Making the best use of Oldham's housing
stock
Final research report
Making the best use of Oldham's
housing stock
Final research report
C3669 / April 2008
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Oldham best use of stock - final
Contents
PAGE
Research summary ............................................................................... 3
Context ....................................................................................................................3
Overcrowding .............................................................................................................3
Under-occupation.......................................................................................................4
Tackling the issues – what research participants thought.....................................4
Conclusions................................................................................................................4
Recommendations .....................................................................................................5
1.0
Introduction ........................................................................................... 7
2.0
Context ................................................................................................... 9
2.1
2.1.1
2.1.2
2.2
2.2.1
2.2.2
2.3
Defining overcrowding and under-occupation ........................................................9
National standards .......................................................................................................9
Understanding of standards in Oldham ......................................................................10
Statistical evidence ..................................................................................................11
Overcrowding .............................................................................................................12
Under-occupation .......................................................................................................16
Summary of findings................................................................................................18
3.0
Overcrowding ...................................................................................... 20
3.1
3.2
3.3
3.4
3.5
3.6
3.7
3.8
3.9
Causes of overcrowding..........................................................................................20
Space or bedrooms..................................................................................................21
Emotional impact on household .............................................................................21
Privacy.......................................................................................................................22
Affect on children.....................................................................................................22
Affect on elderly households ..................................................................................22
Links with homelessness ........................................................................................23
Effect on wider community......................................................................................23
Summary of findings................................................................................................24
4.0
Under-occupation................................................................................ 25
4.1
4.2
4.3
4.4
Causes of under-occupation ...................................................................................25
Effect on household.................................................................................................25
Affect on wider community .....................................................................................26
Summary of findings................................................................................................26
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5.0
Tackling the issues ............................................................................. 27
5.1
5.1.1
5.1.2
5.1.3
5.2
5.3
Overcrowding ...........................................................................................................27
Increase supply of houses..........................................................................................27
Provide better rehousing advice .................................................................................28
Offer scattered neighbourhood alternatives to one home for a multi-generational
household...................................................................................................................28
Under-occupation.....................................................................................................29
Summary of findings................................................................................................30
6.0
Conclusions......................................................................................... 32
6.1
6.2
6.3
Summary of key findings.........................................................................................32
Key policy and strategy issues ...............................................................................33
Recommendations ...................................................................................................34
Annex One: Stakeholder interview topic guide................................. 36
Introduction ..............................................................................................................37
Topic guide ...............................................................................................................37
Close
..................................................................................................................39
Annex Two: Focus group topic guides.............................................. 40
Overcrowding topic guide .......................................................................................41
Topic guide: Overcrowding.........................................................................................41
End
..................................................................................................................42
Under-occupation topic guide.................................................................................43
Topic guide: Under-occupation...................................................................................43
End
..................................................................................................................44
Annex Three: Focus group participants ............................................ 45
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Research summary
This report looks at making the best use of Oldham's housing stock. It presents findings of
a research project commissioned by Oldham Borough Council as part of the Local Area
Agreement's housing block. The aim of the work is to help the council develop a policy on
overcrowding and under-occupation, feed into the Local Area Agreement and link into the
key priorities in the Housing Strategy.
Census figures from 2001 show that Oldham has the second highest level of overcrowding
in Greater Manchester and a medium level of under-occupancy. There is, however, little
evidence available on the causes, perceptions and impact of overcrowding and underoccupancy in Oldham. This project has sought to explore these among stakeholders and
residents.
Context
• Overcrowding and under-occupation tend to affect different and distinct parts of the
housing market.
• Clear concentrations of overcrowding can be identified, particularly within the HMR
area.
• While individual incidence of overcrowding in households may be more widespread
across the borough, the concentrations of overcrowding in some areas compound the
issue with overcrowded neighbourhoods.
• There is confusion over the different legal and technical definitions of overcrowding –
and how these are applied in practice.
Overcrowding
• Overcrowding can affect a range of property types, including sheltered housing.
• Overcrowding tends to be triggered by key life-cycle points: birth, illness and family
'shocks' eg family break-up or migration.
• The most negative impacts are observed on children and older people.
• Overcrowding has a serious impact on quality of life and there is a particular issue
regarding the longer term affect on children, in terms of education outcomes for
example.
• There is a perception that there are limited options available to resolve the household
situation, in either the social rented or private rented sectors. There is some concern
over the priority given to overcrowded households in the allocations system.
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Under-occupation
• There is a tension between a market aspiration to purchase as large house as can be
afforded and making the most efficient use of stock within the housing market by
balancing occupation according to need or household profile.
• Long-term occupation of homes by households reduces turnover and provides stability.
However, this will result in periods of under-occupation associated with life-cycles –
prior to having children or after children leave home.
• Negative affects of under-occupation for some households is recognised in terms of the
cost of heating and home maintenance. This is a particular issue for older underoccupiers.
• While not linked to under-occupation by itself, an older population in estates of family
housing can result in a lack of community balance – and there can be rapid changes of
the profile of a neighbourhood if one cohort dies or leaves their home at a similar time.
Tackling the issues – what research participants thought
• It is too simplistic to believe that freeing under-occupied properties will solve the
overcrowding problem.
• There are further opportunities to test policy responses and to share good practice. For
example in sharing what works in dealing with under-occupation via the allocations
process through incentives, additional housing points or marketing.
• It will be important to trial and evaluate the impact of initiatives such as scattering
families within a neighbourhood or targeting older people to discuss alternative housing
options.
• There is a need for tailored options information and in relation to overcrowding provision
of information and approaches that are sensitive to BME needs.
• There would be resistance to any kind of coercion (eg tenancy agreement changes) in
terms of moving under-occupied households.
• It is essential to have realistic and desirable alternative housing options to offer before
considering mechanisms to facilitate moving.
• There is an important role for RSLs and developers in providing the kind of
accommodation that will meet the needs of, and be attractive to, overcrowded or underoccupied households.
Conclusions
Overcrowding can be an acute problem for households experiencing it, yet it is not
straightforward to resolve. Simply forcing people in under-occupied houses to move
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somewhere smaller is not possible or desirable. But there are a number of policy and
strategy key issues that can be addressed.
There is widespread confusion of the term ‘overcrowding’, including among stakeholders
working in housing management. Greater clarity over the term and a consensus among
different agencies involved would help. Linked to this is the need either to change
allocation policies in social housing to enhance overcrowding and under-occupation or to
make the policy more transparent and better publicised.
Looking at the longer term, new homes should be built that are larger, take onboard the
needs of Asian households – including understanding how these might change in future –
and located within existing neighbourhoods so people can continue to live within their own
community if they wish to.
Any efforts to target overcrowding should be carried out where there are concentrations of
terraced houses, particularly in the HMR area, in Pakistani and Bangladeshi areas and
with private tenants. In contrast, any measures around under-occupation should target
owner occupiers, the elderly and focus on Saddleworth, Chadderton, Royton and
Crompton.
Overcrowding has a negative affect on individual households but it also impacts on the
wider community. This is where a housing issue become a larger problem. It can impact
on children’s educational attainment, although it is too simplistic to blame just
overcrowding for this. But young people wanting space outside an overcrowded home can
lead to increased complaints about anti-social behaviour, which in turn lead to a bad
external perception of an area and increased pressure on environmental management and
public services. These connections are therefore potential lever for engaging partners in
other agencies and combining budgets.
Recommendations
1
A clearer definition of ‘overcrowding’ should be drawn up and agreed between the council
and RSLs.
