ALG Housing Steering Group
Sub Regions, Boroughs and the Region Item no: 8
Report by:
Genevieve Macklin
Date:
26th February 2004
Contact Officer
Peter O’Kane / Genevieve Macklin
Telephone:
020 7934 9828/9827
Summary:
Job title: Director of Housing Policy
Email: [email protected],
[email protected]
There is a need to clarify how Members would like to take forward sub
regional working in its broadest strategic context. It is widely
recognised that significant progress has been made in the last year on
developing sub regional working and sub regional housing strategies.
However these strategies were prompted by the Housing Corporation’s
move to allocate ADP funding on a sub regional basis and have therefore
focussed largely on investment. Sub-regional working has an important
role to play in delivering wider regional aims and objectives and it is
important for the sub regions to influence the development of the next
London Housing Strategy. An evaluation of the five sub regional
strategies by the Housing Corporation recognises the scale of boroughs’
achievements and the level of collaboration in developing sub-regional
strategies. Structures have been put in place to secure more effective
liaison arrangements between the various regional and sub regional
structures including


the links between the sub regions and the Housing Forum for
London and the London Housing Board in developing the next
London Housing Strategy
the relationships between the ALG, LHF, HC, Housing
Associations and Boroughs on investment opportunities,
nominations and other operational issues.
Recommendations
Members are asked to:
1. Recommend the preferred methods for engaging councillors in the
sub-regional agenda. (paras 5.1 – 5.5)
2. Note the complimentary tone of the Housing Corporation’s
evaluation of Sub-Regional strategies (paras 2.1 – 2.7)
3. Comment upon issues raised in the evaluation (Appendix 1)
namely:
 Need for sub-regional data
 Scope for giving sub-regions real responsibility (para 2.7).
4.Note the structures and proposals in place to strengthen the links
between the various regional and sub regional structures. (paras
3.1 – 3.11)
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1.
1.1
INTRODUCTION
This report raises the current issues which need to be considered resulting from the subregional working arrangements and identifies the structures which have been put in place
or are proposed to strengthen and develop the links between the boroughs, sub regions
and regional structures. The report asks members to consider how councillors might be
more fully engaged in the sub regional and regional agenda.
2.
2.1
HOUSING CORPORATION EVALUATION OF SUB-REGIONAL WORKING
The Housing Corporation has undertaken an evaluation of the work of the five sub regions
and in particular the sub-regional housing strategies. The ALG has commented and sought
to ensure the evaluation contained the significant achievements of boroughs in
progressing cross borough working and taking the initiative to produce sub-regional
housing strategies.
2.2
The evaluation formed the basis of a joint report by the Housing Corporation and ALG to
the London Housing Forum meeting on 28th January.
2.3
The evaluation is complimentary about the achievements of boroughs in progressing subregional working. It says “….all sub-regions have a shared commitment to working
together. All strategy frameworks refer to the housing needs and disadvantages in their
areas, generally promote the sub-regions’ strengths and opportunities and suggest how
they can contribute to the challenges facing London.”
2.4
An issue it raises is the need for and level of sub-regional data.
2.5
It suggests that sub-regional Housing Strategies should have a ‘seamless’ shared vision.
Realistically boroughs may have a different set of circumstances facing them in their subregions. Much will be common across the sub-region or indeed London, but the priorities
will not entirely be the same everywhere.
2.6
Another issue is the extent to which and how sub-regions are able and allowed to influence
the Regional Strategy. This is addressed in section 3 of this report
2.7
The CIH evaluation of regional housing strategies for ODPM concluded that sub-regions are
useful where:
 the sub-regions involve active stakeholders and are given real responsibility, in
strategic development; and,
 the sub-regions are well developed to enable delivery through them e.g. devolved
decision making.
3.
3.1
DEVELOPING THE LINKS BETWEEN REGIONAL AND SUB-REGIONAL STRUCTURES
There has been concern that the 2003 London Housing Strategy (LHS), due to the limited
time available, was adopted by the London Housing Board with little regard for borough
housing strategies or sub-regional housing strategies which were mostly still in
preparation in mid 2003.
