Private Sector Housing Assistance Policy

The quality and suitability of a person's home can have a major impact on their quality of life and general wellbeing. There are direct links between unsatisfactory housing and poor health particularly in older people, residents with disabilities or chronic illness and households with young children as well as those living on low incomes. Local authorities have a responsibility to deal with private sector housing that is in poor condition or needs adaptations to meet the needs of those with disabilities.

This policy sets out the financial assistance available to residents who are eligible to receive it and how it is delivered. The financial assistance set out in this policy covers both statutory Disabled Facilities Grants (DFGs) and other discretionary grants and loans the Council can provide.

2.1Aims

The Council seeks to improve the health, wellbeing and safety of residents of the Borough who live in private sector housing, through the promotion and delivery of a range of assistance that supports residents to live independently and well by providing statutory Disabled Facilities Grants (DFG) and other discretionary assistance that helps to improve and maintain the condition of properties.

The Council will ensure that the available capital resources are focussed on meeting the needs of the most vulnerable. This focus needs to be set in the context of greater demands on DFG resources and increasing pressures on some of the most vulnerable households in relation to the costs of maintaining and heating their homes.

2.2Priorities

The key priorities for this policy are to:

• facilitate disabled and people with mobility issues to live independently in their own homes
• facilitate people living with cognitive, neuro-diverse and sensory impairments to live independently in their own homes
• facilitate safe hospital discharge that enables people to receive on-going health care at home
• prevent imminent hospital admission or the need for admission to care where health and care needs can be met safely at home
• support the provision of measures that will help vulnerable households feel safe and secure in their own homes and contribute towards maintaining independent living
• tackle housing conditions that represent a hazard to the occupier's health and wellbeing, focusing on the most vulnerable households to achieve a solution that will meet their longer-term needs
• meet the needs of disabled residents by supporting the delivery of one-off capital projects

The policy contributes to the following local strategies:

Great Yarmouth Borough Council's Corporate Plan 2025-2030

This policy plays a part in contributing to the Council's priority area of Improved Housing and Stronger Communities, which recognises that having access to a good quality home plays a fundamental part in a person's quality of life. The key outcomes of this priority include:

• improve the health and wellbeing of residents through better access to facilities and an inclusive approach to addressing physical and mental wellbeing, and reduce health inequalities
• for residents to feel safe in their homes and communities and share a sense of pride in their immediate community and the wider borough

Strategic priorities to meet these outcomes relevant to this policy include:

• enable residents to remain in their own homes and live independent lives through a comprehensive adaptations programme and working closely with key health partners
• to continue to develop our partnership approach to early help and prevention services to support our most vulnerable residents
• to support residents to live in high quality warm homes

Great Yarmouth Borough Council's Housing Strategy 2024-2029

Great Yarmouth Borough Council's Housing Strategy's commits to providing 'Decent Homes' across all housing tenures and recognises the need for a range of accommodation options for elderly or disabled residents and dwellings that can be easily adapted to meet the needs of residents as they age, to enable households to remain living independently in the communities in which they know, have built friendships and support networks.

Better Care Fund (BCF) & Disabled Facilities Grant (DFG) Locality Plan

A locality plan is jointly developed annually by Great Yarmouth Borough Council, Norfolk County Council and NHS Norfolk and Waveney Integrated Care Board (ICB) in accordance with the BCF guidance.

The Locality Plan sets out the agreed approach to delivery of Disabled Facilities Grants and other schemes that support the Borough's residents to remain living independently within their own homes.

Norfolk DFG Protocol for Joint Working & Integrated Housing Adaptation Teams

This protocol sets out the principles of the shared ambition for delivery of Disabled Facilities Grants in Norfolk. It covers the:

• shared responsibilities and aspirations to support people in Norfolk through the use of DFGs
• principles for joint working to deliver better outcomes for people needing DFG adaptations
• the context and framework for cross-sector partnerships in Norfolk to shape and deliver DFGs for people who need them
• shared success criteria to deliver and measure outputs

The protocol has been signed by the seven Norfolk district councils and Norfolk County Council.