2
An information paper summarising this report and clarifying any questions should be sent
out to frontline staff. This should also encourage agencies, particularly RSLs, to use their
databases to better understand overcrowding and under-occupation among their
residents.
3
Housing advisers should continue to engage with overcrowded households and offer the
option of local rehousing of suitable members within the larger households. For Asian
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households, care must be taken with possible rehousing options, ensuring that properties
are available either within the same neighbourhood or, if in new areas, that the fear of
racism is overcome.
4
The council should give greater support to its bond scheme and should publicise the
scheme, giving people with little savings the opportunity to move to less crowded housing.
There is also potential to use empty properties alongside the bond scheme and other
private sector initiatives, including the Empty Property Strategy, to increase the availability
of properties.
5
The council and partners should seriously consider extending a financial scheme, such as
loans or charges on a property, to help owner occupiers and private landlords to extend
their existing home to tackle overcrowding.
6
Any future housing needs studies should particularly target the needs and aspirations of
older households, if such work has not already taken place. Findings should then inform
the planning of age-related housing across a range of tenures in Oldham.
7
A marketing campaign should be aimed at informing older households about the choice of
housing available to them, along with guidance and support offered if people choose to
move to a smaller property.
8
Property developers and developing RSLs should be encouraged to build larger
properties, including for affordable housing, both inside localities affected by overcrowding
and elsewhere in Oldham. The aim should be to provide a mix of types and sizes of
housing within all local housing markets, giving people the opportunity to trade up and
trade down.
9
Further research should examine emerging good practice from the local authorities piloting
initiatives to tackle overcrowding. This includes Manchester Council, providing a local
peer.
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1.0
Introduction
This report looks at making the best use of Oldham's housing stock. It presents findings of
a research project commissioned by Oldham Borough Council as part of the Local Area
Agreement's housing block. The aim of the work is to help the council develop a policy on
overcrowding and under-occupation, feed into the Local Area Agreement and link into the
key priorities in the Housing Strategy.
Census figures from 2001 show that Oldham has the second highest level of overcrowding
in Greater Manchester and a medium level of under-occupancy. There is, however, little
evidence available on the causes, perceptions and impact of overcrowding and underoccupancy in Oldham. This project has sought to explore these among stakeholders and
residents. The key research aims were therefore to explore:
• perceptions of overcrowding and under-occupancy amongst stakeholders and Oldham
residents;
• perceived causes of overcrowding and under-occupancy amongst stakeholders and
Oldham residents;
• perceived barriers to tackling overcrowding and under-occupancy in Oldham;
• potential opportunities for tackling overcrowding and under-occupancy in Oldham; and
• the impact of overcrowding and under-occupancy standards.
To carry out this project we have therefore used a mainly qualitative approach, by:
• interviewing stakeholders in Oldham Council, First Choice Homes Oldham, Housing 21,
other housing associations, Age Concern Oldham and Oldham Citizens Advice Bureau.
The topic guide is included in Annex 1; and
• running eight focus groups with a diverse sample of residents across Oldham and from
all tenures, including two specifically with elderly residents and one with BME residents.
The topic guides used are included in Annex 2, with a breakdown of focus group
participants shown in Annex 3.
By using a qualitative approach, the results from this study should be seen as indicative of
the views of stakeholders and residents in Oldham. Wide-scale statistical evidence – such
as a dedicated survey – would be needed for a definitive view of the scale of overcrowding
and under-occupation. However, this was not the basis of this project, which has been
concerned with people's perceptions and opinions.
The rest of this report sets out the context of overcrowding and under-occupation by
reviewing the definitions used and outlining the statistical evidence. Next follows the other
evidence gathered through this project from stakeholders and residents, first looking at
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overcrowding and then under-occupation. After that is a section that draws on ways of
tackling these issues suggested by people during the research. The final section
summarises the key findings, draws out the policy and strategy issues and offers our
recommendations.
Comments made by research participants are shown in grey boxes, with quotation marks
for direct quotes or paraphrased if not.
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2.0
Context
Overcrowding and under-occupation are phenomena of the housing market across all
tenures. Some people live together in houses which for most functions are too small to
accommodate all the residents comfortably or without the risk of stress. Other people live
in accommodation with space enough for them and additional spare space.
The phenomena become problems when the overcrowding causes stress, or health
difficulties and people living in overcrowded conditions want more space and are not in a
position to secure more, and when the housing market including the allocation of social
rented properties cannot provide the space. Conversely under-occupied properties may be
expensive to heat or maintain. An element in the problem is when an imbalance can be
seen between overcrowded accommodation and under-occupied accommodation within
the same housing market.
This research has been able to use statistical evidence about the extent of overcrowding
and under-occupation gathered by a number of public bodies, and also been able to
sample the perception of a number of local stakeholders (in social housing management
and strategic housing planning) and local residents. This has meant that an overall picture
of the issues in regard to numbers and opinion can be provided, both of which are
important in informing the development of any policy to address these problems.
This section first defines overcrowding and under-occupation, which includes material from
stakeholders and residents. It then outlines the statistic evidence on these issues.
2.1
Defining overcrowding and under-occupation
2.1.1
National standards
The current national statutory overcrowding standards, the room standard and the space
standard, are set out in Part X of the Housing Act 1985. A dwelling is described as
overcrowded if either the room standard or space standard is contravened.
The room standard is breached if two people of opposite sexes who are not living
together as husband and wife must sleep in the same room. Living rooms and kitchens as
well as bedrooms can be treated as available sleeping accommodation. Children under-10
years old do not count.
The space standard specifies the number of people who may sleep in a dwelling
according to the number of rooms and their floor area. Two calculations are required and
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the lower number applies. Babies under-one year do not count, and children under-10
count as half.
The room standard is limited because of the inclusion of living rooms and kitchens as
bedrooms but also for not counting younger children. The space standard, in comparison,
is more difficult to calculate.
An alternative widely used in place of these is the bedroom standard. This system is
based on the ages and composition of the family. A notional number of bedrooms are
allocated to each household in accordance with its composition by age, sex and marital
status and relationships of family members. A separate bedroom is allocated to each:
• married or cohabiting couple;
• adult aged 21 years or more;
• pair of adolescents aged 10-20 years of the same sex;
• pair of children aged under-10 years regardless of sex.
Any unpaired person aged 10-20 years is paired, if possible, with a child aged under-10
years of the same sex or, if that is not possible, given a separate bedroom. The same
applies to any unpaired child aged under-10 years.
This standard is then compared with the number of bedrooms available for the sole use of
the household. Bedrooms converted to other uses are not included; bedrooms not in use
are included unless they are uninhabitable. A household is overcrowded if it needs to have
one bedroom or more to accommodate all household members. An under-occupied
household is treated as having two or more bedrooms too many for the number of
household members. This is the definition we have used in the statistical analysis below.
However, there is further confusion over the definitions of overcrowding and underoccupation. For example, the household overcrowding indicator included in the Index of
Multiple Deprivation from 2004 provides for a separate bedroom for people aged 16 or
over. Also, the FCHO application process records overcrowding but only if there are two
bedrooms or more needed.
The Government is currently trying to address this confusion and is seeking to update the
definition of overcrowding.
2.1.2
Understanding of standards in Oldham
"Too many people in one place"
Overcrowding among BME residents focus group
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There was an acknowledgement among stakeholders that a number of technical
definitions of overcrowding existed, and were defined in housing legislation. There was
almost universal ignorance of the detail of these and a general approach to the definition
either by allocations policies (if a landlord organisation) or by a private domestic-based
definition. A line that ran through from legislation was having occupancy levels beyond
bedroom spaces and giving consideration to the age of children. A consensus could be
found around the understanding that a household is overcrowded when the number in it
exceeds the number of bed spaces, "there were too many people for the space", or where
children of different sexes over the age of 10, have to share a bedroom.