3.2
Work on the next LHS is beginning although it will not be completed until 2005. A
separate report provides an update on how the ALG Stakeholder Taskforce is progressing.
The consultation which the Taskforce is undertaking will assist boroughs and their
stakeholders to influence the next LHS. Its work is largely sub-regionally based.
3.3
In addition to the Stakeholder Taskforce a senior ALG officer will be designated for each
sub-region. It is proposed that they are invited to Sub Regional Directors’ meetings to
ensure an effective flow of information and that links are made between the various
structures feeding into the London Housing Board and Housing Forum for London.
3.4
Many sub regions are recruiting to sub regional co-ordinator posts and the designated ALG
senior officers will liaise with these officers as and when post holders are appointed.
3.5
Having lead ALG officers for each of the sub regions is intended to strengthen the position
of boroughs and the sub regional role in the regional framework. In particular it will
ensure that sub-regions are enabled to feed into the process for the regional LHS for 2005.
3.6
The London Housing Forum and associated policy sub groups are another way to
strengthen the links between the sub regional and regional structures.
3.7
The policy work for the LHS is largely done in the four policy sub-groups of the Housing
Forum for London each attended by an ALG lead policy officer. See the current
arrangements (Appendix 2) which gives the named lead policy officers. Two of the Policy
Sub Groups are administered by the GLA and the other two are administered by the ALG.
The ALG and GLA have agreed to arrange a meeting between the five sub regional lead
officers and the Policy Sub Group Chairs to develop the relationships between the regional
and sub regional structures and ensure that the sub regions are enabled to influence the
next LHS.
3.8
Another route to strengthen links would be to have a sub-regional representative on the
Housing Forum for London. A proposal has been made to invite the Sub Regional Lead
Directors and the Forum Policy Sub Groups Chairs to future meetings of the Housing Form
for London. This will be considered further at the next Forum meeting.
3.9
Proposals have been worked up to broaden the scope of the Directors’ sub-regional
meetings and widen the involvement in a way which is locally mutually agreeable to the
sub-region by inviting other partners to those meetings including RSL representatives and
the Housing Corporation.
3.10
After discussion with the Housing Directors Steering Group it is proposed that a one off
meeting will be held in late March / early April involving Sub Regional Lead Directors, ALG,
relevant RSL Chief Officers, LHF, Housing Corporation officers to review the development of
sub regional work and links to the regional framework including the London Housing
Strategy and related issues.
3.11
In addition tri-partite meetings of the ALG, Housing Corporation and the London Housing
Federation will be held two or three times a year to address ongoing operational, business
and liaison issues.
4.
4.1
SPECIFIC INPUT FROM SUB-REGIONS TO REGIIONAL PROCESSES.
In the last cycle of the LHB meetings the sub-regions have been involved specifically in
preparing the sub-regional and pan-London private sector discretionary pot bids. These
bids will be considered by a sub-group of the London Housing Board (LHB). The successful
schemes will be known towards the end of March 2004.
4.2
The sub-regions have also been engaged in the discussions on key workers considered
elsewhere on this agenda. A joint letter from the ALG and GLA has been sent to the
Minister and the Chair of the LHB in time for the next LHB meeting on the 2nd March. The
LHB will recommend to ODPM what the key worker groups across the region should be. A
government announcement is expected in mid/late March.
5.
ENGAGEMENT OF MEMBERS IN THE REGIONAL & SUB-REGIONAL AGENDA
5.1
The Stakeholder Taskforce work programme includes sending background information to
members about the London Housing Strategy and asks for their input in determining the
priorities for the next London Housing Strategy.
5.2
It is proposed to hold a regional event on regional and sub regional working in April when
relevant members in all boroughs will be invited.
5.3
Articles are and will continue to placed in the London Housing Unit Magazine and the ALG
Bulletin on regional and sub regional issues.
5.4
The Sub Regional Directors are working on different ways to involve their members.
5.5
The Steering Group is asked to consider the ways in which it might be most useful to
engage members in regional and sub regional issues and raise a wider understanding of the
strategic importance in this area.
