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Appendix 1 Evidence Base

Local authorities have powers to introduce selective licensing of privately rented homes to tackle issues in their areas. In this instance, North Lincolnshire Council is proposing to designate two selective licensing schemes based on the following grounds:

  • poor housing conditions;
  • high levels of crime;
  • a significant and persistent problem caused by anti-social behaviour;
  • high levels of migration;
  • high levels of deprivation.1

Based on government guidance, the outcomes of the designation for these five grounds should lead to:

  • a general improvement of housing conditions in the designated area;
  • a reduction in crime in the area;
  • a reduction in, or elimination, of anti-social behaviour (caused by tenants in the private sector) in the designated area;
  • the preservation or improvement in the economic or social conditions of the area during the lifetime of the designation and to ensure that a proper standard of management of privately rented housing is maintained and that properties do not become overcrowded;
  • a reduction of the problems with housing in the private rented sector contributing to the high level of deprivation.

1. Housing Conditions

Local housing authorities can address poor housing conditions through their powers in Part 1 of the Housing Act 2004. There may, however, be circumstances in which a significant number of properties in the private rented sector are in poor condition and are adversely affecting the character of the area and/or the health and safety of their occupants. In that case, as part of a wider strategy to tackle housing conditions, the local housing authority may consider introducing a selective licensing scheme so that it can prioritise enforcement action under Part 1 of the Act, whilst ensuring through licence conditions under Part 3 that the properties are properly managed to prevent further deterioration.

1.1 Housing tenure

Private rented sector housing is more prevalent in areas 1 and 2 (detailed in proposal and Appendix 2) than in most of the rest of North Lincolnshire.

Tenure of household % of all households

Tenure of households
(Source: ONS 2021 Census)

Private rented accommodation is the most common housing tenure type in both areas 1 and 2. In area 1, over half of all households reside in private rented sector properties, which is over three times higher than the North Lincolnshire average. While there are fewer privately rented properties in area 2, the level of private renting is still almost double the area average.

The level of private renting is also much higher in area 1 than in the rest of the Crosby & Park and Town wards, and the same is true for area 2 compared to the rest of the Frodingham ward. Both areas see a greater proportion of social rented properties compared to the North Lincolnshire average, and a notably lower rate of owner occupation.

1.2 Housing types

Area 1 has a higher proportion of households classed as ‘flats, maisonettes or apartments” (31.7%) than the average for its wards of Crosby & Park and Town, and well above the North Lincolnshire average (8.8%). For area 2, the proportion is 12%, which is below that for Frodingham ward (17.4%) but still higher than the North Lincolnshire average.

Accommodation type % of all households
Area Whole house or bungalow Flat, maisonette or apartment A caravan or other mobile or temporary structure
Area 1 68.2% 31.7% 0.0%
Area 2  88.0%  12.0%  0.0% 
Crosby & Park  86.7%  13.3%  0.1% 
Town  70.8%  29.1%  0.1% 
Frodingham  82.5%  17.4%  0.1% 
North Lincolnshire  90.5%  8.8%  0.8% 

(Source: ONS 2021 Census)

1.3 Overcrowding

The occupancy rating calculates whether a household’s accommodation is overcrowded, ideally occupied or under-occupied. The census data below measures overcrowding using the ‘bedroom standard’, which compares the number of bedrooms a household has with the number it needs based on the ages and relationships of household members.

An occupancy rating of:

  • -1 or less implies that a household’s accommodation has fewer bedrooms than required (overcrowded)
  • +1 or more implies that a household’s accommodation has more bedrooms than required (under-occupied)
  • 0 suggests that a household’s accommodation has an ideal number of bedrooms.
Area +2 or more +1 0 -1 -2 or more
Area 1  17.7%  29.0%  40.4%  9.3%  3.7% 
Area 2  27.2%  38.6%  31.3%  2.5%  0.3% 
Crosby & Park  33.8%  32.7%  27.8%  4.5%  1.2% 
Town  28.9%  32.7%  31.9%  5.0%  1.6% 
Frodingham  32.7%  33.6%  30.7%  2.7%  0.3% 
North Lincolnshire  43.9%  35.1%  19.0%  1.7%  0.3% 

Occupancy rating for bedrooms % of all households

(Source: ONS 2021 Census)

Area 1 has 13% of its households classed as overcrowded, higher than the percentages for its respective wards of Crosby & Park (5.7%) and Town (6.6%), and the North Lincolnshire average of 2.0%. Area 2 has 2.8% of its households classed as overcrowded, this is below the 3% for the Frodingham ward in which it is located, but higher than the North Lincolnshire average.