Data informing the Policy

The mix of housing in Great Yarmouth includes 62.1% owner occupied, 16.2% Social rented and 21.7% Privately rented.

Source: Office for National Statistics (ONS) Census Data (2021) from NOMIS.

Government data estimates that out of a total Great Yarmouth population of 99,750; 23,937 (23.9%) are 65 years or over, 11,164 (11.2%) are 75 years or over and 2,963 (3%) aged 85 years or over. The largest group of residents are in the age band 50 to 64 years of age and account for 21.2% of the population of Great Yarmouth.

This policy also draws on data from the 2023 English Housing Survey: Local Authority Private Sector Stock Condition Modelling data for the borough.

• total number of private sector dwellings - 46,342
• 11.7 % of all private sector dwellings have a HHSRS category 1 hazard
• 13.6% of owner-occupied dwellings have a HHSRS category 1 hazard
• 12.9% of dwellings in the private rented sector have a HHSRS category 1 hazard (1,808)
• 15.7% of private sector dwellings do not meet the decent homes standard
• number of households in fuel poverty Low Income Low Energy Efficiency (LILEE) 6,058
• 68% of owner-occupied dwellings have an EPC rating of band D or lower
• 58.8% of dwellings in the private rented sector have an EPC rating of band D or lower

National Policy consistently highlights the importance of housing and the fundamental role it plays in prevention, promoting independence health and wellbeing. Councils have several statutory obligations in respect of private sector housing including those relating to housing standards and eradication of risk through to the delivery of Disabled Facilities Grants.

Lifetime Homes, Lifetime Neighbourhoods

A National Strategy for Housing in an Ageing Society is about improving living standards for older people. The strategy recognises that housing, health and social care need to be increasingly interdependent as no sector can deal with the challenges of an ageing population alone.

Better Care Fund

The Better Care Fund (BCF) is a pooled budget that enables the NHS and local authorities to jointly commission health and social care services, to drive development of integration locally.

The BCF includes Disabled Facilities Grant (DFG) monies. The budget for DFGs is no longer ring-fenced therefore it is vital that the district council, who as the housing authority has the statutory responsibility to deliver DFGs is linked into the process of developing and delivering the BCF with the lead agencies within health and social care. To this end a locality plan has been jointly developed by Great Yarmouth Borough Council, Norfolk County Council and Norfolk & Waveney ICB.

Managing Transfers of Care - A High Impact Change Model

The High Impact Change Model refreshed in 2023 is designed to support system partners to improve health and wellbeing, minimise unnecessary hospital stays and encourage consideration of new interventions. Change 10 of the model refers to housing and related services and highlights the importance of having effective mechanisms in place that address housing issues early in discharge planning, which maximise independence and support people to go home. Change 10 mentions the need for housing and homelessness services, home adaptations and equipment services to enable a safe effective discharge. The District Direct and Be at Home services have proven consistently that the Council is delivering on Change 9.

Source: Local Government Association: Managing transfers of care

National Strategy for Autistic Children, Young people and Adults: 2021 to 2026

The Government's refreshed national strategy for improving the lives of autistic people and the families and carers. The Strategy seeks to improve autistic people's access to housing that, meets their needs, by increasing the provision supported housing, enabling more people to access adaptations to their homes.

Source: National strategy for autistic children, young people and adults: 2021 to 2026

Housing Grants Construction and Regeneration Act 1996

Under this Act the Council has a legal duty to provide Disabled Facilities Grants (DFG) to eligible applicants.

Regulatory Reform (Housing Assistance) Order 2002

This Order provides a wide-ranging power to provide 'assistance in any form' 'either directly or indirectly to enable a person:

• to acquire living accommodation (whether within or outside their area)
• to adapt or improve living accommodation (whether by alteration, conversion or enlargement)
• to repair living accommodation

Under this legislation the Council is required to publish a policy stating how it intends to use its powers to offer assistance to enable improvements to private sector housing, and who is eligible to receive it.