6.
6.1
EQUALITIES IMPLICATIONS
There are no readily quantifiable equalities implications. BME communities, and to a
lesser extent single parents, are not evenly distributed geographically. Therefore there is
a need to ensure there is scope for reflecting localised factors at a sub regional level rather
than concentrating on developing strategies at a regional level.
APPENDIX 1
AN EVALUATION OF SUB-REGIONAL STRATEGIES
Report from the Housing Corporation and Association of London Government
Purpose
This paper provides an overview of the sub-regional housing strategy frameworks produced during
2003. The paper outlines some of the priorities for future work and notes the relationship with the
regional housing strategy. Some suggestions are made about how sub-regional strategy
development will be facilitated and supported by the ALG and the Housing Corporation.
Introduction
This first round of sub-regional housing strategies are a welcome contribution to the new approach
to dealing with London’s housing needs and resources - and to establishing an interconnection
between sub-regional and regional housing strategies bottom/up and vice versa.
It is widely recognised that significant progress has been made over the past year and that subregional working has an important role in delivering regional aims and objectives. The five subregions all present documents as frameworks for the development of sub-regional housing
strategies. The processes for developing the sub-regional strategy frameworks demonstrate the
advanced state of some joint working between boroughs and highlight plans and opportunities to
do more. Nevertheless, the development of the sub-regional strategy frameworks have progressed
in an environment where:
 currently there is no requirement for sub-regions to produce housing strategies, compared with
individual borough strategies;
 the drive and initiative has come from the boroughs not only to provide a co-ordinated
response to the Housing Corporation’s housing investment priorities but also to promote a
better understanding of housing investment needs within a wider strategic context; and,
 there were no timescales set for the production of strategies. This means that they are in
varying stages of development across the sub-regions.
This paper is based on the following five documents, although strategy development has continued
and in a couple of regions launches are planned to take place imminently:
Building Communities: a housing strategy for West London
East London Affordable Housing Investment Framework, (draft September 2003)
The Framework North London Housing Strategy
South East London Housing Strategy, (draft September 2003)
South West London Housing Strategy
The evaluation looked at the framework strategies under the following headings:

Structure and content

Monitoring and further development

Process

Conclusions

Next steps
Structure and content
1. Vision, aims and objectives and priorities
1.1 It is too early for a shared vision of the sub-region that is internally ‘seamless’ to have
emerged. There is a sense of ‘vision’ and all sub-regions have a shared commitment to working
together. All strategy frameworks refer to the housing needs and disadvantages in their areas,
generally promote the sub-regions’ strengths and opportunities and suggest how they can
contribute to the challenges facing London.
1.2 As one strategy acknowledged, “most issues lie between boroughs and region as a whole and
future developments will not recognise administrative boundaries”.
1.3 The initial focus of these sub-regional strategy frameworks has been on increasing the supply
of new (affordable) housing in their areas, largely because of how sub-regional working has
emerged. All sub-regions are looking to evolve their frameworks into more comprehensive policy
documents that will address housing need, the creation of sustainable communities and
improving the quality of housing in both the public and private sectors. Investing in the
intermediate market, promoting choice and mobility and meeting the needs of Supporting People
were other stated objectives. However, there remains a need to clarify how sub-regional strategies
fit in with the wider regional policy framework and what will be the strength of their influence.
2. Links with other strategies
2.1 All the sub-regional strategy frameworks refer to the Communities Plan 2003 and a majority to
the 2003 London Housing Strategy. The reverse link between regional and sub-regional strategies
was not possible owing to timing, although it had been intended that sub-regional strategy would
feed into the development of the regional strategy.
2.2 Strategy co-ordination requires attention between national, regional and sub-regional levels
to ensure synergy between housing and other main stream investment strategies for economic
development, transport and health.
3. Evidence base
3.1 Generally, good use has been made of available housing and related data in support of strategy
development. Collation of the key data, as a statistical appendix, has allowed a picture of a subregion to be built up from the constituent borough data.