The focus groups held the same understanding including that of children's ages; however,
some participants within the groups made the point that Oldham Council did not have
overcrowding as a priority for the allocation of council houses.
A point made in one of the interviews is that it was not a simple arithmetic definition, and
there was an acceptance that higher levels of overcrowding are acceptable in some
cultures and in some neighbourhoods.
When we asked focus group participants about the term 'under-occupation', they tended to
think in terms of numbers of people in a home and gave examples rather than definitions.
Descriptions offered included "people in a home which is too big for them", "having more
bedrooms than necessary" and "having spare bedrooms that are not used on a permanent
basis". People saw it as mainly affecting people whose families no longer lived with them.
This was mainly older people but also people left in the family home after a relationship
breakdown. It was seen as mainly an issue in the white population and also for people in
high income groups living in "aspirational" housing.
2.2
Statistical evidence
The Information & Research team in Oldham Council’s Adult and Community Services
produced a useful background report1 on overcrowding and under-occupation. This
predominantly uses data from the 2001 census and First Choice Homes Oldham's (FCHO)
housing register. It compares Oldham with authorities in Greater Manchester and looks at
hotspots of overcrowding and under-occupation. We have added to this evidence base
with our own analysis of 2001 census data.
1
Oldham Council, Information & Research (Sept 2007) Making the best use of housing in Oldham: Background research
to support commissioning process
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2.2.1
Overcrowding
The 2001 census shows that 7% of Oldham's housing stock is overcrowded, some 6,400
households. This is the second highest level of overcrowding in Greater Manchester. By
tenure, overcrowding is highest in private renting (and those living rent free), affecting 13%
of such households (Table 2.1). Owner occupation, in contrast, has the lowest levels of
overcrowding, affecting just 5% of households.
Table 2.1 Overcrowding by tenure, 2001
Tenure
Number
Percentage of tenure
Private rented and other rented
1,003
13.18
Social rented
2,311
11.48
Owner occupied
3,097
5.15
Total
6,411
7.30
Source: NOMIS, 2001 Census, Standard table SO53
The background report by Oldham Council also identified hotspots using the 2001 census
(Figure 2.1). For overcrowding, these are the wards of Coldhurst, Werneth and St Mary’s,
which mostly fall within the HMR area. This is corroborated by housing applicants to
FCHO.
Figure 2.1 Overcrowding in Oldham, 2001 (using 2004 ward estimates)
Source: Oldham Council, Information & Research (Sept 2007)
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The map below shows the concentration of overcrowding among private rented
households at lower level super output area (Figure 2.2). The image shows the highest
concentrations of overcrowding in this tenure (in red) are in Holden Fold and Heyside,
outside the HMR boundary, along with Busk and Westwood inside it. In these areas, over
40% of private rented households are overcrowded. The next highest concentrations of
overcrowding in this tenure are within the HMR boundary.
Figure 2.2 Overcrowding among private rented households, 2001
Source: NOMIS, 2001 Census, Standard table SO53
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The following map shows the concentration of overcrowding among social rented
households, again at lower level super output area (Figure 2.3). The concentrations of
overcrowding are in different locations to those found for private tenants. Instead, they are
in Dobcross, Mills Hill and in Coppice. In these areas, more than half of social rented
households are overcrowded. There is also a relatively high level of overcrowding among
social tenants (the orange areas) scattered around Oldham, both inside and outside the
HMR boundary.
Figure 2.3 Overcrowding among social rented households, 2001
Source: NOMIS, 2001 Census, Standard table SO53
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Looking at the ethnicity of overcrowded households shows how it disproportionately affects
Pakistani and Bangladeshi households, with 39% overcrowded in 2001. This is
concentrated within the HMR area (Figure 2.4), particularly the following wards: Coldhurst
(56% overcrowded), Alexandra (38%), Werneth (36%) and St Mary's (36%). (The lowest
spatial level for data on overcrowding by ethnicity is ward, not super output area.)
Figure 2.4 Overcrowding among Pakistani and Bangladeshi households, 2001
Source: NOMIS, 2001 Census, Standard table S124
Census data also lets you understand the household composition of overcrowded
households. Families make up over half of overcrowded households in the private rented
sector, RSL renting and council renting. Other households with dependent children, mostly
those with more than one family, make up a further significant proportion.
Among stakeholders and focus groups there are inconsistent views on what parts of
Oldham and what groups are affected by overcrowding.
There is a widespread view from stakeholders and focus group participants that areas
near to the town centre are most affected: Clarkwell, Westwood, Glodwick and Coppice.
Another view was that ward profiles say that it is a problem that affects all tenures, is an
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issue on council estates and is not restricted to any particular part of Oldham. Other
neighbourhoods mentioned were Werneth and Chadderton.
Clarkwell is a problem as it is an area with a disproportionate number of flats which are
considered by local housing management as unsuitable for families, but are occupied by
families, sometimes large families and sometimes with people moving in.
The general opinion is that overcrowding is worst in neighbourhoods with small terraced
properties. Focus group participants said that these are found all over Oldham, so thought
the problem was widespread. However, focus groups participants of all ethnicities thought
the Asian population was worst affected because of large families, and multi-generational
households. It also affects asylum seeker and refugee families. What is also general
across overcrowded households is that they are overwhelmingly on low incomes, without
the means to move. This also reinforces the link with private and social renting in
particular, though also to homeowners who cannot trade up to somewhere bigger.
The research by Oldham Council also showed how there is a correlation between areas
and household groups with high levels of overcrowding and those experiencing deprivation
on a number of indicators. This included lacking qualifications, poor employment records,
limiting life-long illness and health and social care needs. Some of these issues are clearly
related to overcrowding – many discussed below – but this evidence does not necessarily
show a causal relationship with overcrowding.
2.2.2
Under-occupation
Under-occupation affects a much higher number of households in Oldham than
overcrowding does, some 34,200, representing 39% of all stock. This level is in the middle
among Greater Manchester authorities. Almost half (49%) of owner occupied properties
are under-occupied, followed by private renting (22%), with social renting the least underoccupied (16%) (Table 2.2).
Table 2.2 Under-occupation by tenure, 2001
Number
Owner occupied
% of tenure
29,255
48.69
Private rented and other rented
1,702
22.37
Social rented
3,204
15.92
34,161
38.90
Total
Source: NOMIS, 2001 Census, Standard table SO53
In absolute terms, owner occupiers make up almost all the under-occupied households in
Oldham. These are concentrated almost exclusively outside the HMR area (Figure 2.5),
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particularly in Saddleworth East (70%), Saddleworth West (63%), Royton North (58%),
Chadderton North (53%), Crompton (53%) and Chadderton Central (50%).
Figure 2.5 Under-occupation among owner occupiers, 2001
Source: NOMIS, 2001 Census, Standard table S053
Census data shows the household composition of under-occupied households: married
couple households with no children make up the single biggest group of under-occupied
homeowners, followed by married couples with children, then one person households,
whether of pensionable age or otherwise. Yet in private renting and council renting, single
person households (non-pensioner, then pensioner) are the largest groups of underoccupied households in these tenures.
The concentration of under-occupation among households with somebody aged 65 or over
(Figure 2.6) shows the following hotspots: Saddleworth East (61%), Saddleworth West
(53%) and Chadderton South (51%), again almost exclusively outside the HMR area.