Housing Act 2004

This Act introduced several new provisions, which included the introduction of a new Housing Health and Safety Rating Scheme (HHSRS) to replace the Housing Fitness Standard. The Act gives Councils the powers to take enforcement action based on assessments carried out under the HHSRS. These assessments focused on hazards that are most likely to occur in housing. This enables the Council to target properties in the poorest-condition and helps address health and wellbeing inequalities.

The Housing Grants, Construction and Regeneration Act 1996: Disabled Facilities Grant (Conditions relating to approval or payment of Grant) General Consent 2008

This consent sets out when a Council may request repayment of a mandatory Disabled Facilities Grant, the applicable amount that can be reclaimed and the factors the Council will have considered in deciding whether to require repayment.

Equality Act 2010

The Equality Act 2010 prohibits discrimination against people with the protected characteristics that are specified in section 4 of the Act. Disability is one of the specified characteristics.

The Care Act 2014

The Care Act 2014 is a significant piece of legislation which aims to.

• provide a single, clearer framework for the provision of care and support
• promote a preventative approach with services built around an individual's wellbeing
• give carers a right to assessment for support
• promote integration of health and social care
• make statutory provision for Safeguarding Adults Boards

The Care Act includes local housing authorities and providers as important partners for health and social care. The statutory guidance sets out how and when housing provision and options should be included into the processes in place to support wellbeing and address care and support needs.

Services that support people to maintain and adapt their homes are key to preventing, reducing and delaying care and support needs and acknowledgement has been given to the vital work that Home Improvement Agencies support people to live safely and independently in their own homes.

The Council receives an annual allocation from the Better Care Fund to deliver DFGs based on Government's reflection on the level of need in the area. If required, to meet the statutory obligation to deliver DFG in any year the Council will borrow to meet the demand above the level funded from the Better Care Fund.

In a typical year the Council supports over 400 private sector households with essential adaptations to their homes, allowing residents to remain living independently, be safely discharged from hospital or prevent them being admitted to hospital.

The Council will provide financial assistance and advice and information to applicants as set out below.

7.1Financial assistance

Full details of the financial assistance available is contained in the appendices as follows:

• Appendix 1: Mandatory Disabled Facilities Grant
• Appendix 2: Discretionary Disabled Facilities Grant Top Up Grant
• Appendix 3: Discretionary Norfolk and Waveney Equity Loan Scheme
• Appendix 4: Discretionary Equity Loan
• Appendix 5: Discretionary Home Repair Grant
• Appendix 6: Discretionary 'Be at Home' Adaptations Scheme
• Appendix 7: Discretionary 'Be at Home' Alarms Scheme
• Appendix 8: Discretionary 'Be at Home 'Alarms Plus+' Scheme
• Appendix 9: Discretionary Heating Repair or Energy Efficiency Measures Grant
• Appendix 10: Discretionary Heating Installation or Energy Efficiency Measures Loan

 All assistance is subject to the applicant meeting eligibility criteria, additionally discretionary assistance is subject to funding availability at the time.

7.2Practical assistance and advice

The Council provides a range of advice and information to assist owner occupiers, tenants renting privately and private sector landlords to support housing standards within the borough.

• Independent Living Service

The Council provides support to older or vulnerable people to enable them to remain in their own homes. The service delivers tailored advice and support, linking clients to independent advice and financial help to deal with repairs, improvement and adaptations needs.

• Community Hub

Through the Community Hub clients can be put in touch with a wide range of voluntary sector support agencies and projects. The service also provides advice and information on alternative sources of funding including supporting residents to apply for charitable funding.

• Environmental Services

Advice and information to landlords and tenants plus as necessary enforcement action to ensure properties are safe and not presenting a risk to tenants.

• Housing Advice and Homeless Prevention

Where a person's home cannot be made suitable for their needs or there is an identified housing need the Housing Advice and Homeless Prevention Team can provide advice and support on the options available. This team also deals with customers who are at risk of homelessness and administers the Council's Allocation Policy and Scheme.

