March 2006
St Paul’s and St Agnes Housing Plan
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Designed by the Chief Executive’s Department, Corporate Design. Printed on recycled paper by Central Support Services – Print Services. Gra 4511. March 06
Neighbhourhood Renewal Team St Agnes Lodge Thomas Street St Annes Bristol
December 2005
St Paul’s Housing Action Plan
Contents Map
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Vision
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Context . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3 Drivers for Change. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5
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Map
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Boundary of the St Paul’s Unlimited Community Partnership area
Objectives . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6 Community Aspirations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7 Housing Investment in the area before 2001. . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8 Actions taken to improve the area since 2001. . . . . . . . . . . . . . . . . . . . . . . . . . . . 9 Housing description of the area . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 11 Social landlords housing stock profile . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 17 General housing issues for social landlords . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 18 General housing issues for private sector . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 19 Opportunities . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 21 Housing delivery plan. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 22 Action plan . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 26 Funding arrangements for St Paul’s and St Agnes October 2005 . . . . . . . . . . 28 Appendix 1: St Paul’s and St Agnes – Current . . . . . . . . . . . . . . . . . . . . . . . . . . . 30 Appendix 2 : The Decent Homes Standard . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 32 Appendix 3 : Procedure for open market sales for St Paul’s Neighbourhood Partnership Area . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 34 Appendix 4 : Summary of Results of Housing Questionnaire (Oct 2005) . . 36 Appendix 5 : Principles of Local Lettings Policy . . . . . . . . . . . . . . . . . . . . . . . . . . 37 Appendix 6 : Structure to Deliver the Action Plan . . . . . . . . . . . . . . . . . . . . . . . 38
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Vision
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Context
3 St Paul’s is a small district within the Ashley Ward with high levels of deprivation. Nearly 70% of housing is in social ownership. Most of the accommodation in social ownership is a mix of new and pre-war housing. The stock within the private sector is a mixture of houses converted into flats for market rent, Houses in Multiple Occupation and a small percentage of owner occupation. The Housing within this sector particularly owner occupation is in poor state of repair.
To provide good quality affordable housing and choices to meet the needs of local people now and in the future.
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St Agnes is a small district within the Ashley Ward. It consists mainly of twobedroom terraced houses built during the Victorian period that underwent major regeneration as part of the St Agnes/St Werburghs Renewal Area, which commenced in April 1994 and ended in April 2004. The Renewal area was declared following the results of a House Condition Survey that demonstrated that the area had one of the highest levels of housing disrepair within the City. During this period as part of the Group Repair Scheme (GRS) programme, an initiative to improve houses in whole streets; most of the housing disrepair in this area has now been tackled.
Inspite of all the investment in housing undertaken over the last few years particularly in St Paul’s, the resident population still believe that the investment has had little impact and to create a sustainable community, all social landlords need to work together to create the necessary type of housing that meets the aspirations of the local community. In response to resident concerns and to better understand and help develop strategies to address these concerns, a number of studies have been commissioned over the past 4 years to advise on what the problems are and likely solutions including identifying cost implications to address these. The main problems identified were: ●
There is too much social housing in the area particularly in St Paul’s.
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Due to the reputation of the area, this is not an area where the majority of people choose to live in, rather they use it as a stepping stone to gaining accommodation elsewhere. This leads to a transient population.
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Lack of suitable family accommodation. Too many 1 and 2 bedroom flats in the area.
However, there are still some properties, mainly ones where the landlord decided not to participate in a GRS, where there is some disrepair that needs addressing and where properties did not meet the criteria for inclusion in GRS as set by central government. 2
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Almost a third of the resident population have some sort of support needs finding it hard to sustain their tenancies. A significant proportion of social housing in St Paul’s does not meet the Decent Homes standard, particularly the pre-war houses. Disrepair within the private sector particularly owner occupied sector suffering from problems such as dampness and poor insulation.
The combined effect being difficult to build a stable and sustainable community. Many people are now fearful for the future of the area and for their own future as residents here. They see the expansion of Broadmead as a threat as they believe opportunists will buy up properties and sell them off later. This will inflate the housing market making it difficult for local residents to become homeowners. The St Paul’s Unlimited Community Partnership (SPUCP) set up in 2003 aims to improve the quality of housing, the environment and opportunities for local people as part of it’s wider regeneration plans for the area. To drive the Regeneration agenda forward, a number of theme groups have been set up which in the main are resident led with representation from the statutory and voluntary sector. One of the theme groups is the Housing task group which is taking the work on the Plan forward in Partnership with SPUCP.
The group meets regularly to discuss: ●
housing related issues in the area
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help decide on housing Investment priorities for the area.
It has close links with other work streams particularly the Planning sub group and the Housing Management Task Group. The Housing Management Task Group is specifically looking at areas of cross over and to agree protocols to enable a seamless service to local tenants irrespective of who their landlord is. This includes the development of a Local Lettings Policy which aims to give local people some priority for securing a tenancy. This plan is about setting out the plans of the social landlords and reaching an agreement with local people about the way forward so that people are clear about what they can expect in terms of future housing. All residents of St Paul’s and St Agnes were consulted via a door to door questionnaire conducted by local residents on the Plan in August and September 2005, together with every household receiving a summary version of the plan. Overall there is widespread support for the plan. A summary of what local residents said about their housing needs and aspirations is attached as Appendix 4 to the plan. This plan will be reviewed at least once a year for a couple of years after which further decisions will be taken on its future status.
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4
Drivers for Change
The changing social, economic and wider regenerations plans for the area driven through the SPCUP aims to engage and empower the local community while at the same time delivering cost effective services and achieving value for money is driving this plan.
There are a number of studies that support the need for this Plan namely: ●
Local Community aspirations.
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Residents survey Report by Involving Residents In Solutions (IRIS) – January 2000.
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Recommendation from St Paul’s Assessment Phase 1 Report – October 2000.
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Consultation day with residents in April 2002.
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Major consultation event at Malcolm X Centre in May 2003.
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Recommendations from HACAS Chapman Hendy Report – December 2003.
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Street Ambassadors Survey Report – June 2003.
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Recommendations from the Mason Richards Report December 2003.
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Neighbourhood Action Plan Phase 1 – 2004.