Nationally the 2021 census found that 4% of households in England and Wales (around 1.1 million) were overcrowded. Household overcrowding by region identified London as having the highest rate of overcrowding across England at 11% compared with Yorkshire and Humber at 3%.

Area 1 is therefore also above both the national average and above the highest regional average.

The 2021 census data also shows that overcrowding is more common amongst certain demographic groups. These include households with people from certain minority ethnic and religious groups, households with dependent children, and households with multiple disabled people.

Evidence suggests that overcrowding has a detrimental effect on household members’ physical and mental health. Research carried out for the National Housing Federation during 2022 refers to levels of overcrowding across all tenures as “One of the strongest indicators that all is not well in our housing system”.

1.4 Energy efficiency

Energy Performance Certificates (EPCs) are documents that assess and rate the energy efficiency of a building, providing information on its environmental impact and recommendations for improving energy performance. They are required when a building is constructed, sold or rented. There is a strong correlation between poor energy efficiency and non-decent homes in disrepair containing hazards such as serious damp and mould. In 2020 the English Housing Survey identified that 96% of homes with an energy efficiency rating (EER) of band F or G failed the Decent Homes Standard, in contrast to 7% of band C properties and 15% of band D properties not meeting the same standard of repair.

Poor housing quality has a significant and material impact on health and wellbeing. Condensation and damp in homes can lead to mould growth, and inhaling mould spores can cause allergic type reactions, the development or worsening of asthma, respiratory infections, coughs, wheezing and shortness of breath. Living in a cold home can worsen asthma and other respiratory illnesses and increase the risk of heart disease and cardiac events. It can also worsen musculoskeletal conditions such as arthritis. Cold or damp conditions can have a significant impact on mental health, with depression and anxiety more common among people living in these conditions. There are many reasons damp and mould might occur; in addition to inadequate heating, they are related to how a home is built. Poor insulation can lead to heat loss and to condensation; and poor ventilation means internal moisture-laden air cannot escape and is not replaced with fresh external air sufficiently quickly.

Currently private landlords must ensure their rental property meets Minimum Energy Efficiency Standards, (EPC rating of E or above). The Clean Growth Strategy published in October 2017 included several targets to improve energy efficiency, one of which was to upgrade all fuel poor homes to Energy Performance Certificate (EPC) band C by 2030 where “practical, cost-effective and affordable”. More recently in September 2023 the Prime Minister committed to reversing this proposal as part of a review of the Net Zero roadmap.

Energy performance certificates(Source: Internal NLC dataset) 

 When compared to the EPC band C, there is a higher concentration of energy inefficient properties in areas 1 and 2 compared to the North Lincolnshire average.  Area 1 has a particularly high proportion of less energy efficient buildings, with 77% of current EPCs rated D, E, F or G, compared to the North Lincolnshire average of 60.2%. With 64.3% of EPCs achieving a D, E, F or G rating, area 2 is more typical of North Lincolnshire as a whole.  

1.5 Housing standards Regulation in the Private Rented Sector

The Private Rented Sector (PRS) has worse housing conditions generally. The English Housing Survey (EHS) estimated that in 2021, 23% of PRS homes did not meet the Decent Home Standard, amounting to around 1 million homes. This compares with 13% of owner-occupied and 10% of social-rented homes.

The housing health and safety rating system (HHSRS) is a risk-based evaluation tool to help local authorities identify and protect against potential risks and hazards to health and safety from any deficiencies identified in dwellings. It was introduced under the Housing Act 2004 and involves a whole house inspection to identify up to 29 hazards which can be rated as Category 1 (high risk) and Category 2 (medium/lower risks). Evidence from the EHS identifies that the PRS properties are also more likely than other tenures to have at least one Category one hazard.

A more diverse range of households, including families with children, are now living in the private rented sector. For many it provides long-term accommodation even though it is often seen as having poor security of tenure. Problems with housing disrepair should always be reported to the landlord/managing agent. If the matter is not resolved, the tenant may request an inspection from the council who have enforcement powers in certain circumstances. The tenant also has the right to take their own action against a landlord.

Set out below is evidence relating to housing inspections and enforcement action taken under the Housing Act 2004 by the Environmental Health and Housing team. Areas with elevated rates of inspections and enforcement action can suggest, older housing stock, substandard property conditions and less responsive landlords.