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Figure 2.6 Under-occupation among people aged 65 or more, 2001
Source: NOMIS, 2001 Census, Standard table S054
There was no particular consensus on which areas are affected. Some housing managers
saw it as being widespread across the larger estates with family houses, particularly those
built in the 1950s. It was suggested that this was because estates on completion were first
occupied by families of a similar age profile. In those estates built in the 1960s and 1970s
the children will have moved on leaving couples and single people occupying. For those
properties built in the 1920s and 1930s, this cycle will have had time to re-start and be
staggered over a longer time period providing a more balanced household and age profile.
A respondent who worked with single people saw it as an issue in the larger flats around
the town centre. Others saw it as a phenomenon of the most popular areas with examples
given of Saddleworth, Failsworth and Royton.
2.3
Summary of findings
• Overcrowding and under-occupation tend to affect different and distinct parts of the
housing market.
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• Clear concentrations of overcrowding can be identified, particularly within the HMR
area.
• While individual incidence of overcrowding in households may be more widespread
across the borough, the concentrations of overcrowding in some areas compound the
issue with overcrowded neighbourhoods.
• There is confusion over the different legal and technical definitions of overcrowding –
and how these are applied in practice.
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3.0
Overcrowding
This section presents the bulk of the evidence gathered through interviews with
stakeholders and focus groups with residents. It considers the causes of overcrowding,
then looks at how this affects members of the household and its relationship to the wider
community.
3.1
Causes of overcrowding
Overriding all cited causes of overcrowding is the fact that the affected household is
unable to or does not choose to move to larger accommodation to reduce or overcome the
overcrowding. The main reason offered was that people were not in an economic position
to move, and it was also noted that households could only afford small houses. There was
also a suggestion that households were reluctant to leave areas where they had social
networks and were near to their places of worship.
Beyond this, stakeholders identified three other causes for overcrowding:
• Family growth through the birth of more children: The home may have been an
adequate size when the household moved in, but it is too small to accommodate more
children. "Most social landlords tend to shoehorn households into accommodation". This
was recognised as a necessity given the size of the waiting list.
• Other people joining the household: Some may be homeless locally or they may be
moving from abroad. This may be unplanned and happen with little notice, eg after a
relationship breakdown. This is not restricted to family homes and is a phenomenon
which was reported to occur in sheltered accommodation.
• Health: Another often unforeseen cause is in regard to the health of the household. For
older couples in particular some health conditions eg involving sleeplessness or
personal care needs mean that a separate bedroom is necessary. Some disabilities are
also better managed with and extra bedroom, which can lead to overcrowding if these
are not available.
The focus groups although a lot more anecdotal in their discussion, also identified family
growth, friends moving in and the inability to move as causes of overcrowding. Another
contributory element offered by the BME focus group was the practice of older people
living with their children in three-generation households.
The small size of terraced property, and of new build, was mentioned as a contributory
factor. A reduction in supply was also raised as an issue, including the demolition of
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properties in the housing market renewal area, and the purchase of properties under-the
right to buy which reduced the supply of social housing. The option of private renting was
seen as expensive, with a requirement of paying a bond so people end up staying with
family members.
3.2
Space or bedrooms
There was also discussion in focus groups about the relative importance of having enough
bedrooms or having more space around the home. There was not a straightforward
answer as participants thought that overcrowded bedrooms meant that living room space
was also under-pressure and overcrowded. A member of one focus group had family
members sleeping in the living room.
The provision of new houses was criticised in terms of numbers and space standards.
There was qualified praise for some developments.
"Only four houses have been built right in Glodwick. Mine is one. My hall space is
big and my living space is good."
Overcrowding among BME residents focus group
3.3
Emotional impact on household
The impact of overcrowding in terms of psychological stress was strongly acknowledged
by housing professionals and was the main reason why they thought it important
overcrowding should be tackled.
Stress was a matter of degrees. It was seen by stakeholders as sometimes so extreme in
overcrowded households that it became a child welfare or child protection issue with
statutory intervention necessary. Overcrowding was appreciated as a source of low level
stress, particularly when people have moved in with a household, and also it was observed
that change in circumstances such a relationship breakdown and health decline cause
stress in themselves, so stress is compounded.
People have their routines. There is a comfort factor which is disturbed.
Housing association officer
Members of focus groups described the affect of overcrowding on their domestic life.
There was a widespread problem of sheer numbers of people and what impact that had on
the household. Storage space was universally seen as inadequate. This was seen as
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particular problem in newer houses which people reported as "smaller anyway". They also
reported problems over issues like what to watch on television in a three-generation
household.
Extra demand is made on bathrooms. This is a particular problem when somebody is ill or
with a lot of children.
3.4
Privacy
The number of household members impacted on access to privacy, with a lack of privacy
for all members. Participants at the focus groups reported that noise was a problem. When
people have moved into the house there are also issues of allocation of bed spaces. This
is a problem with children of different sexes and also with older people or people with
illnesses. A common measure is that an adult member of the household has to sleep in a
living room. There was also concern that there was an increased risk of "germs
spreading". A stakeholder identified health concerns around increased condensation and
asthma.
Reduced privacy was a problem focus group members were concerned about in relation to
children. Most concern in terms of household was expressed by stakeholders and focus
groups in relation to impact on children and older people.
3.5
Affect on children
Children of different ages want to do different things, and the freedom of children to play is
restricted by the numbers of people in a house. Stakeholders described the phenomenon
of teenagers having to go outside the house for space and peace. The stakeholders
interviewed and members of the focus group recognised the difficulties of children or
teenagers have in finding a quiet place to study or do homework. There was a sentiment
expressed in a focus group that overcrowding was unfair on children because of the
restrictions in freedom to play, study and have space to themselves. They – or their
parents – also were reluctant to bring friends home.
3.6
Affect on elderly households
Older people were also seen as being harmed by overcrowding. A number of the members
of the focus groups lived in households where older people have moved in. This is a
problem when somebody is seriously ill as they have little privacy; also the older people
have been used to having their own home and so too suffer stress of living in a larger
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household in somebody else's home. Older people in larger households were often not in
good enough health to be able to go outside to find some quiet.
The situation is seen the other way around when the issue of an adult child moving into
their parent's home, especially if this home is a one-bedroom flat in a sheltered scheme.
The stakeholder who was a housing manager said this was an increasingly common
phenomenon. This not only caused stress to both parties but also disturbed some other
residents of the scheme who felt uncomfortable with a "stranger" living among them, albeit
in a resident's own flat.
3.7
Links with homelessness
Stakeholders observed that priority for rehousing went to homeless households and those
households who are required to move because of clearance plans, particularly in
neighbourhoods within the housing market renewal pathfinder. This meant that
overcrowding was a much lower priority in regard to rehousing. The pressure on housing
stock means that allocations of social housing can rarely allow for household growth.
Families are shoe horned, or sometimes even moved into a situation which remains
overcrowded, where although pressure is relieved the household continues to be
technically overcrowded. An exception to this was the rehousing of single homeless
people into two-bedroom flats which are otherwise difficult to let.
This has been a major shift between five and ten years when homelessness could be
addressed substantially by a supply of homes, although not necessarily of good quality or
in popular locations. The major historical housing management problem of the last 25
years has been low demand. With supply now reduced, partly because of the HMR
programme, the problem has moved to managing demand with homelessness and
overcrowding as major challenges.
There was also an issue of lack of awareness of housing choices and how households
within a large overcrowded household might be considered priority homeless. This was
sometimes complicated by family dynamics and a reluctance to present as homeless as
this might be seen as fracturing the family unit.
3.8
Effect on wider community
So far, we have focused on the effects of overcrowding on the household. However, it also
has an impact on the wider community.