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Emerging results of Option Appraisal (council tenants).
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Housing Needs and Aspirations Survey June 2005.
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Housing Corporation requiring a joined up approach.
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Government Policy on Sustainable Policy and meeting Decent Homes Standards.
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Objectives
The key objectives of this Plan are to: ●
Provide a more sustainable tenure mix and recognise and address local residents housing aspirations, needs and desires to stay in St Paul’s area and achieve a mixed balanced community.
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Provide a wide range of property types that meet the government’s decent homes standard.
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Provide more affordable family accommodation to deliver a better mix and balance of households within the community ensuring long-term commitment to a sustainable community.
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discounted sales, and prioritising stock sale to local people ●
Encourage the redevelopment of redundant buildings and derelict sites to effectively recycle scare land resources.
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Creating a safe and attractive urban environment, which encourages new housing investment that meets local market aspirations.
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Adopt a coordinated approach, by all the social landlords, to housing management.
Create opportunities to move onto the housing ladder through schemes such as shared ownership,
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Community Aspirations
To realise the aspirations of the local community, a holistic approach to regenerating St Paul’s is needed and all agencies, Statutory and Voluntary, need to work in a coherent and collective way rather than work individually to look at issues facing their own organisation. The aspirations of the community have been expressed through meetings and surveys undertaken as part of the focus on St Paul’s and St Agnes under the Government’s Neighbourhood Renewal Programme.
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Target owners to help tackle disrepair in the private rented and owner occupied sectors.
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Develop a Local Lettings Policy that enables movement of local residents within the social rented accommodation and gives some priority to local people who wish to live in the area.
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Bring derelict land and property back into use in a way that is consistent with local aspirations – providing a range of options for business and community use, landscaping and open amenity space and housing.
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Enable tenants to participate in the management and investment decisions relating to their homes.
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Provide assistance and guidance to older and disabled residents to remain in and maintain their homes and provide information on what other options exist for them.
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Ensure that older and disabled people live in homes that are fully accessible to them.
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Promote and monitor initiatives that recruit and encourage the use of local labour in new housing developments and cyclical maintenance programmes.
These include: ●
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That all agencies work together to improve the quality of housing in a consistent manner and recognise the impact of their actions on the wider local community and environment. More effective management by all social landlords to deal quickly and consistently with anti-social behaviour. To restrict the number of one and two bedroom developments in the area.
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To increase the number of houses for families to help create a stable and sustainable community.
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Provide opportunities for residents’ to have a stake in the housing market through initiatives to increase home ownership and equity share.
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Housing Investment in the area before 2001
Since 1990, there has been significant financial investment by the council and the Housing Associations to try and address specific social and investment needs. The level of financial investment and officer time involved clearly demonstrates that’s St Paul’s and St Agnes as area’s have not been ignored through the years – just that effects of the investment have not necessarily achieved the desired outcomes. The concerns expressed by residents in the early 1990,s continued in spite of the investment in housing refurbishment for a number of reasons.
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These include: ●
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Social Landlords working in isolation and not fully assessing the impact of their investment on the wider community.
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There was no one organisation taking a long-term view of the regeneration of the areas in its social, economic and environmental context. There was insufficient involvement of the resident population in decisions about this investment and failure to fully understand their needs and aspirations.
Inappropriate housing development that exacerbates the proportion of high-support-need, transient population living in the area. Regeneration activity has been largely organisation led and linked to the requirements of funders rather then the needs and requirements of residents. When improvements to housing stock has been undertaken, it has maintained the status quo and not restructured the housing market to meet local aspirations. Landlords have taken an approach which appears to prioritise the management of an investment (bricks and mortar) rather then working with people to manage their homes. Issues not being tackled included:
Since 2001, there has been significant investment by all stakeholders in St Paul’s to drive the agenda of regenerating St Paul’s that meets the aspirations of the local community. As part of this process and the ongoing commitment to work with the community all Partner organisations have supported the development of St Paul’s Unlimited Community Partnership, and continue to support this through a number of thematic groups that is now driving the regeneration programme. There is now growing confidence within the local community to get engaged in regeneration activities. This confidence inspires partner organisations and reassures them that the investment they make or are planning to make will be of benefit to the local community. Recent developments include: ●
St Paul’s Sports Academy opened in April 2003.
2 Fear of crime and actual crime;
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3 Too many residents with multiple support needs living in the area;
New St Paul’s Learning and Family Centre opened in February 2004
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Refurbishment of St Paul’s Church completed in December 2004.
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Funding secured from English Heritage and Lottery funding to improve Stokes Croft and two public squares (Portland and Brunswick).
5 Differential levels of service from social landlord to similar issues.
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Actions taken to improve the area since 2001
1 Too much rented accommodation for single people;
4 Inability to tackle the use of properties by people dealing in drugs and prostitution and
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10 units of accommodation in Cave Court, were sold on a leasehold basis by Knightstone Housing Association (KHA).
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Major investment at Cave Court to improve security; reduce number of bed-sit’s and improved heating and communal facilities.
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Major repairs undertaken on properties in Davey Street, City Road, William Street and Denbigh Street by KHA.
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Remodelling of two properties, each comprising three flats, into four bedroom family houses in City Road.
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Acquisition of Black and White café’ using compulsory purchase powers to enable partial redevelopment of a terrace of derelict houses along Grosvenor Road.
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Introduction of CCTV in certain estates and parts of the area.
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Community Links scheme (Street Wardens) operated from April 2002 to March 2005.
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A sub group of the Partnership consisting of local planner, local residents and other officers of the city council meets fortnightly to consider and comment on all planning applications received for the area.
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A series of Police actions to tackle drug dealing in the area including obtaining a Dispersal Order for 6 months beginning from Dec 2004 to June 2005, successfully closing several crack houses in the area.
Remodelling of Winkworth estate completed in May 2004.
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Opening up basement area to add accommodation to 2 bedroom maisonettes.
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Development of the first clear protocol to close Crack Houses in Bristol. To date 12 have been closed in the area.
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Piloting the community gardening initiative that helps residents maintain their gardens.
Other projects underway include: ●
St Paul’s Youth Sports Project.
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Youth Arts Project.