Housing Inspections 2020-23

Area Total Rate per 1,000 population
Area 1  113  18.8 
Area 2  9  4.5 
Crosby & Park  105  7.1 
Town  81  8.4 
Frodingham  25  3.0 
North Lincolnshire  359  2.1 

(Source: Internal NLC dataset)

Housing Inspections heat map
Complaints that result in housing inspections lead to an assessment of property safety using the Housing Health and Safety Rating System to identify category 1 and category 2 hazards. Notably, the rate of housing inspections in area 1 is nearly nine times higher than the local average based upon rate per 1,000 head of population. In area 2, while inspections are less frequent, they still occur at a rate over twice that of the North Lincolnshire average. The heat map above provides a spatial and visual representation of the same data. Areas with high levels of housing inspections are coloured red within the boundary of area 1.

Housing Warrants Executed 2020-23

Area Total Rate per 1,000 population 
Area 1  51  8.5 
Area 2  6  3.0 
Crosby & Park  53  3.6 
Town  35  3.6 
Frodingham  13  1.6 
North Lincolnshire  197  1.2 

(Source: Internal NLC dataset)

Housing Warrants heat map

In cases where access to a property for inspection or essential repairs is denied or remains unattainable despite appropriate notice, the council will request a warrant from a magistrate, authorising forced entry if necessary. In area 1, the rate of warrants is seven times the North Lincolnshire average based upon rate per 1,000 head of population, and in area 2, it is also notably high, at nearly three times the North Lincolnshire average. The heat map above provides a spatial and visual representation of the same data. Areas with high levels of warrants executed are coloured red within the boundary of area 1.

The evidence above supports the growing national recognition that the PRS is increasingly used as a site within which organised criminals are carrying out illegal activities. These illegal activities can include the criminal business model of “rent to rent” involving lawful or unlawful sublets which can result in overcrowding and illegal Houses in Multiple Occupation. Illegal evictions can also take place to keep occupancy numbers down and avoid prosecution under the Housing Act 2004. The landlord may or may not be aware of these activities which may result in sham tenancy agreements, increased fire hazards associated with poor fire safety and electrical safety and increased anti-social behaviour associated with poor waste management at the property due to overcrowding.

Housing Improvement Notices 2020-23

Area Total Rate per 1,000 population
Area 1  360  60 
Area 2  19  10 
Crosby & Park  258  18 
Town  243  25 
Frodingham  46  6 
North Lincolnshire  825  5 

(Source: Internal NLC dataset)

Housing Improvement Notices heat map
A Housing Improvement Notice issued following a housing inspection under Part 1 of the Housing Act 2004 requires specified improvement works to be carried out within a defined period of time to remove a category 1 (high risk) or category 2 (medium to lower risk) hazards. Nearly 45% of Housing Improvement Notices issued in North Lincolnshire over a three-year period related to properties in area 1. There were 12 times the rate of notices issued in area 1 compared to the North Lincolnshire average per 1000 head of population). Although the number of notices issued in area 2 was lower, the rate remained twice the North Lincolnshire average. The heat map above provides a spatial and visual representation of the same data. Areas with highest levels of Housing Improvement Notices issued are coloured red within the boundary of area 1.

Prohibition Orders 2020-23

Area Total Rate per 1,000 population
Area 1  22  3.6 
Area 2  1  0.5 
Crosby & Park  20  1.4 
Town  21  2.2 
Frodingham  4  0.5 
North Lincolnshire  60  0.4 

(Source: Internal NLC dataset)

Prohibition Orders heat map
A prohibition order can be made where there are one or more Category 1 or Category 2 hazards. A prohibition order stops the use of part or all of a building, and/or restricts the type or number of people living there. The rate of prohibition orders is nine times greater than the North Lincolnshire average per 1000 population in area 1, while in area 2 there is a similar rate of prohibition orders issued to that seen in North Lincolnshire as a whole. The heat map above provides a spatial and visual representation of the same data.