3.2 Ideally, the collation of sub-regional data and the possibilities of mapping to show
geographical patterns of, for example, housing markets and housing condition, needs, sites and
demographic characteristics would greatly assist sub-regional thinking and planning.
3.3 The sub-regional strategy framework action plans identify a number of areas for further
research and analysis, especially on key workers, understanding housing markets, sub-regional
housing needs and BME housing needs and aspirations.
4. Stated priorities for investment
4.1 While the sub-regional housing strategy frameworks concur with the selected regional housing
priorities for investment, specific sub-regional priorities for all areas have yet to emerge. Where
they have been identified priority issues cover the need for a certain dwelling size mix, mix of
tenure, remodelling of supported housing and a general reference to the need to focus on small
and medium sites until larger sites come on stream.
5. Housing capacity, opportunities and resources
5.1 All of the strategies refer to the GLA estimates of capacity for new dwellings up to 2016. They
all list the Major Opportunity sites and Areas for Intensification. One strategy also presented an
assessment of the capital resources for investment in the sub-region for the current year and with
estimates up to 2005/06.
5.2 Two strategies provide indicative information on accommodation related to supporting people
resources for the sub-region and one refers to regeneration funding.
5.3 It is unclear whether there were difficulties accessing investment data or issues surrounding
the timing of information.
6. Delivering strategy commitments
6.1 As yet there are no plans linking resources with expected outputs and delivery. This is
understandable given that the London Housing Strategy was not specific about these matters.
6.2 Some of the framework strategies have looked at trends in housing provision in their areas and
have included information on private empty housing brought back into use and temporary housing
obtained. While strategies are committed to providing decent homes and to regenerating
communities, borough level data on non-decent homes is not collated on a sub-regional basis and
regeneration initiatives are listed or mapped in only one or two examples.
7. Joint working
7.1 The London boroughs have a long history of working together on housing, facilitated by the
ALG and its predecessors and supported by policy and research units. A London housing directors
group has met since the 1970s to exchange information and good practice and to run initiatives
jointly (e.g. on homelessness).
7.2 Joint working on housing issues at a sub-regional level is recent in some parts of London,
while fairly well established in others. While there might be questions about the appropriateness
of some borough groupings, all areas could point to established joint working on one or more
housing issues ranging from Supporting People, choice based lettings, empty property to private
sector renewal.
Developing a sub-regional identity and housing strategy is a new task for boroughs.
Monitoring and further development
8. Action plan
8.1 Except for one sub-region, the other housing strategy frameworks contain detailed action
plans for future work. These present aims, target dates or milestones, some statement of outputs
and all identify a lead borough or group.
8.2 Generally, sub-groups have been set up to deal with different topics and strategy development
reporting to lead directors.
9. Developing strategy
9.1 All strategies acknowledge the need for evidence to develop sub-regional strategies on:
BME
Homelessness, its prevention and use of temporary accommodation
Key workers and intermediate housing
Supporting People
Private sector renewal
Planning policies and affordable housing
Choice, mobility and allocation of housing
These strategies will require the collation of data, supporting research and inputs from other
borough departments, agencies and stakeholders.
10. Developing joint working
10.1 It is recognised in all sub-regional documents that further joint working is required on a
range of issues. While strategies need to be developed, there are obvious benefits in sharing and
collating information, developing common definitions, standards and practice, identifying good
practice and setting up joint initiatives, (e.g. joint procurement of services).
10.2 The housing strategy frameworks have between them identified a very wide range of topics for
joint working, including:
planning policies, definitions of key workers and intermediate housing, sub-regional home
improvement agencies, dealing with private sector housing, common assessment models,
mapping, developing key worker registers, sharing expertise and co-ordinating the delivery of
Supporting People services and, not least, how to involve a wide range of stakeholders in the
development of strategy.
Process, including consultation
11.1 The complexity of the task and the relative newness of the arrangements set up to produce
the sub-regional strategies make it difficult to say anything about the effectiveness of structures,
relationships and responsibilities. The foundations for the structures are in place and will evolve to
be ‘fit for purpose’.