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Neighbourhood Arts Project
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Bilingual Community Advocates Project
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Young Parents Project
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Children and Family Support Project
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SPACE Project – led by and for St Paul’s residents for victims of or people affected by crime.
Housing description of the area
Housing in St Paul’s was mainly built between 1840 and 1900 before the introduction of municipal control over the design and construction of domestic services and the layout of highways. A rapid rate of development (probably towards the end of the 19th century) produced a uniform pattern of terraced housing arranged in long straight streets on a grid iron pattern.
Continuation of the St Annes/ St Werburghs Renewal area, 413 houses were improved under group repair schemes at a cost of £10.3m over 10 years.
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Post-war the stock was mostly in private ownership and in poor condition. A number of different grants were made available, variously described as improvement grants and repair grants, and there had been some renovation of the housing stock on a response basis.
facility. During the early 1990’s the estate under went major refurbishment as part of the Estate Action programme. Winkworth Place originally consisted of 5 blocks of flats consisting of 117 units of accommodation, 13 2 bedroom houses and some disused enterprise workshops (for light industrial use). After major improvements completed in 2003, the estate now consists of 2 block of flats consisting of 56 units (a mixture of 1 and 2 bedroom units) 42 houses a mixture of
In the 1940’s and 50’s, there was a largescale housing clearance programme in St Paul’s. Large numbers of terraced houses, shops and work places were demolished displacing many small businesses. Those were replaced with mainly residential accommodation built by the council. The St Paul’s Garden estate and Winkworth Place estates were built during the late 1960’s/early 1970. These estates were built on land previously occupied by terraced housing built during early 1900 and cleared as part of slum clearance. The St Paul’s Garden estate consists of 12 blocks of flats incorporating two communal laundries and a community
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2,3, 4 and 5 bedrooms owned by the city council and United Housing association and a well designed communal play area with a community room and communal laundry facility. In the late 1970’s two Housing Action Areas supplemented this response policy. The Housing Corporation encouraged Knightstone Housing Association (KHA)
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and Bristol Churches Housing Association (BCHA) through the availability of Housing Corporation Grant (HAG), to set about a programme of acquiring stock and renovating it to an agreed standard to give the properties a 15–20 year life to the north of City Road and Knighstone Housing Association (KHA) to the south of City Road.
When St Agnes/St Werburghs Renewal Area was declared in April 1994, one of the criteria for declaring renewal areas was that there should be no more than 30% of social housing in the area boundary. This meant St Paul’s could not be considered and why St Agnes and St Werburghs were prioritised.
Between 1978 and 1980 the two Housing Associations (KHA and BCHA) acquired over 100 units of housing and improved them. These involved conversion to bedsits, and self contained flats sharing common entrance doors. This changed the ownership and management of the area from one of largely private rented with a small amount of owner occupation to ownership, by BCC, KHA and BCHA.
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Current housing and demographic profile The 2001 Census tables show that currently there are 1218 householders in the St Paul’s Neighbourhood Area (it is important to note that this information is not wholly accurate due to undercounting in St Paul’s during the census).
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It has the lowest percentage of detached and semi detached houses compared to national and city average.
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It has well below the national and city average, less then a third, of people who own their home outright.
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It has the lowest proportion of people who own their home with a mortgage, less than half, compared to national and city average.
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It has well above national and city average of accommodation owned by the council or a housing association, almost double.
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It has the lowest percentage of single pensioner households living in the area.
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It has the lowest percentage of childless couples and couples with children under 15 year olds living in the area compared to national and city average.
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It has the highest percentage, almost double, of lone parent households with dependent children living in the area.
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The percentage of households with dependent children where no adult is in employment is almost double the national and city average.
However, the key trends from the census for the area highlight: ●
Above city and national average of the number of 25 to 44 year olds living in the area.
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Above national but not city average of 16 to 24 year olds living in the area.
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In 1986 United Housing Association was formed specifically to meet the housing needs of people from black and minority ethnic communities.
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Following slum clearance, the M32 was built and completed in 1975, which cut through St Paul’s and Easton. The perception is that this has divided Easton from St Paul’s.
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The area was also popular with new arrivals from the Caribbean and Asian sub-continent who lived in these houses as it provided cheaper properties to purchase and rent within close proximity to the City Centre. However, these homes were in poor condition and in need of renovation.
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Well below the national and city average of people over 45 year plus and in particular 65 plus living in the area. It is one of the most “mixed communities” in terms of ethnic background, culture and religion compared to national and city averages. It has the highest percentage of people who have never worked and 16 to 74 year olds who are unemployed compared to national and city average.
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It has a high percentage of full-time students living in the area compared to national and city average.
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It has the highest, almost double, percentage of purpose built flats and converted houses compared to national and city average.
The results of the census data must be treated with some caution – the results are not entirely accurate due to the difficulties the enumerators experienced in data gathering. For further details refer to Appendix 6.
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Key findings of Housing needs and aspirations survey June 2005 ●
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390 households currently living in St Paul’s require new accommodation over the next three years of which 227 are seeking social rented houses and 43 shared ownership houses; 38% require a two bedroom house, 31% a three bedroom house and 15% require four plus bedroom house; 51% have incomes below £10,000 with 14% having incomes more than £25,000 per annum 70% of households live in accommodation suitable for their needs. Satisfaction varies from 95.7% in the owner occupied sector to 57.1% in the housing association properties; 35% of BME respondents considered their current homes to be inadequate for their needs, with too small being cited as the principal reason 69.8% of respondents wish to stay living in St Paul’s if their main concerns about tackling drug dealing and misuse in the area in the neighbourhood are addressed; currently the area
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The St Paul’s Area Housing Market
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100 newly forming households in St Paul’s over next three years of which 42 are seeking one/two bedroom social rented flats and 47 are seeking one /two bedroom private rented flats 69.5% are aged 20–29 years; 32% have incomes below £10,000 with none having incomes more than £25,000 per annum (£4800 lower than national average) The council and Housing Association properties account for 60.2% of all houses in St Paul’s, significantly higher than the national average of 18% The average price of flats and terraced houses are £98,000 and £116,250 respectively and affordability is a major issue, 50 % cannot afford private rental and home ownership is beyond the reach of 95% of all concealed households The retired population will increase by 37.3% by 2011 in Ashley Ward. There is an inextricable link between ageing and disability. 6% of all people with a disability are over 75 and over 30% have a walking difficulty.