Location of Category 1 Hazards Removed 2020-23

Area Total Rate per 1,000 population
Area 1  34  5.7 
Area 2  7  3.5 
Crosby & Park  33  2.2 
Town  23  2.4 
Frodingham  15  1.8 
North Lincolnshire  143  0.8 

(Source: Internal NLC dataset)

Category 1 hazards removed heat map
The Decent Homes Standard currently applies to Registered Social Landlords; however, the government is currently considering widening its application to the private rented sector. Dwellings fail to meet the Decent Home Standard where they contain one or more category 1 hazards. Therefore, the location of properties identified with one or more category 1 hazards is a useful proxy indicator to gauge the extent of and location of non-decent housing stock within the private rented sector in North Lincolnshire. In area 1, the extent of properties with category 1 hazards was seven times the North Lincolnshire average per 1000 population, underscoring the high prevalence of poor housing conditions in this area. Area 2 properties with category 1 hazards was four times the North Lincolnshire average. The heat map above provides a spatial and visual representation of the same data. Areas with highest number of properties with Category 1 hazards identified are coloured red.
Properties with Category 2 Hazards Reduced 2020-23
Area Total Rate per 1,000 population
Area 1  40  6.6 
Area 2  7  3.5 
Crosby & Park  35  2.4 
Town  26  2.7 
Frodingham  14  1.7 
North Lincolnshire  130  0.8 

(Source: Internal NLC dataset)

Category 2 hazards reduced heat map

The location of properties where one or more category 2 hazards have been identified is like that seen for category 1 hazards. In Area 1, properties with category 2 hazards have occurred at a rate over eight times higher than in North Lincolnshire per 1000 population and area 2 was over four times the North Lincolnshire average. Whilst Category 2 hazards are less serious that Category 1, they still indicate homes that are in disrepair and generally in poor condition. Category 2 hazards, will over time, deteriorate with the likelihood of them becoming category 1 hazards is left unaddressed.

1.6 Selective Licencing Interface with Part 1 Enforcement of the Housing Act 2004

When deciding whether poor housing conditions are relevant to the proposed designation, the council must proceed on the basis that, in general, they should seek to identify, remove or reduce category 1 or category 2 hazards in the house by the exercise of Part 1 enforcement functions and not by means of licence conditions. It must also consider if it’s appropriate that a significant number of properties in the specified area should be inspected to determine the presence of category 1 or 2 Hazards with a view to carrying out the necessary enforcement action.

This does not, however, prevent the council from imposing licence conditions relating to the installation or maintenance of facilities or equipment even if the same result could be achieved by the exercise of Part 1 functions, as the designation should contribute to an improvement in general housing conditions in the area.

The fact that licence conditions are imposed for a particular purpose that could be achieved by the exercise of Part 1 functions does not affect the way in which Part 1 functions can be subsequently exercised by the authority.

1.7 Conclusion

Selective licensing is intended to bring about an improvement of general housing conditions. As a result, it makes most sense to introduce this initiative in the parts of North Lincolnshire with the poorest housing conditions.

Landlords that fail to manage and maintain their homes have an unfair market advantage to those landlords that take the time to ensure their homes are well managed and maintained. Studies clearly show the link between the impact on adults, children, and families overall when they live in poor housing conditions. This in turn impacts on the area and the community negatively due to increasing levels of tenant turn over and a general lack of responsibility to the community around.

Area 1 has the poorest housing conditions across all six indicator datasets when compared with other areas of North Lincolnshire and the area average. It’s also the area of North Lincolnshire with some of the oldest housing within a concentrated area, bringing with it issues over size and energy efficiency, in addition to overall disrepair. The six datasets presented in this section illustrate significant number of properties in the private rented sector are in poor condition and are adversely affecting the health and safety of their occupants. This being the case the council now wants to tackle housing conditions, via the introduction of a selective licensing scheme in Area 1 so that it can prioritise enforcement action under Part 1 of the Act in this area, whilst ensuring through licence conditions under Part 3 that the properties are properly managed to prevent further deterioration and to contribute towards an improvement of general housing conditions.

The evidence of the extent of poor housing conditions in Area 2 is less than in area 1, although it still has a higher rate of higher poor housing conditions than the North Lincolnshire average on five out of the six indicators. The six datasets presented in this section evidence significant numbers of properties in the private rented sector are in poor condition and are adversely affecting the health and safety of their occupants. This being the case, the council now wants to tackle housing conditions, via the introduction of a selective licensing scheme in Area 2 so that it can prioritise enforcement action under Part 1 of the Act in this area, whilst ensuring through licence conditions under Part 3 that the properties are properly managed to prevent further deterioration and to contribute towards an improvement of general housing conditions.

2. Crime

In considering whether an area suffers from a high level of crime the council must consider whether the area has displayed a noticeable increase in crime over a relatively short period, such as in the previous 12 months; and whether the crime rate in the area is significantly higher than in other parts of North Lincolnshire or is higher than the national average. The extent of the impact of crime in the area affecting the local community will also be considered and the extent to which a selective licensing scheme can assist to address the problems.