11.2 The development of the sub-regional housing strategy frameworks has been led by the
boroughs. They recognise that delivering sub-regional aims will be dependent upon working with a
wide range of local, regional and national partners.
11.3. The sub-regions have consulted their key stakeholders and RSL partners, given the initial
focus on supply within sub-regional strategies. There has been consultation at a political level to
engage elected members in the new agenda. However, strengthening the boroughs role in regional
and sub-regional strategy development and a structure for consultation is one of the main
purposes of the ALG’s Stakeholder Taskforce.
Conclusions
12.1 There was no guidance on the baseline structure, contents and requirements for a subregional housing strategy. Therefore the five frameworks are different in thrust and content.
Nevertheless, they provide a strong basis on which to build.
12.2 As the regional and sub-regional strategies were under development at the same time there is
not yet synergy between the two levels. At both regional and sub-regional levels strategies are
evolving with none yet providing exactly what is needed for making decisions about investing
resources and delivering more or better housing.
12.3 Strategy development is dependent upon a good evidence base from research, data analysis
and collation. In some areas there is considerable work to do to provide the information that is
required and to ensure that it is accessible from district (including neighbourhood for some
purposes) to sub-regional and regional levels. These requirements and the demands to coordinate, service and support joint working have resource implications.
12.4 The Chartered Institute of Housing’s (CIH) evaluation of regional strategies for the ODPM
recommended that:
 regions should be clear about the rationale behind their approach - whether they use subregions or themes or both as the building blocks for the strategy, as this affects the shape of
the strategy, and the methods for stakeholders to engage in the process.
12.5 They also concluded that sub-regions provide a useful structure where:
 they add value to regional work, bringing greater and clearer definition to key issues by joint
research/analysis and co-operative working;
 the sub-regions involve active stakeholders and are given real responsibility, in strategic
development; and,
 the sub-regions are well developed to enable delivery through them e.g. devolved decision
making.
12.6 Sub-regional strategies should play a key role in helping to influence and shape regional
housing strategy.
Next steps
13.1 The requirement to produce the next regional housing strategy in 2005 is allowing time to:
 review and establish improved representation and working arrangements between regional
(especially the London Board, Housing Forum for London and its policy sub-groups) and the
sub-regional levels;
 clarify the links between sub-regional structures and the Forum policy sub-groups in the
production of the next London Housing Strategy; and,
 to develop effective consultation arrangements.
13.2 The ALG and Housing Corporation, working with the London Housing Federation, are facilitating
local and inter-borough political links, and that the involvement of RSLs and other partners are
strengthened to take forward the development of the sub-regional housing strategies.
13.3 The Housing Corporation is also committed to providing its financial, monitoring and other
data on a sub-regional basis to inform strategies.
APPENDIX 2
Housing Regional Decision making Structure
Joint meetings between London,
South East + East regions
Minister for London,
ALGHousing Panel Chair, Mayor
Officer Level
London Housing Board
Chair:Liz Meek( GOL)
Project Groups
(ALG, HC, GOL, GLA, LHF)
Frequency:
Membership:
Remit:
Initially monthly
GOL, ALG, HC, LDA, EP, GLA
Prepare the London Housing Strategy + advise Minister on strategic housing investment priorities
Housing Forum for London
Chair: Neale Coleman (GLA) + Tony Newman (ALG)
Frequency:
Membership:
Remit:
Housing Supply Policy
Sub Group
(Lead: GLA)
Lead policy officer : Alice
Ellison/ James Gleeson
Bi-monthly
GLA, ALG, HC, LHF, NHS, LDA, HBF, London Business Board, Shelter, GOL
Contribute to development of London strategies and build consensus, joined up
approach to tackle London’s housing problems
Homelessness Policy
Sub Group
(Lead: ALG)
Lead policy officer :
Ian McIntyre
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Decent Homes and
Regeneration Policy Sub Group
(Lead: ALG)
Lead Policy officer :
Kirsten Firth
Private sector
Policy Sub Group
(Lead: GLA)
Lead Policy officer: Sylvia
Carter/ Anastasia Mulenga
Political
Level