The evaluation of the market in St Paul’s is based on a comprehensive estate agent search and in-depth discussions with agents of the housing market in the area. House prices in the area start from £95,000 for a 1-Bed flat rising to £100,000 for a two bed. Terraced properties start from £115,000 for a two bed and rise to £117,475 for a three bed. Semi-detached properties of which there are very few in the area start from £135,000 for a two bed and rise to £150,000 for a three bed.
Entry Sales Levels in St Paul’s – April 2005 Property Type St Paul’s 1-Bed Flat
£95,000
2-Bed Flat
£100,000*
2-Bed Terraced
£115,000*
3-Bed Terraced
£117,475
2-Bed Semi
£135,000*
3-Bed Semi
£150,000*
To purchase a 1-bed flat in St Paul’s requires an income of around £30,100 rising to around £31,700 for a 2-bed flat. 2-bed terraced properties require an income of around £36,400. To purchase a 2-bed semi-detached properties require an income of£42,800. 3-bed semidetached properties require an income of around £47,500.
Flats / maisonettes houses are the main entry level for first time buyers in view of their lower cost and high stock level in St Paul’s. 95% have inadequate income to be able to buy and 50% cannot afford to rent privately.
Private Sector Rent Levels Average and Entry Rent Levels in St Paul’s – April 2005 Property Type
Average
Entry
1-Bed Flat
£441
£285
2-Bed Flat
£532
£495
2-Bed Terraced
£575
£550
3-Bed Terraced
£700
£700
Entry to Private Renting Private renting is the overall preferred tenure for concealed households. • 28.4% could afford to pay between £261 and £430 a month, which would allow them entry to the cheapest 1 bed flats. • 34.9% could afford to pay between £351 and £650 a month, which would allow entry to 2-bed, flats across the area. The cheapest rental prices of the smallest units were assessed in order to calculate the rental income threshold levels. These are based on rent at 25% of gross income (equivalent to 30% of net income). An income of £13,700 is required to access 1-bed flats in St Paul’s rising to £23,800 for 2-bed flats. 2-bed terraced properties require an income of around £26,400. There was no data available for semi-detached properties.
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Broad conclusions that can be drawn from this are:
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There is an over supply of social rented housing in the area and that 64% of all households (in all tenures) in the area live in flats, 30% live in terraced houses, 4.5% live in semi detached houses and 1.5% live in detached houses.
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Social landlords housing stock profile
Of the 3426 homes in the St Paul’s/ St Agnes area, the 4 main social landlords own 982 dwellings.
To help create a more sustainable community and meet the housing needs and aspirations of local people, particularly to climb onto the property ladder, new developments should offer a range of housing options including shared ownership to enable this.
Landlord
There is a clear need to regulate the private rented sector particularly houses in multiple occupation (HMO’s) to ensure safety measures are in place and these are checked annually. The local authority will need to proactively monitor and manage this situation.
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Total no. of homes owned
Social rented housing accounts for up to 29% of the total housing in the Area. The table below illustrates ownership by each social landlord.
Property types
% Of total stock owned by the landlord
% Of total stock in social ownership
Bristol City Council
447
Bung.1 bed 1 2 bed houses 3 bed houses 4 bed houses 1 bed flats 2 bed flats 3 bed flats Bed sits
1 81 23 21 76 175 54 16
0 18 5 5 17 39 12 4
46
Knightstone Housing Association
220
2 bed houses 3 bed houses 4 bed houses 1 bed flats 2 bed flats 3 bed flats
34 18 8 95 52 13
15 8 4 43 24 6
22
Bristol Churches Housing Association
228
2 bed houses 3 bed houses 4 bed houses 5 bed houses 1 bed flats 2 bed flats 3 bed flats Bed sits
4 2 4 2 156 37 15 8
2 1 2 1 68 16 6 4
23
United Housing Association
87
2 bed houses 3 bed houses 4 bed houses 5 bed houses 6 bed houses 1 bed flats 2 bed flats
2 21 3 9 1 26 25
2 24 3 10 1 30 30
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General housing issues for social landlords
Social ●
High levels of resident population with multiple support needs.
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High proportion of noise nuisance complaints.
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High level of drug dealing in the area.
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Short supply of suitable family accommodation.
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Problem of prostitution in some parts of the area.
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Health and Safety concerns for staff and residents due to high volumes of hypodermic needles found in vacant flats, communal area and local parks.
Investment ●
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Large houses converted into flats, which cause complaint due to different lifestyle of flat dwellers.
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Negative perception of the area
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Increasing racial tensions between the newly arrived Somali and existing Afro Caribbean community.
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Illegal dumping of domestic goods on the streets mainly by people from outside the area.
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Poor maintenance of gardens contributing to a poor image of the area by outsiders.
High percentage of stock in St Paul’s which does not meet Decent Homes, which will require significant financial investment. (HACAS estimated about £40 million (exclusive of VAT) required to be spent on the properties owned by the four landlords in St Paul’s over the next 30 years). Poor sound insulation in accommodation converted into flats, increasing the number of noise nuisance complaints. Houses built in the late 19th and early 20th century of brick construction provide inadequate protection against damp because of poor quality sun dried bricks used.
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Some remodelling of estates is required to improve natural surveillance and help deal with fear of crime.
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High premiums being paid to contractors to work in the area, as they are concerned for the safety of their staff. Some contractors have had to withdraw staff from site due to intimidation.
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Penetration of water from the roof, particularly in the Victorian properties because of its construction type, where discharge gulleys are too small for storm conditions.
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General housing issues for private sector
Housing for Sale and Owner Occupation There is a market for privately owned properties within St Paul’s but mainly for investment. Limited number of homes for sale, particularly larger houses in St Paul’s come visibly onto the open market. Estate agents tend to offer larger properties, capable of conversion to flats, straight to known investment buyers, rather than place them on the open market.
two-bedroom maisonette or small terraced house, to £100,000–125,000 for a one bedroom flat (previously: £55–60,000 in March 2002), and £180,000 auction guide price for a twobedroom town house with basement in the northern end of Grosvenor Road. A two-bed room flat in the Redrow scheme 51o2, facing Barton roundabout is currently on the market at £195,000.