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A number of the stakeholders were housing managers with frontline responsibilities. They
saw a lot of knock-on effects of overcrowding. There are more complaints about anti-social
behaviour, particularly with more children and young people on the street, many of whom
are escaping overcrowded domestic environments. This in turn leads to a bad external
perception of an area. When added to issues like increased pressure on environmental
management, eg, parking, keeping an area clean and litter free, it can lead to a downward
spiral in perception of the area and its residents.
An indirect affect identified by one stakeholder is that the issue of overcrowding is seen as
a problem by the wider community, and seen as an Asian problem, by some. This means
that when developments are built with large houses for large families, some people see
this as discrimination on behalf of Asian households, which increases resentment,
including among some focus group participants.
This is an indication that tackling overcrowding might make a contribution to improving
health and educational attainment in these areas and households, but also that health care
and educational provision need to consider the impact of overcrowding on the capacity of
residents to fully benefit from services.
3.9
Summary of findings
• Overcrowding can affect a range of property types, including sheltered housing.
• Overcrowding tends to be triggered by key life-cycle points: birth, illness and family
'shocks' eg family break-up or migration.
• The most negative impacts are observed on children and older people.
• Overcrowding has a serious impact on quality of life and there is a particular issue
regarding the longer term affect on children, in terms of education outcomes for
example.
• There is a perception that there are limited options available to resolve the household
situation, in either the social rented or private rented sectors. There is some concern
over the priority given to overcrowded households in the allocations system.
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4.0
Under-occupation
This section presents the evidence about under-occupation, again identifying its causes
and looking at the affect on households and the wider community.
4.1
Causes of under-occupation
The causes of under-occupation were several. Most stakeholder looked at the situation
where children had moved out of a family home leaving a couple or a single person in
occupation. It is also an outcome of some relationship breakdowns or widowhood, male
or female.
Comment was consistently made that under-occupation is not seen as a problem in the
private sector. People have high aspirations for space, they like the status that goes with
having a big home, a garden and garage. People in the private sector do not talk of underoccupation. Some people under-occupy deliberately when they move to a new house,
always wanting to have at least one spare bedroom plus space for other activities. A
challenging comment was: "are you asking Cristiano Ronaldo if his house is underoccupied?"
In rented housing, an example was given of single people being offered two-bedroom
accommodation which was relatively unpopular with larger households. However, this
would not technically be defined as under-occupied since there is just one spare bedroom,
not two.
4.2
Effect on household
Positive aspects of under-occupation offered having "flexibility and facilities" including
having a spare bedroom for visitors or space for an office or hobbies. Also "when you are
used to space, you want to keep it". Friends and relatives can come and stay, there is
space for children to visit and play.
Negative effects were much more readily described by respondents in interviews and
members of focus groups. The cost of running a home was the one most often referred to.
Fuel bills and council tax are identified as higher than in small accommodation and that
housing benefit is not generally given for spare rooms. There was also a general view that
under-occupation affected older people most, so there were problems of increasing
isolation and loneliness, as well as decreasing ability to cope with the maintenance
challenges of a home.
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4.3
Affect on wider community
A view was given by a stakeholder that under-occupation means a family can grow in a
house, and can help keep a community stable. Also, from the perspective of a housing
manager, under-occupied houses are easier to manage.
There were a much larger number of examples of negative impacts of under-occupation.
There can be clashes of lifestyle of older people and children and families. Estates were
generally built for families, but older people stay on in the family home, so when the
original tenants reach between the ages of 50 and 70, there is less of "balance" in the
community with a skew towards older residents. This can have a stilting effect on the
community. This changes as older people die or leave and families move into the homes
vacated. However if these changes in profile happen rapidly within an area this can
provide a particular challenge – with a polarised household profile of residents who are
either older and longstanding or younger with less neighbourhood ties.
Comments were made in terms of under-occupied homes reducing the potential supply for
families. They tie up property which could otherwise be used by the wider community,
which can cause resentment and stress for those who would benefit from a larger
property.
4.4
Summary of findings
• There is a tension between a market aspiration to purchase as large house as can be
afforded and making the most efficient use of stock within the housing market by
balancing occupation according to need or household profile.
• Long-term occupation of homes by households reduces turnover and provides stability.
However, this will result in periods of under-occupation associated with life-cycles –
prior to having children or after children leave home.
• Negative affects of under-occupation for some households is recognised in terms of the
cost of heating and home maintenance. This is a particular issue for older underoccupiers.
• While not linked to under-occupation by itself, an older population in estates of family
housing can result in a lack of community balance – and there can be rapid changes of
the profile of a neighbourhood if one cohort dies or leaves their home at a similar time.
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5.0
Tackling the issues
It is too simplistic to believe that freeing under-occupied properties will solve the
overcrowding problem. The numbers freed will be small and any sense of compulsion or
pressure to move was seen by most research participants as unacceptable. However,
there is a wish and a need to move to more appropriate accommodation.
This section considers some of the ways of tackling overcrowding and under-occupation
suggested by stakeholders and residents.
5.1
Overcrowding
There were a number of suggestions made by stakeholders and residents in regard to
tackling overcrowding. They can be categorised into three groups.
5.1.1
Increase supply of houses
Larger houses are required. Housing associations need to continue to take the needs of a
neighbourhood into account in planning the mix of new schemes. It was acknowledged by
stakeholders that many neighbourhoods suffering from overcrowding were already densely
populated and developed. However it was clear from those stakeholders who discussed
development that houses with gardens and parking provision were essential.
Use of the private rented sector was mentioned as a source of a supply of homes of a
reasonable quality. There were difficulties, however, not only in the supply of homes but
also in terms of access to the sector, with landlords asking for bonds and running credit
checks. FCHO runs a bond scheme, but it is limited to landlords who will accept a
guarantee rather than immediate cash. In addition, the statistics show that overcrowding is
highest in the private rented sector.
Focus groups thought that there was potential to use empty properties. Examples were
given of properties in the HMR area which were described as having been empty for two
years.
There were also suggestions of converting garages into bedrooms or granny annexes, and
loft conversions. It was suggested that interest-free loans, or equity financing be used to
help owners extend their properties. This suggestion benefits from households being able
to remain in their community, rather than having to move out to a bigger property.
In regard to new build, the BME focus group said that new buildings should be built with
the Asian community in mind. They said that homes built over the last few years to replace
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homes that were cleared are too expensive for local people to afford. There should be
more homes built for rent, they should be built with a spacious downstairs and with six
bedrooms.
An issue which was raised by members of a couple of focus groups was about the
possibility of encouraging people in under-occupied family homes to move to smaller
accommodation. One person said that it could be part of a tenancy agreement that people
have to move out when their children leave; however, there was a strong feeling against
forcing people to move. "Moves should be exactly what households want" with people able
to decide themselves. Also that you "can't move people out of the houses they have been
in for ages". In addition, any large properties made available may not be in the areas
desired by overcrowded households or may not be affordable for them.
5.1.2
Provide better rehousing advice
There was a view among housing managers that some people were unaware of their
options. Some are unaware that they can register for rehousing. This would not directly
address the rehousing of overcrowded households; however, it may encourage discussion
within the larger household about rehousing of individuals within it.
There was a general awareness of the housing allocations process, though, among focus
group members who lived in overcrowded houses. This was understandable as they were
in need of rehousing.