• District Direct

A service where a Council Housing Officer works in the discharge hub in the James Paget University Hospital providing a range housing advice and support to patients to enable safe discharge or to prevent admission.

8.1Repayment of Disabled Facilities Grant

Housing Grant, Construction and Regeneration Act 1996: Disabled Facilities Grant (Conditions relating to approval or repayment of grant) General Consent 2008, allows for repayment of individual mandatory DFG's that exceed £5,000 up to the maximum statutory award of £30,000. The maximum amount that the Council can require to be repaid in respect of a mandatory grant is £10,000. However, where a discretionary grant is provided over above the £30,000 to facilitate works the Council is also able to require repayment of this amount.

The Council will secure the amount to be repaid by applying a limited charge to the property recorded on the Local Land Charges Register. The limited charge will last for 10 years from completion of the works and if the property is disposed through sale, assigned or transferred to another person the Council will seek repayment of the grant. In relation to discretionary grant, the limited charge will have no time limit and will require repayment of the grant when the property is assigned, transferred or sold.

The General Consent Order 2008 sets out the factors that the Council will have considered in deciding whether to require repayment, those are:

1. the extent to which the recipient of the grant would suffer financial hardship where he to be required to repay all or any of the grant
2. whether the disposal of the premises is to enable the recipient of the grant to take up employment, or to change the location of their employment
3. whether the disposal is made for reasons connected with the physical or mental health or wellbeing of the recipient of the grant or of a disabled occupant of the premises
4. whether the disposal is made to enable the recipient of the grant to live with, or near, any person who is disabled or infirm and in need of care, or who is intending to provide care of which the recipient of the grant is in need by reason of disability or infirmity

Source: The Housing Grants, Construction and Regeneration Act 1996: Disabled Facilities Grant (Conditions relating to approval or payment of Grant) General Consent 2008

Having considered the above circumstances, the Council may at its discretion, considering all the facts available to it, make a decision that the recipient should not be required to repay some or all of the grant. In making decisions as to whether this discretion will be exercised the recipient may be asked for additional information, including financial information.

Grant monies repaid may be used to fund capital projects across all tenures that deliver or promote independent living, resident wellbeing or improved health outcomes.

8.2Repayment of discretionary loans

Where an equity share loan is provided the Council's interest is lodged on the property's title deeds with HM Land Registry. The cost of doing this is included in the loan.

Previously issued Council Loans that were registered as a charge with Local Land Charges are being registered with Land Registry through the application of a unilateral notice.

Repayment of the full amount of the loan is required:

• on sale or transfer of ownership of the property
• if the property ceases to be the applicant's principal residence
• if the property remains vacant for more than six months

The Council may decide not to demand full repayment or may defer its demand for repayment under the following circumstances:

1. where the loan is in joint names and one of the applicants has died and the other named person is still in residence or the ownership of the property is transferred to a person who lives there as their only place of residence and who was in residence at the time of the applicant's death
2. where it is satisfied that the applicant is so elderly and infirm that they are disposing of the dwelling with the intention of going to live in a hospital, a hospice, a nursing care home where care will be provided
3. where the applicant has been forced to move due to racial or other harassment or domestic violence
4. moving to a property that facilitates a more appropriate care setting for the applicant

All decisions are at the discretion of the Council when considering all the facts of the cases and whether the recipient would suffer financial hardship should they be required to repay all or any part of the loan. In making decisions as to whether this discretion will be exercised the recipient may be asked for additional information, including financial information.

Loan monies repaid may be used to fund capital projects across all tenures that deliver or promote independent living, resident wellbeing or improved health outcomes. 

For further information or to apply for a DFG or a discretionary grant or loan detailed in this policy contact the Independent Living Service. Feedback on the services outlined in this policy or any of the Councils Services can be given:

• email: [email protected]
• telephone: 01493 846190
• in writing to: Independent Living Service, 105 Caister Road Great Yarmouth NR30 4DG

A complaint is defined as a situation where there is dissatisfaction with the service provided or dissatisfaction with a response to a request for a service
The Council operates a two-part complaints procedure, following which if the complainant remains dissatisfied they can refer their complaint to the Local Government and Social Care Ombudsman (LGO).