Local agents report a significant increase in property prices over the last two years, which appears to be continuing in line with national trends.
In 2002 Signpost Homes developed 20 flats for sale in Wilson Street, just off Portland Square. We understand that the flats for sale were all reserved on the first day of availability and that the majority went to investors. The “penthouse” flat at the development is understood to have sold for £185,000.
However, there is a limited level of interest shown by families (there are a number of contributing factors for this eg performance of local schools, actual crime and fear of crime, level of antisocial behaviour particularly drug dealing etc. A number of initiatives are underway to address these concerns which is now gradually changing peoples perception of the area) in most areas of St Paul’s, the majority of owner-occupier purchasers appear to be younger professionals because it’s one of the areas that is affordable to first time buyers and is a central city location. However, once they have a family, they tend to leave the area before they need to find schools for their children. For example, prices in November 2004 ranged from £140–160,000 for a
Ashley Road has proved popular for sales to families and there has been some interest in City Road. Elsewhere interest is low but agents suggest this could be higher if more properties were available. Estate agents identified specific blocks, and parts of blocks, that tend to be unpopular for purchasers. These tend to be properties in close proximity to areas where drug dealing is more visible and the immediate surrounding area. The owner occupied markets are extremely location sensitive. For example, there is a distinct difference between the north end and the south end of City Road, the south being unpopular due to proximity to Grosvenor Road and drugs activity. The Knightstone Housing Association scheme to redevelop part of the street
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(demolishing hot spot areas of drugs activities) has had a positive impact on the Road. Also, St Paul’s may be one of the few areas in the city where the housing market for ownership is within the reach of first time buyers.
Market Renting The area is increasingly popular with young professionals. Rents in November 2004 for a 1-bedroom flat in a converted house in St Paul’s are generally £400–450 per calendar month compared to £500–550 for a similar property in Montpelier. Signpost Homes let 30 flats for market rent in their new scheme at Wilson Street in 2003; currently they have a one bed at £500 per calendar month and a two bed flat at £750 per calendar month. Market rents for houses range from £750 for a three-bedroom maisonette to £950 for a four-bedroom terrace. For Houses in Multiple Occupation (HMO) rents are currently in the region of £200–300 per person per calendar month in St Paul’s compared to up to £350 in Montpelier.
Development in Ashley Road, nearing completion, is targeted at young professionals working close to the City Centre.
Broad conclusions that can be drawn from this are: Private market housing developers have commented that the market would already be in St Paul’s “if it was anywhere else”. Reputation, rather than the built environment, is seen as the key barrier to strengthening the housing for sale and market rent markets. Private investors are seeking comprehensive proposals that deliver long-term improvements in drugs and crime activities. Local estate agents consider that larger numbers of families will not be attracted to buy with confidence in the area until these issues impacting on the area’s reputation have been addressed. An “Early win” may be achieved through the integration of exisiting void basement flats with ground floor family acccomdation on City Road.
A local estate agent confirms that the popularity of St Agnes has increased during the past few years; this can be attributed mainly to the success of the St Agnes/St Werburghs Renewal Area that ended in April 2004.
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13 The area borders the City Centre, which over the next seven years will see the expansion of Broadmead Shopping Centre. This provides the opportunity for local residents to gain skills to seek employment in the building and retail sectors. This will enable them to secure jobs and improve their economic status thereby giving them the opportunity to own a home in the area.
Opportunities This could: ●
Bring a joined up approach to tackling specific issues eg anti-social behaviour.
●
Enable land banking to control development and manage speculative developers.
●
Enable Stock rationalisation to be undertaken.
●
Unlock financial resources from Housing Corporation to support developments principally for deconversions on City Road and replacement of derelict housing on Grosvenor Road.
●
Use Section 106 agreements to deliver affordable housing or to generate commuted sums to rebalance the housing choice within the area.
On the Northern edge of St Paul’s, there are two Georgian squares surrounded by Victorian buildings that are of significant architectural importance. Through funding secured from national Township Heritage Fund, revitalisation works to the area have commenced which will bring back many derelict buildings into habitable state and restore the area to it’s former glory – a well maintained square with beautiful buildings surrounding it. There is an, in principle, commitment by Government Departments, South West Regional Development Agency, Housing Corporation, the city council and Registered Social Landlords to improve facilities and services in the area.
Accommodation available for private renting In St Agnes is mainly of a high standard with rent levels averaging £600 per month for a two-bedroom house. Large properties on City Road are being converted into self-contained flats for sale to first time buyers. Some may then rent them out for long-term investments.
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14
Housing delivery plan
Improve overall condition of social landlord homes ●
●
●
The surveys of the flats and houses in the modern housing estates in St Paul’s have found they predominantly meet the Government’s decent homes standards. All of the four social landlords will bring all their dwellings up to the Government’s decent homes standards by 2010. Many of the older converted properties only have partial central heating, poor kitchens, poor sound insulation and require maintenance to the external envelope. All of the four social landlords recognise that there work will need to be self financing and progressed over the next six years (See funding table referred to in Section 16).
Increase supply of social rented family housing ●
8 four bedroom family social rented homes to be created from existing flatted accommodation in City Road during 2005/06.
●
2 two bedroom family maisonettes created from existing flatted accommodation during 2005/06.
●
6 new three bedroom family social rented homes in Grosvenor Road by March 2006.
●
●
KHA to make further bids to Housing Corporation for new build shared ownership flats for local first time buyers in Brigstocke Road by September 2005 and investigate the possibility of a long term bid on former commercial site on Brunswick Road. Work with private developers to maximise the provision of affordable rented family houses secured through the planning system as affordable housing contributions.
●
Increase opportunities for affordable home ownership for families and single people
●
1 four bedroom house available for sale at 50% of sale price to local residents created from the former Nursery in Brighton Street to local residents during 2006/07.
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●
Create at least 3 family homes available at discounted sales price each year, over next four years, by using private developers commuted sums to acquire suitable empty properties.
●
KHA to make further bids to use Developer funds for up to twelve one and two bedroom low cost ownership schemes in St Paul’s during 2006/07.
●
KHA to explore the possibility of acquiring Newfoundland House from English Partnership and the city council to create 20 mutual home ownership flats for single people during 2005/06.