Housing managers, on the other hand, saw a lack of awareness of housing options as a
barrier to tackling overcrowding. A number identified an issue of lack of knowledge of
overcrowding within their organisations. There was sometimes a problem where local
housing officers had such an extensive patch that they would not always know which
tenants lived in overcrowded circumstances. It was speculated that in some
neighbourhoods it would be more appropriate to have smaller patches. This would mean
that officers would be able to offer much more appropriate support and advice to
households, based on much more detailed knowledge of their circumstances. This might
help address an issue identified by the BME group that most people have "language
barriers, they can't speak, they don't know who to approach and they just can't get out".
5.1.3
Offer scattered neighbourhood alternatives to one home for a multi-generational
household
A barrier quoted by a number of stakeholders was the reluctance of some overcrowded
households, particularly Asian households, to consider rehousing outside their home
neighbourhoods. There was a compounding issue of adult households within the extended
family who do not wish to be rehoused separately. Because of this reluctance the offer of
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scattered housing alternatives may have little likelihood of significant impact. However, it is
an option to be explored and make available to households.
The BME focus group said that there needs to be sensitivity about moving Asian families,
and not moving them to "racist areas". Although these views may not be representative of
all BME residents, it shows that some are wary of living in certain parts of Oldham.
5.2
Under-occupation
Across the focus groups and the interviews there was negligible support for any idea of
forcing people to move from under-occupied homes. Some people questioned the notion
of under-occupation being a problem, others looked at ideas of better supporting people in
their under-occupied homes. Most looked at ideas of offering incentives and otherwise
encouraging people to move from their under-occupied homes to smaller accommodation.
There were ideas of cash incentives and help with moving. Incentives could cover the cost
of moving, buying new furniture or decorating, for example. However, comment was made
several times that incentives to move might be useful but only if there was a home that
people wanted to move into.
Hope was expressed that the remodelling and refurbishment of former council sheltered
schemes by Housing 21 would go well and that a marketing strategy be put together which
would be targeted at older people under-occupying family homes.
Some housing associations already offer more points for under-occupation. People could
be given higher priority in the housing allocations system to move out of family
accommodation. Housing managers said they would generally work flexibly to facilitate the
move of a single person out of a home suitable for a family.
Some housing managers said that they felt they did not have a good knowledge of the
extent of under-occupation in their stock. One suggested that they use a benefit take-up
survey to try to map under-occupation. For older people this would mean that they would
be given advice to maximise their benefits, but where possible they could start
conversations to explore interest in moving to smaller accommodation.
An observation was made that the issue needs to be tackled in the owner occupied sector
as well as the rented sector. People need more choices. A lot of people hang onto big
houses too long, but they look at alternatives and they don't like them. They want attractive
smaller accommodation. A respondent reported that the Oldham Rochdale Pathfinder has
found that 20% of demand for new-build properties is from older households who wish to
move to smaller accommodation. They want a smaller house but they also want a garden
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and a garage. Older people still have aspirations and attractive alternatives would tempt
them out. Up to the age of 70 people have housing aspirations, but after age 80 it
becomes much more difficult to move.
"Designer living is wanted by older people."
Housing association officer
Focus groups also concentrated on the offer available to under-occupiers. It had to be
attractive. Bungalows were mentioned a number of times. One member suggested gated
communities for over 50s, as in America, might be popular with entertainment and services
available. Accommodation where people had their independence and the opportunity to
interact was also proposed.
The main barrier to tackling under-occupation was the lack of an attractive alternative to
the larger home. Another barrier as in overcrowding is that people wanted to stay locally
"in their own area". And there was also a challenging comment about whether smaller
accommodation was much cheaper to run than larger accommodation.
Another major barrier is the reluctance of people to move. People "do not want to move
away from where they have lived all their lives". They want to "keep the same doctor".
"They know where they are." People were not concerned about the size of their current
accommodation, rather about its suitability in terms of amenities, eg toilets and bathrooms
downstairs.
5.3
Summary of findings
• It is too simplistic to believe that freeing under-occupied properties will solve the
overcrowding problem.
• There are further opportunities to test policy responses and to share good practice. For
example in sharing what works in dealing with under-occupation via the allocations
process through incentives, additional housing points or marketing.
• It will be important to trial and evaluate the impact of initiatives such as scattering
families within a neighbourhood or targeting older people to discuss alternative housing
options.
• There is a need for tailored options information and in relation to overcrowding provision
of information and approaches that are sensitive to BME needs.
• There would be resistance to any kind of coercion (eg tenancy agreement changes) in
terms of moving under-occupied households.
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• It is essential to have realistic and desirable alternative housing options to offer before
considering mechanisms to facilitate moving.
• There is an important role for RSLs and developers in providing the kind of
accommodation that will meet the needs of, and be attractive to, overcrowded or underoccupied households.
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6.0
Conclusions
The aim of the work is to help the council develop a policy on overcrowding and underoccupation, feed into the Local Area Agreement and link into the key priorities in the
Housing Strategy. This section summarises the key findings from the project, draws out
the policy and strategic issues, then offers some recommendations.
6.1
Summary of key findings
• Overcrowding and under-occupation tend to affect different and distinct parts of the
housing market.
• Clear concentrations of overcrowding can be identified, particularly within the HMR
area.
• While individual incidence of overcrowding in households may be more widespread
across the borough, the concentrations of overcrowding in some areas compound the
issue with overcrowded neighbourhoods.
• There is confusion over the different legal and technical definitions of overcrowding –
and how these are applied in practice.
• Overcrowding can affect a range of property types, including sheltered housing.
• Overcrowding tends to be triggered by key life-cycle points: birth, illness and family
'shocks' eg family break-up or migration.
• The most negative impacts are observed on children and older people.
• Overcrowding has a serious impact on quality of life and there is a particular issue
regarding the longer term affect on children, in terms of education outcomes for
example.
• There is a perception that there are limited options available to resolve the household
situation, in either the social rented or private rented sectors. There is some concern
over the priority given to overcrowded households in the allocations system.
• There is a tension between a market aspiration to purchase as large house as can be
afforded and making the most efficient use of stock within the housing market by
balancing occupation according to need or household profile.
• Long-term occupation of homes by households reduces turnover and provides stability.
However, this will result in periods of under-occupation associated with life-cycles –
prior to having children or after children leave home.
• Negative affects of under-occupation for some households is recognised in terms of the
cost of heating and home maintenance. This is a particular issue for older underoccupiers.
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• While not linked to under-occupation by itself, an older population in estates of family
housing can result in a lack of community balance – and there can be rapid changes of
the profile of a neighbourhood if one cohort dies or leaves their home at a similar time.
• It is too simplistic to believe that freeing under-occupied properties will solve the
overcrowding problem.
• There are further opportunities to test policy responses and to share good practice. For
example in sharing what works in dealing with under-occupation via the allocations
process through incentives, additional housing points or marketing.
• It will be important to trial and evaluate the impact of initiatives such as scattering
families within a neighbourhood or targeting older people to discuss alternative housing
options.
• There is a need for tailored options information and in relation to overcrowding provision
of information and approaches that are sensitive to BME needs.
• There would be resistance to any kind of coercion (eg tenancy agreement changes) in
terms of moving under-occupied households.
• It is essential to have realistic and desirable alternative housing options to offer before
considering mechanisms to facilitate moving.
• There is an important role for RSLs and developers in providing the kind of
accommodation that will meet the needs of, and be attractive to, overcrowded or underoccupied households.
6.2
Key policy and strategy issues
Overcrowding can be an acute problem for households experiencing it, yet it is not
straightforward to resolve. Simply forcing people in under-occupied houses to move
somewhere smaller is not possible or desirable. But there are a number of policy and
strategy key issues that can be addressed.