Comments, complaints or compliments about the services detailed in this policy can be made:

• email: [email protected]
• telephone: 01493 856100
• in writing to: Complaints, Member Services, Town Hall, Hall Plain, Great Yarmouth NR30 2QF
• in person: at the Town Hall or the Novus Centre
• online via our Comments, compliments and complaints page

Applicants living in the following properties are not included within the provisions of this policy:

• those owned by Private Registered Providers, unless the application is for a DFG
• those owned by property developers and speculators
• Council owned properties - these are covered by the Council's Adaptation Policy for Council Tenants
• commercial premises
• second homes
• holiday homes
• buildings which when purchased by the applicant were in a state of repair or were unfit for human habitation.

Legislation states that the Council is required to:

• provide a decision whether or not to approve a DFG within 6 months of receiving a full application (this includes all necessary information, e.g. proof of home ownership or landlord consent)
• aim to complete the installation of the adaptions within 12 months from the date of the grant approval

In addition to the legislative service standards, the former Department for Levelling Up, Housing & Communities (DLUHC) published in 2022 their 'Guidance for Local Authorities on delivery of Disabled Facilities Grants' in which they introduced new definitions for case complexity and target best practice timescales for their delivery. All partners to the IHAT Protocol for Joint Working in Norfolk', have agreed to adopt the definitions and target timescales and aspire to meet the targets for delivery in 95% of all DFG cases completed.

These standards are aspirational as differences in how long activities can take will depend on the complexity of the job and the number of stakeholders involved. Some works will comfortably proceed within the timescales while others involving extension and or multiple works will take longer.

The level of customer satisfaction with the services provided will be monitored and the information used to help review the policy in future years to meet customer needs.

The policy and procedures will be reviewed at regular intervals to retain flexibility to ensure the service provided is improved upon and is able to adapt to changing social and economic trends.

The policy will be monitored against the following outputs:

Disabled Facilities Grants:

• number of referrals
• number of approvals
• number of completions
• profile of spend against total budget
• number of calendar days from receipt of referral to works complete

Be at Home adaptations:

• number of referrals
• number of completions
• number of bed days saved

Be at Home alarms:

• number of referrals received
• number of packs issued
• number of bed days saved

Overview of the application process

Applications should be made directly to the Independent Living Service at Great Yarmouth Borough Council.

Once confirmation that both the applicant and the dwelling that they live in are eligible for assistance a technical officer from Independent Living Services will inspect the property and raise a schedule of eligible works.

The applicant will be asked to supply a minimum of 2 estimates covering the scope of the scheduled works plus any additional costs such as agent or structural engineer fees. The applicant will also need to provide information on all borrowings secured against the property such as a mortgage, the approximate amount left to repay and confirm that the property title is registered. If the property is not registered with Land Registry the applicant will have to instruct their own solicitor to have the property title registered before the loan application can proceed.

Independent Living Services will carry out an initial assessment to see if the amount of loan required does not exceed £50,000 and/or is no more than 35% of the free equity in the property.

Once satisfied that the loan amount requested is unlikely to exceed the maximum limits set out in the step above Independent Living Services will confirm the title registration with Land Registry and instruct an independent surveyor to value the property.

Existing lenders will be contacted and their agreement to a further charge on the property sought.

Once the valuation is received and other lenders consent to the charge is obtained, along with confirmation of the amount of outstanding mortgage/loan outstanding, Independent Living Services will draw up the Loan Agreement in duplicate for the applicant to sign and the council to sign and seal.

Independent Living Services will check with Land Registry that no further charges have been placed against the property during this process. If a further charge has been placed upon the property this will delay or prevent the Equity Loan from being registered.

Once confirmation is received from Land Registry that no additional charges have been placed upon the property Independent Living Services will register the Equity Loan and the relevant funds can be released.

One copy of the Loan Agreement will be sent to the applicant for them to retain and the other will be retained by the Council.