●
●
●
KHA have identified 19 properties from their stock in St Paul’s in need of significant refurbishment that could become available for sale at open market prices and could be offered to local people first. Housing Associations to make further bids to the Housing Corporation for low cost ownership schemes in Ashley Road and Lower Ashley Road in 2005. Work with private developers to maximise the provision of affordable shared ownership (part rent part buy) family houses secured through planning system as affordable housing contributions.
Co-ordinated approach to housing management Option Appraisal This is a government duty on all councils. Councils must decide, with their tenants, who should own and manage their homes in the future. The option chosen must mean there is enough money to bring all homes up to at least the government’s Decent Homes Standard, plus provide services that meets tenants expectations. Bristol has been consulting with tenants for the last year on options for their homes. The options are: 1 The city council continues to manage and own homes, 2 Ownership by the council but managed by an Arms Length Management Organisation (ALMO), 3 Large Scale Voluntary Transfer to a housing association or, 4 Ownership by the council with a Private Finance Initiative (PFI). After drawing together lots of evidence on what tenants want, what the options can offer, how much money each one can provide and, importantly, what are tenants’ views on the options, the council has recommended that homes remain in the council’s management and ownership. BUT this does not mean “no change”. Making the books balance and making sure all homes meet the Decent Homes standard will be a challenge and will mean lots of changes to the way things are done. It has implications for the St Paul’s Housing Plan because it means that any improvements to homes will have to come from the council existing funds. However, it does mean the council is keen to look at new ways of managing homes in the area.
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Local Options for Managing Homes The Option Appraisal consultation with council tenants in St Paul’s has shown that there is more interest in a different approach to managing homes in the area, and interest in a local solution for St Paul’s. There is a range of different ways in which homes could be managed in the future and residents could have more influence over decisions about their homes. The range is from homes staying owned and managed by the same social landlords (the council and housing associations) but with a common approach to standards, through to all homes being owned and managed by the same social landlord. Different levels of tenants’ influence or control are possible within this range of options. It is up to local tenants how much change is made, and how much influence tenants have.
Adopting Common housing policies and procedures The first change that should happen is to make sure all tenants receive the same level of service, whoever their landlord is. Evidence suggests that each social landlord develops and has it’s own set of Policy and Procedures on housing management resulting in each one dealing with the same situation differently and to different timeframe. The community want consistency of service irrespective of who their landlord is. There is a task group which consists of representatives of locally based RSL’s, city council and tenants looking at standardising and developing protocols across all social landlords to achieve a consistent approach based on best practise.
Management of housing association homes For several years local residents have complained of differential service ranging from good to poor depending on who their social landlord is. Also not all social landlords have a local presence. There is an aspiration that a single or fewer landlords should manage all socially rented properties in the area with a local presence. This will improve efficiency, quality of service and drive down management costs particularly for those RSL’s that have few properties in the area and do not have a local presence. ●
Carry out local consultation to explore all local options and find out the level of interest in models involving resident influence and control.
●
Agree common protocols of housing management across landlords
●
Investigate options for rationalisation of management of housing association homes to improve efficiency and effectiveness.
Options for housing management There are a number of options on the future delivery of housing management service in area ranging from status quo to a community-based housing association or a housing co-operative. To explore all options a separate piece of work will have to be undertaken as part of the Action Plan to guide future decisions.
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Ensure that current and future housing needs and aspirations are met in the area ●
Work with statutory agencies, housing providers and supporting people contractors to ensure that opportunities to disperse concentrations of people with high support needs are seized.
●
Encourage appropriate bids to Housing Corporation and other funding agencies to address housing and care needs identified in the Housing Needs and Aspirations Survey in September 2005.
●
By developing a Supplementary Planning Document (previously referred to Supplementary Planning Guidance), which has a housing section, and the overall Neighbourhood Plan will also address housing issues.
Develop new mixed tenure housing schemes to address the problems of redundant buildings and brownfield sites ●
Where opportunities arise for new housing development, work with landowners/ developers to bring forward schemes that meet the housing aspirations and needs of the community.
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15 Action plan Objectives
Action Required
Lead Organisation
Resources
Timescales
Establish and respond to local residents’ housing aspirations.
Undertake a Housing Needs Survey to assess current and future housing needs of Black Elders and draw up an Action Plan to meet these.
BCC – Strategic Services
Fully funded by BCC, BCHA and KHA
Final report by June 2005
Create opportunities for local residents who aspire to become owner-occupiers including – shared ownership schemes.
BCC – Enabling Manager in consultation with RSLs and St Paul’s Partnership
BCC Enabling Manager, Housing Corporation, commuted sums and RCGF
Bids to be made to Housing Corporation by July 2005
Implement the outcome from the consultation on the City’s Stock Option appraisal (BCC).
By July 2005
Set up a sub-group of all social landlords including resident representatives to develop joint practices based on best practise in the following areas:
By December 2005 – December 2006
1 Local lettings policy across all social landlords. 2 Common Investment Strategy including options for stock rationalisation. 3 Common approaches to Housing Management issues. 4 Local Sale Protocol 5 Explore options for sheltered schemes and Black Edos. Provide wide range of property types, more family accommodation that meets government’s decent homes standard.
Social landlords to ensure 100% of their housing stock meets decent homes standard.
Explore the potential of Community Land Trusts as a vehicle for maintaining affordability in low-cost “private” developments.
BCC Enabling Team Manager in consultation with RSL’s and St Paul’s Partnership
By January 2006
Provide a more sustainable tenure mix.
Restrict the development of anymore supported housing and short stay accommodation.
St Paul’s Planning Group
Ongoing
All new affordable homes to be built to life time homes eco homes gold standards.
Enabling Team Manager
By 2010
Identified selected RSL owned sites for redevelopment to current standards for rent and shared ownership Housing Corporation funding.
Bids to Housing Corporation
September 2005
In consultation with the local community each social landlord to identify properties that can be reconverted to provide large single-family accommodation.
Bids to Housing Corporation by RSL’s, BCC to identify potential properties
September 2005
Develop a protocol with Social Services Occupational Therapists Service to deal with requests for property adaptations and agree a prioritisation scheme. Support private sector by effective management of discretionary grants and regulation of Umos. To make St Paul’s a visually attractive place to live, work and visit.