There is widespread confusion of the term ‘overcrowding’, including among stakeholders
working in housing management. Greater clarity over the term and a consensus among
different agencies involved would help. Linked to this is the need either to change
allocation policies in social housing to enhance overcrowding and under-occupation or to
make the policy more transparent and better publicised.
Looking at the longer term, new homes should be built that are larger, take onboard the
needs of Asian households – including understanding how these might change in future –
and located within existing neighbourhoods so people can continue to live within their own
community if they wish to.
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Any efforts to target overcrowding should be carried out where there are concentrations of
terraced houses, particularly in the HMR area, in Pakistani and Bangladeshi areas and
with private tenants. In contrast, any measures around under-occupation should target
owner occupiers, the elderly and focus on Saddleworth, Chadderton, Royton and
Crompton.
Overcrowding has a negative affect on individual households but it also impacts on the
wider community. This is where a housing issue become a larger problem. It can impact
on children’s educational attainment, although it is too simplistic to blame just
overcrowding for this. But young people wanting space outside an overcrowded home can
lead to increased complaints about anti-social behaviour, which in turn lead to a bad
external perception of an area and increased pressure on environmental management and
public services. These connections are therefore potential lever for engaging partners in
other agencies and combining budgets.
6.3
Recommendations
This project has been about making the best use of Oldham’s housing stock. But we must
reiterate that it is too simplistic to recommend freeing under-occupied houses to
accommodate overcrowded families. There is some place for this, but its impact will be
limited. Instead, we offer some more workable recommendations.
1
A clearer definition of ‘overcrowding’ should be drawn up and agreed between the council
and RSLs.
2
An information paper summarising this report and clarifying any questions should be sent
out to frontline staff. This should also encourage agencies, particularly RSLs, to use their
databases to better understand overcrowding and under-occupation among their
residents.
3
Housing advisers should continue to engage with overcrowded households and offer the
option of local rehousing of suitable members within the larger households. For Asian
households, care must be taken with possible rehousing options, ensuring that properties
are available either within the same neighbourhood or, if in new areas, that the fear of
racism is overcome.
4
The council should give greater support to its bond scheme and should publicise the
scheme, giving people with little savings the opportunity to move to less crowded housing.
There is also potential to use empty properties alongside the bond scheme and other
private sector initiatives, including the Empty Property Strategy, to increase the availability
of properties.
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5
The council and partners should seriously consider extending a financial scheme, such as
loans or charges on a property, to help owner occupiers and private landlords to extend
their existing home to tackle overcrowding.
6
Any future housing needs studies should particularly target the needs and aspirations of
older households, if such work has not already taken place. Findings should then inform
the planning of age-related housing across a range of tenures in Oldham.
7
A marketing campaign should be aimed at informing older households about the choice of
housing available to them, along with guidance and support offered if people choose to
move to a smaller property.
8
Property developers and developing RSLs should be encouraged to build larger
properties, including for affordable housing, both inside localities affected by overcrowding
and elsewhere in Oldham. The aim should be to provide a mix of types and sizes of
housing within all local housing markets, giving people the opportunity to trade up and
trade down.
9
Further research should examine emerging good practice from the local authorities piloting
initiatives to tackle overcrowding. This includes Manchester Council, providing a local
peer.
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Annex One: Stakeholder interview
topic guide
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Introduction
We have been commissioned by Oldham Council to investigate overcrowding and underoccupancy to help inform their future policy. ECOTEC is a private research company with
experience of working in Oldham and Greater Manchester, and with a dedicated housing
team.
We are interviewing 10 stakeholders from different agencies to look at the issues behind
overcrowding and under-occupation but also importantly to draw out ways to tackle these
issues in Oldham. We are also running focus groups with residents. Together, the findings
will form part of a report, though any comments will be anonymised and kept confidential.
This interview should take around 30–45 minutes.
Are you happy for me to record the interview?
Topic guide
[Not all participants are expected to answer all points. Some may be more familiar with
overcrowding than under-occupancy, or vice versa. However, the last section on ways to
tackle these issues is important for all stakeholders.]
Overcrowding
1
What is your understanding of the definition of 'overcrowding'? (Prompt: space standard,
bedroom standard) And 'severe overcrowding'?
2
What causes overcrowding? (Prompt: family size, lack of suitable homes, limited transfers/social
stock, limited transfer/allocation criteria)
3
What effects does overcrowding have on households? (Prompt: space for homework,
absence from school, limited space for children's play, older children spending time outside the
home; stress in family life, relationship problems; health, respiratory disease; employment or
training; deprivation)
4
What effects does overcrowding have on the wider community? (Prompt: absence from
school, poor health, domestic violence, high level of benefits, high use of public services, low levels
of employment, deprivation)
5
Does overcrowding affect any particular area in Oldham? What evidence do you have to
support this?
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6
Does overcrowding affect any particular groups? (Prompt: Pakistani and Bangladeshi
households, A8 migrants, lone parent families, private tenants, those living in terraced houses)
How does is affect these groups?
7
Should overcrowding be tackled? Why?
Under-occupation
8
What is your understanding of the term 'under-occupation'? (Prompt: space standard,
bedroom standard)
9
What causes under-occupation? (Prompt: change in household size, children moving out, death
of partner, household choice)
10 What effects does under-occupation have on households? (Prompt: positive: space for
friends and relatives to stay, remain in family home, security of own home; negative: affordability
of rent/mortgage, cost of heating home, difficulties maintaining home, loneliness, mobility problems
in the home)
11 What effects does under-occupation have on the wider community? (Prompt: positive:
availability of larger homes within borough, keep in touch with local neighbourhood/community;
negative: overcrowding, homelessness, health)
12 Does under-occupation affect any particular area in Oldham? What evidence do you have
to support this?
13 Does under-occupation affect any particular groups? (Prompt: elderly households, owner
occupiers) How does is affect these groups?
14 Should under-occupation be tackled? Why?
Tackling overcrowding and under-occupation
[Some people may answer these questions by talking about ways of tackling overcrowding
and under-occupancy combined. This is fine.]
15 Are you involved in any current work around overcrowding? Do you know of any other
existing measures to tackle the issue?
16 Can you suggest any other ways of tackling overcrowding? (Prompt: freeing under-occupied
properties, encouraging lodging, building more and larger properties, changing transfer/allocation
criteria, encouraging moves to other boroughs, adaptations to home, long-term PRS leasing,
setting space/bedroom standards for new homes, help moving the 'hidden homeless', freeing
empty properties, providing more facilities/services in these areas)
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17 Do you know of any good practice examples on overcrowding or successful initiatives
used elsewhere?
18 What barriers exist to tackling overcrowding? (Prompt: household preference, difficulty freeing
under-occupied properties, lack of suitably sized properties in Oldham, unclear definition of
'overcrowding', lack of interest by officers or council, cost)
19 Are you involved in any current work around under-occupation? Do you know of any other
existing measures to tackle the issue?
20 Can you suggest any other ways of tackling under-occupation? (Prompt: freeing underoccupied properties, help with equity release, cash incentives, paying expenses, encouraging
lodging, changing transfer/allocation criteria, working with RSLs, greater awareness of options for
moving, support and assistance during moves, help with removal arrangements, personal
assessment, mutual exchanges in social housing, help with fuel poverty, benefit take-up)
21 Do you know of any good practice examples on under-occupation or successful initiatives
used elsewhere?
22 What barriers exist to tackling under-occupation? (Prompt: household preference, difficulty
freeing under-occupied properties, lack of interest by officers or council, cost)
Close
Thank you for your time.
The results will help Oldham Council develop a policy on making the best use of housing
stock in the borough.