Area Total Rate per 1,000 population
Area 1  2,444  407 
Area 2  336  168 
Crosby & Park  3,380  239 
Town  3,834  443 
Frodingham  2,102  254 
North Lincolnshire  27,091  160 

Total crimes heat map

When the population of each area is accounted for, crime in area 1 has consistently been more than 2.5 times higher the North Lincolnshire average over the past two years. The area has also had a higher crime rate than the average for the Crosby & Park ward, although crime has not always been as high as the average for the Town ward. This is because Town ward contains the whole of Scunthorpe town centre and its the highest crime area of North Lincolnshire, while area 1 only contains part of the town centre. 

 In area 2, the crime rate has still tended to be higher than most other parts of North Lincolnshire, although has not been significantly above the area wide average over the past two years. The Frodingham ward as a whole has tended to have a slightly higher crime rate than area 2.  

Crime types NL Jan 2022 - Dec 2023 pie chart
Crime types Area 1 - Jan 2022 - Dec 2023 pie chart
Crime types Area 2- Jan 2022 - Dec 2023 pie chart
The pie charts illustrate the distribution of various crime types in both selective licensing areas as well as in North Lincolnshire as a whole. The crime breakdown in all areas is broadly similar, with violence against the person the most prevalent category of crime. However, in area 2, this type of crime constitutes 50% of all crimes reported, surpassing both area 1 and the North Lincolnshire average where violence against the person are just below 40% of all crimes recorded. The subsequent three most frequently occurring crime types in all of the areas are theft, public order offences and arson.  

Crime trends January 2022 – December 2023

Area 2022 2023 Change 2022 vs 2023
Area 1  1,251  1,193  -4.6% 
Area 2  183  153  -16.4% 
Crosby & Park  1,645  1,735  +5.5% 
Town  1,865  1,969  +5.6% 
Frodingham  1,010  1,092  +8.1% 
North Lincolnshire  12,773  14,318  +12.1% 

(Source: Humberside Police)

Crime rose significantly across North Lincolnshire in 2023 compared to 2022. Across North Lincolnshire, there were over 1,500 more crimes recorded in 2023 compared to the previous year, an increase of 12%. Crime rates were also seen to increase in each of the wards covering the selective licensing areas. However, areas 1 and 2 themselves reversed this trend and saw a decline in crime in 2023. While the fall in crime in area 1 in 2023 compared to 2022 was only 4%, it was over 16% in area 2. However it should be noted the crime levels in area 1 in particular remained high in 2023, amongst the very highest in the whole of North Lincolnshire.

According to the Office for National Statistics crime figures covering the year to March 2023:

  • Crime in the Humberside Police area has increased by 10.2% against an average national increase of 4.5%.
  • Drug offences in the Humberside Police area have decreased by 24.5% against an average national decrease of 0.6%.
  • Theft offences increased by 23.4%, with thefts from a person increasing by 25.1%, burglary up by 13.3%, vehicle offences up by 18.3% and shop theft up by 37.9%.

Conclusion

The council has gathered evidence to consider whether areas 1 and 2 experience a high level of crime and whether the areas have displayed a noticeable increase in crime and whether the crime rate in the area is significantly higher than in other parts of North Lincolnshire or is higher than the national average.

The evidence collated has demonstrated that this elevated crime criteria has been met as follows:

  • Area 1 has one of the highest crime rates in North Lincolnshire, over 2.5 times higher the North Lincolnshire average, in conjunction with high levels of private rented accommodation.
  • Area 2’s overall crime rate is not elevated compared to the rest of Scunthorpe and is in fact slightly lower than many of its surrounding neighbourhoods.
  • The most common crime type in both areas is violence against the person offences, followed by theft, public order offences and arson.
  • Crimes recorded in North Lincolnshire increased by 12% in 2023 compared to 2022. Even though crime in areas 1 and 2 reversed this trend and fell, area 1 continues to experience amongst the highest levels of crime in the whole of North Lincolnshire.

The extent of the impact of crime in the area affecting the local community has also been considered and the extent to which a selective licensing scheme can assist to address the problems and lead to a reduction in levels of crime for those living in the area. The council has considered:

  • whether the criminal activities impact on some people living in privately rented accommodation as well as others living in the areas and businesses therein
  • whether some of the criminal activity is the responsibility of people living in privately rented accommodation

The criminal activities of the increasingly prevalent “Rent to Rent” model evidenced and described in section 1.5 impacts negatively upon those people living in privately rented accommodation as well as others living in the areas and businesses therein due to:

  • Overcrowding and excess wastes/Fly tipping impacting local communities.
  • Public health risks associated with overcrowding.
  • Insecure and sham tenure and illegal eviction to avoid prosecution under the Housing Act 2004.
  • Excessive rental charges in exchange for poor quality and often inadequate accommodation impacting upon the health and well-being of occupants.

