equity Pilot
OP Older Persons’ housing
PAN Planning Advice Note
PRS Private Rented Sector
PSHG Private Sector Housing Grant
RPA Resource Planning Assumption
RSL Registered Social Landlord
RTB Right To Buy
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SBC Scottish Borders Council
SBHA Scottish Borders Housing Association
SBHF Scottish Borders Housing Forum
SDFP Strategy & Development Funding Plan
SG Scottish Government
SHCS Scottish House Condition Survey
SHIF Strategic Housing Investment Framework
SHIP Strategic Housing Investment Plan
SHIPPG Strategic Housing Investment Plan Project Group
SHQS Scottish Housing Quality Standard
SP Supporting People
SPP Scottish Planning Policy
TBC To be confirmed
TOPS Transforming Older Peoples Services
WC Wheelchair standard housing
WH Waverley Housing
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You can get this document on tape, in large print, and various other formats by
contacting us at the address below. In addition, contact the address below for
information on language translations, additional copies, or to arrange for an officer to
meet with you to explain any areas of the publication that you would like clarified.
HOUSING STRATEGY TEAM
Council Headquarters | Newtown St. Boswells | MELROSE | TD6 0SA
Tel: 0300 100 1800 | email: [email protected]