Housing Corporation regulatory authority
Ongoing from July 2005
Ongoing
Identify owners of all derelict sites and establish what their plans are in order that action by BCC and Partners can be agreed including compulsory purchase if necessary
Enabling Team Manager
Identify all long-term void properties in the area and develop an Action Plan to bring them into use.
BCC Empty Property Officer
By September 2005
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St Paul’s Housing Action Plan
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Funding arrangements for St Paul’s and St Agnes October 2005
RSL
Description
2003/04
KHA
Deconversions: City Rd
KHA
Deconversions: City Rd
KHA
New build rent: Grosvenor Rd
BCHA
Deconversions: City Rd
BCHA
Deconversions: City Rd S/O
KHA
New build homebuy: Brigstocke Rd
£400,000
£400,000
£800,000
KHA
New build homebuy: Backfields
£240,000
£240,000
£480,000
KHA
75% equity sale: Backfields
£568,750
£568,750
£1,137,500
KHA/UHA
New build rent: Backfields
£450,000
£450,000
£900,000
BCHA
New build homebuy: 46–70 Ashley Rd
£526,000
£526,000
£1,052,000
ACT
New build homebuy: 17–31 Lower Ashley Rd
£449,000
£449,000
£898,000
ACT/UHA
New build rent: 17–31 Lower Ashley Rd
£110,000
£110,000
£220,000
KHA
Strategic site: to be indentified
BCC
15 Brighton St
BCC
2006/07
2007/08
2008/9
2009/10
TOTALS £408,529
£320,000
£320,000
£795,009
£795,009 £642,966
£642,966
£72,000
£408,529 13 Grosvenor Rd
2005/06
£408,529
HC TOTAL BCC
2004/05
£867,000
£72,000
£962,966
£2,743,750
£2,743,750
£1,500,000
£1,500,000
£3,000,000
£1,500,000
£1,500,000
£10,726,004
£120,000
£120,000 £200,000
£200,000
Scheme A (LCHO)
£60,000
£60,000
BCC
Scheme B (LCHO)
£60,000
£60,000
BCC
Major repairs
£200,000
£200,000
£200,000
£200,000
£200,000
£200,000
£200,000
£1,400,000
BCHA
Major repairs
£250,000
£250,000
£250,000
£250,000
£150,000
£150,000
£150,000
£1,450,000
KHA
Major repairs
£1,001,702
£315,252
£255,425
£200,000
£100,000
£100,000
£100,000
£2,072,379
UHA
Major repairs
£50,000
£50,000
£50,000
£50,000
£50,000
£50,000
£50,000
£350,000
KHA
S/O receipts/RCGF
£322,230
£131,920
£250,000
£487,966
£717,616
BCHA
S/O receipts/RCGF
£200,000
£200,000
£200,000
£100,000
£100,000
£800,000
£1,909,732
BCC and RSL TOTAL
£1,823,932
£1,067,172
£1,205425
£1,707,966
£1,417,616
£600,000
£600,000
£8,080,000
GRAND TOTAL
£2,232,461
£1,934,181
£2,168,391
£4,451,716
£4,161,366
£2,100,000
£2,100,000
£19,148,115
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Appendix 1: St Paul’s and St Agnes – Current
Legend Housing Association Bristol City Council BCC/Leasehold Bristol Churches HA Knightstone HA Orbit HA Sovereign HA United HA Housing in multiple occupancy
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18 Summary A decent home is one which is wind and weather tight, warm and has modern facilities. It reflects what social landlords spend their money on.
Appendix 2 : The Decent Homes Standard 3 It has reasonably modern facilities and services. Dwellings which fail to meet this criterion are those which lack three or more of the following: ●
a reasonably modern kitchen (20 years old or less)
●
a kitchen with adequate space and layout;
●
A decent home meets the following four criteria:
a reasonably modern bathroom (30 years old or less);
●
an appropriately located bathroom and WC
1 It meets the current statutory minimum standard for housing.
●
adequate insulation against external noise (where external noise is a problem);
●
adequate size and layout of common areas for blocks of flats.
To set a national target a common definition of decent is needed so all social landlords can work towards the same goal.
Dwellings below this standard are those defined as unfit under section 604 of the Housing Act 1985 (as amended by the 1989 Local Government and Hosing Act).
2 It is in a reasonable state of repair. Dwellings which fail to meet this criterion are those where either: ●
One or more of the key building components are old and, because of their condition, need replacing or major repair; or,
●
two or more of the other building components are old and, because of their condition, need replacing or major repair.
4 It provides a reasonable degree of thermal comfort.
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St Paul’s Housing Action Plan
General principles of application In applying the decent home standard, social landlords should bear in mind the following (covered in more detail in Section 4): ●
it is a minimum standard that all social housing should meet by 2010 and which can be measured consistently across all social housing stock;
●
it is a standard that triggers action, not one to which work is necessarily carried out;
●
landlords are not expected to make a home decent if this is against a tenants wishes as work can be undertaken when the dwelling is next empty; and
●
landlords are not expected to carry out only that work which contributes to making homes decent. For example: building components may fail early these should be dealt with, typically on a responsive basis;
●
environmental and security works, which are not included in the decent home standard, may be considered high priority in some areas.
This criterion requires dwellings to have both effective insulation and efficient heating.
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19
Appendix 3 : Procedure for open market sales for St Paul’s Neighbourhood Partnership Area
A Disposal strategy Period It is proposed that all properties to be disposed of in the St Paul’s Neighbourhood Partnership Area (St Paul’s and St Agnes) will be offered by BCC and all other registered social landlords (RSLs), exclusively for a three month period (which begins from the date the property is first advertised) to local residents, people with families living in the area or those working in the area. BCC properties will be disposed of via an RSL. After the three month period where sales have not been agreed and finance formally arranged they will be sold on the open market.
B Affordable home ownership opportunities 1 Former BCC or RSL properties will be used to generate affordable home ownership opportunities: ●
Shared ownership 25–50% part buy; 75%–50% part rent
●
Home equity 50% part buy; 50% retained equity – no rent
●
Open market homebuy: 75% part buy; 25% RSL loan
●
Self build shared ownership opportunities.