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Oldham best use of stock - final
Annex Two: Focus group topic guides
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Overcrowding topic guide
Thank you for coming today and taking part in this focus group.
We have been commissioned by Oldham Council to investigate making the best use of
housing stock in Oldham. This will help inform their future policy. We are running seven
focus groups with residents across Oldham to look at overcrowding and under-occupation.
Participants have been chosen in the streets by location and whether they experience
these issues.
This group will last about one hour. We will be talking about issues to do with
overcrowding, how this affects you and what can be done to tackle it. I have a list of
questions but am more interested in hearing what you have to say and for the discussion
to be open.
Before we start, I just wanted to cover some ground rules:
• All data will be treated confidentially and anonymously, so we won't put your name
against any comments
• Everybody's views are important, so please give everyone a chance to speak
• There are no right or wrong answers, so please respect everybody's views
• So we can all hear and take part, only one person should speak at any time
Is everybody happy for me to record the group, to help me write it up?
Topic guide: Overcrowding
1
Can you each take it in turn to introduce yourself: first name, household size and property
type and size (how many bedrooms)
2
What do you understand by the term 'overcrowding'? [Prompt: number of bedrooms, number
of rooms, number of people in household, age of household members, space requirements]
[After this question, explain:] By 'overcrowding', we generally mean needing one or more
extra bedrooms based on the number and age of household members (eg a separate
bedroom for couples, adults aged 21+, pair of children aged 10–20 of same sex, pair of
children aged under 10 regardless of sex). Although not having enough space around the
home (eg enough living/common rooms for the household size) is also a factor. The exact
definitions in Oldham are slightly different to this but may change as a result of this project.
3
Is it more important to have enough bedrooms or more space around your home? Why?
[Prompt: children/family happy to share, open-plan living]
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4
What causes overcrowding? [Prompt: household size, lack of suitable homes, limited
transfers/social stock]
5
How does overcrowding affect your household/family? [Prompt: space for homework,
absence from school, limited space for children's play, older children spending time outside the
home; stress in family life, relationship problems; health, respiratory disease; employment or
training]
6
Does overcrowding affect any particular area in Oldham? Why do you say this?
7
Does overcrowding affect any particular groups? [Prompt: Pakistani and Bangladeshi
households, lone parent families, private tenants, those living in terraced houses] How does it
affect these groups?
8
How can overcrowding be tackled? [Prompt: freeing under-occupied properties, encouraging
lodging, building more and larger properties, changing transfer/allocation criteria, encouraging
moves to other boroughs, adaptations to home, open space v more rooms, long-term private
sector leasing, setting space/bedroom standards for new homes, help moving the 'hidden
homeless', freeing empty properties, providing more public services to get out of home)
9
What are the barriers to tackling overcrowding? [Prompt: household preference, difficulty
freeing under-occupied properties, lack of suitably sized properties in Oldham, unclear definition of
'overcrowding', lack of interest by officers or council, cost]
End
Thank you for taking part.
We will write up this group and compare it with evidence from all groups. All comments will
be kept confidential and anonymous. We will the produce a report to help Oldham Council
develop a policy on making the best use of housing stock in the borough. We will also
produce a summary report to send to everybody who has taken part in the project.
To receive your 'thank-you' payment, please complete the form and bring this to me today.
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Oldham best use of stock - final
Under-occupation topic guide
Thank you for coming today and taking part in this focus group.
We have been commissioned by Oldham Council to investigate making the best use of
housing stock in Oldham. This will help inform their future policy. We are running seven
focus groups with residents across Oldham to look at overcrowding and under-occupation.
Participants have been chosen in the streets by location and whether they experience
these issues.
This group will last about one hour. We will be talking about issues to do with underoccupation, how this affects you and the wider community, and what can be done to tackle
it. I have a list of questions but am more interested in hearing what you have to say and for
the discussion to be open.
Before we start, I just wanted to cover some ground rules:
• All data will be treated confidentially and anonymously, so we won't put your name
against any comments
• Everybody's views are important, so please give everyone a chance to speak
• There are no right or wrong answers, so please respect everybody's views
• So we can all hear and take part, only one person should speak at any time
Is everybody happy for me to record the group, to help me write it up?
Topic guide: Under-occupation
1
Can you each take it in turn to introduce yourself: first name, household size and property
type and size (how many bedrooms)
2
What do you understand by the term 'under-occupation'? [Prompt: number of bedrooms,
number of people in household, use of space]
[After this question, explain:] By 'under-occupation', we mean having two spare bedrooms
based on the number and age of household members (eg a separate bedroom for
couples, adults aged 21+, pair of children aged 10–20 of same sex, pair of children aged
under 10 regardless of sex). The exact definitions in Oldham are slightly different to this
but may change as a result of this project.
3
What causes under-occupation? [Prompt: change in household size, children moving out, death
of partner, household choice]
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4
How does under-occupation affect your household? [Prompt: positive: space for friends and
relatives to stay, remain in family home, security of own home; negative: affordability of
rent/mortgage, cost of heating home, difficulties maintaining home, loneliness, mobility problems in
the home]
5
How does under-occupation affect the wider community? [Prompt: positive: availability of
larger homes within borough, keep in touch with local neighbourhood/community; negative:
overcrowding, homelessness, health]
6
Does under-occupation affect any particular area in Oldham? Why do you say this?
7
Does under-occupation affect any particular groups? [Prompt: elderly households, owner
occupiers] How does it affect these groups?
8
How can under-occupation be tackled? [Prompt: freeing under-occupied properties, help with
equity release, cash incentives, paying expenses, encouraging lodging, changing
transfer/allocation criteria, working with RSLs, greater awareness of options for moving, support
and assistance during moves, help with removal arrangements, personal assessment, mutual
exchanges in social housing]
9
What are the barriers to tackling under-occupation? [Prompt: household preference, difficulty
freeing under-occupied properties, lack of interest by officers or council, cost]
End
Thank you for taking part.
We will write up this group and compare it with evidence from all groups. All comments will
be kept confidential and anonymous. We will the produce a report to help Oldham Council
develop a policy on making the best use of housing stock in the borough. We will also
produce a summary report to send to everybody who has taken part in the project.
To receive your 'thank-you' payment, please complete the form and bring this to me today.
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Oldham best use of stock - final
Annex Three: Focus group
participants
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Here is a breakdown of the participants who took part in the eight focus groups.
Table A1 Focus group breakdown
Location
Topic
Number of
participants
Breakdown
Coppice
Community
Centre
Overcrowding
10
More women than men; mixed ages, though
most in their 30s and 40s; most white but three
Asian women
Hathershaw
Community
Centre
Overcrowding
8
More women than men; mixed ages, though
most in their 20s and 30s; mostly white but
some black or mixed race
Link Centre,
Oldham
Overcrowding
10
A few living in Royton but also in
Watersheddings, Lees, Failsworth and
Chadderton; all tenures
Pakistani
Community
Centre, Glodwick
Overcrowding
among BME
residents
8
All women; Bangladeshi, Pakistani and Somali;
mostly private or social rented, some owner
occupation
Ashwood House,
Westwood
Under-occupation
10
Various locations, including Chadderton and
Moorside; all tenures
Saddleworth Civic
Hall
Under-occupation
9
Mostly living in Uppermill but also in Moorside
and Springhead;
Link Centre,
Oldham
Under-occupation
among elderly
residents
20
Mainly women; all elderly; almost all white; all
tenures
Link Centre,
Oldham
Under-occupation
among elderly
residents
14
Mixed men and women; all elderly, mainly in
their 60s and 70s; almost all white; living in
various locations, including Failsworth, Fitton
Hill and Royton; all tenures
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