2 Former RSL properties will be used to generate home ownership opportunities: ●
Private market sales (100%) – subject to covenant that houses will not be subdivided into flats, KHA have appointed Besley Hill to administer the sale of these properties and help arrange finance.
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C Priority order for consideration of affordable home ownership 1 Residents, RSLs of St Paul’s NPA on the Bristol Housing Register. 2 Other city residents, existing council and RSL tenants on the Bristol Housing Register having close family living in in St Paul’s NPA. 3 Other city residents, existing council and RSL tenants on the Bristol Housing Register having a place of work in St Paul’s NPA.
D Other criteria for determining priorities 1 Current housing need.
E Informing local residents of affordable home ownership opportunities 1 Information stand at St Paul’s Housing Aspiration Day (23 July 2005). 2 SPU website, St Paul’s Community radio, RSL local adverts, posters targeted at St Paul’s residents on local notice boards. 3 Leaflet drop to all residents once an initial KHA programme has been established. 4 Attendance at local/ voluntary group meetings. 5 Local voluntary organisations, Library, CAB, Ashley Housing Office. 6 Local estate/ lettings agents based in St Paul’s, Montpelier and Easton.
2 Size of family (appropriate to property size. 3 Ability to afford Market/Affordable Home Ownership 4 Personal financial circumstances.
3 New build schemes: ●
Shared ownership 25–50% part buy; 75%–50% part rent
●
New build homebuy.
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20
Appendix 4 : Summary of Results of Housing
What people want in terms of Housing 1 Improving services for owner occupiers – over 75% 2 Having a lettings policy which gives priority to people living in St Pauls and St Agnes – over 73% 3 Increasing the number of family houses in the area – over 70%
Questionnaire (October 2005) Proposals within the draft Housing plan to support above ●
Developing and agreement amongst social landlords on a Local Lettings Policy
●
Agreement on a Sales Protocol
● The Housing Investment Plan
supports more family accommodation, opportunities to become owner occupiers through Homebuy, Shared ownership schemes
4 Prioritising sales of social housing to local people – over 68% 5 Increasing the number of 1 and 2 bedroom flats in the area – over 27%
●
looking at common approaches to Housing Management issues.
● Exploration of having common
Preferred tenure ●
Owner occupation – over 50%
●
Renting from the Council – over 33%
●
Renting from a Housing Association – over 11%
●
Renting privately – over 4%
Housing Investment Plans across social landlords.
Outcomes ●
Trying to meet resident aspiration about current and future housing needs eg more family accommodation, creating opportunities for owner occupation, restricting more supported housing in the area.
●
Local accountability.
●
Supports the Supplementary Development Plan being worked on for the area.
●
Links with proposed Neighbourhood Management proposals for the area.
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21
Appendix 5 : Principles of Local Lettings Policy
Principles of Local Lettings Policy 1 It applies to any new build or deconverted properties - HA or council - and backfilling (once only) of any properties freed up by applying the policy. ie if someone transfers to one of these properties the property they are leaving will be offered in the same way. 2 Under the policy 50% of vacancies are offered in the usual way to priority cases ie thios cases where the council has a legal duty to house under exixting law eg where homeless duty has been accepeted, medical priority cases etc. The rest are offered to pointed cases who have lived in St Pauls and St Agnes for 3 years or more. 3 The same principles would apply to the Sales Protocol ie priority will be given to people from the area and who has the greatest need should there be more than one interested party in purchasing the property. 4 Selection will be made from the common Housing Register.
37
Appendix 6 : Structure to Deliver the
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Action Plan
SPCUP
Terms of reference:
Chair: Wayne HarrisMembership: BCC ASM
Structure of St Paul’s/St Agnes Housing Task Group to Deliver the Action Plan
• To guide, direct, review and respond to local residents housing needs and aspirations. • Co-ordinate work of the sub-groups. • Oversee the delivery of the Action Plan contained within the Housing Plan. • Ensure Housing Plan feeds into the overall SPD.
• • • • • •
Each RSL to nominate representative Planning Officer NR Coordinator Resident Representative Housing Corporation Enabling Officer
Servicing: United Housing Association Frequency of Meeting: Quarterly
Private Sector Group
Housing Management Group
Landlords Group
Planning Group
Terms of reference:
Terms of reference:
Terms of reference:
Terms of reference:
• To tackle void properties in the private sector. • To address disrepair within private sector. • Effective monitoring and management of HMO’s. • Effective management of Disability Facilities Grant. • Oversee delivery of relevant parts of the Action Plan within the Housing Plan.
• Develop protocols between landlords with stock in area for dealing with HM issues including rationalising minimum relet standard. Create a Charter for all tenants to explain the level of service. • Oversee implementation of Local Lettings Policy and local Sales Policy, evaluate their implementation and report back to the community annually. • Investigate options for implementing a local Housing model. • Oversee delivery of relevant parts of the Action Plan within the Housing Plan.
• To oversee the Housing Investment Plan proposals for the area. • Consider bids to Housing Corporation by RSL’s to ensure they respond to resident needs and aspirations. • Consider developing joined up Asset Management Strategies • Discuss impact of the work on their respective Business Plan’s.
• To consider all planning applications and respond in a way that is consistent with resident aspirations.
Chair: Tom Gilchrist Membership: BCC Representatives from Area Offices • Representatives from BCC Empty Properties Team • Elected resident representative of SPCUP • Representative from OT service • Elected tenant representative of SPCUP Servicing:
BCC
Frequency of Meeting: 2 monthly
Chair: Jill Fitzgerald Membership: Housing Managers from each of the social landlords • • • •
Elected tenant representative of SPCUP PEP Advisor BCC Tenants Participation team Nicky Debbage Options Appraisal
Servicing:
Membership: Representatives from each social landlord • Tim Southall • Jill Fitzgerald • Andy walker • Elected tenant representative of SPCUP
Chair: Resident Representative Membership: BCC Economic Development • Planning Officer • Resident Representative • Enabling Officer Servicing:
BCC Economic Development
Frequency of Meeting:
Servicing: RSL Frequency of Meeting: To be determined
Drew Edwards
Frequency of Meeting:
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Chair: Wayne Harris
• Responding to Policy, Strategy, Planning Guidance and Major Applications.
2 monthly
39
Bi-Weekly