Absentee landlords are at increasing risk of Rent to Rent models and therefore Selective Licencing will be able to ensure that landlords have more regular and improved oversight of property occupancy with the aim of reducing this type of criminal activity. Licence Conditions will also be able to specify suitable occupancy rates to reduce overcrowding and the associated excess waste production from these large households that tend to arise via the “Rent to Rent” model.

3. Anti-Social Behaviour

When deciding whether an area experiences anti-social behaviour, the council has considered whether private sector landlords in the proposed designated area are effectively managing their properties or not and whether the behaviour is being conducted within the curtilage of the rented housing or in its immediate vicinity and includes acts of (but not limited to):

  • intimidation and harassment of tenants or neighbours
  • noise, rowdy and nuisance behaviour affecting persons living in or visiting the vicinity
  • animal related problems
  • vehicle related nuisance
  • anti-social drinking or prostitution
  • illegal drug taking or dealing
  • graffiti and fly posting
  • and litter and waste within the curtilage of the property.

Where it is decided that the area suffers from high levels of ASB, the council must consider what measures will be taken to address the problems. Examples might be including conditions in licences requiring landlords to take action to deal with such behaviour or to ensure that properties are not let to persons with a known record of anti-social behaviour, or other conditions relating to the use of the property. The council has also considered what other specified measures will work together with the selective licencing designation to combat the problems caused by anti-social behaviour.

Anti-social behaviour incidents January 2022 – December 2023

Area Total Rate per 1,000 population
Area 1  643  107 
Area 2  86  43 
Crosby & Park  990  70 
Town  1,099  127 
Frodingham  576  70 
North Lincolnshire  7,729  46 

(Source: Humberside Police)

Anti Social Behaviour heat map
Anti-social behaviour is prevalent in area 1. The number of anti-social behaviour incidents has run at double the average for North Lincolnshire over the last 18 months and stands at a level comparable with the wider Scunthorpe town centre area. The level of anti-social behaviour in area 2 is broadly comparable with the average level seen in North Lincolnshire as a whole.
Anti-social behaviour incidents by type North Lincolnshire, January 2022 – December 2023
B\ar chart showing rates of anti social behaviour in North Lincolnshire
Across North Lincolnshire, 19.5% of anti-social behaviour incidents involved a repeat victim and 12.2% a vulnerable adult. Drugs were recorded as a factor in 4.9% of incidents, with alcohol involved in 4.7% of incidents. 21.4% of incidents were youth related.
Anti-social behaviour incidents by type Area 1, January 2022 – December 2023
Bar chart showing anti social behaviour in area 1

In area 1, 20.2% of anti-social behaviour incidents involved a repeat victim and 11.8% a vulnerable adult. Drugs were recorded as a factor in 4.8% of incidents, with alcohol involved in 15.1% of incidents. 14.2% of incidents were youth related.

Anti-social behaviour incidents by type Area 2, January 2022 – December 2023

Bar chart showing anti social behaviour in area 2
In area 2, 11.6% of anti-social behaviour incidents involved a repeat victim and 7.0% a vulnerable adult. Drugs were recorded as a factor in 15.1% of incidents, with alcohol involved in 3.5% of incidents. 23.2% of incidents were youth related.

Fly tipping incidents reported April 2020 – March 2023

Area Total Rate per 1,000 population
Area 1  1,854  309 
Area 2  190  95 
Crosby & Park  1,598  109 
Town  1,132  118 
Frodingham  431  52 
North Lincolnshire  7,243  43 

(Source: Internal NLC dataset)

Fly tipping heat map

Fly tipping significantly degrades the overall ambiance of an area, making it look unkempt and less attractive. It is also recognised by the council that flytipping of domestic waste can also impact negatively upon public health due to levels of waste. Areas with higher rates of fly tipping may require increased monitoring, stricter enforcement of waste disposal regulations, and community engagement to combat this issue and maintain a clean and safe environment.

Both areas 1 and 2 have high rates of fly tipping. The rate of fly tipping in area 2 is double the rate seen in North Lincolnshire as a whole, while in area 1 fly tipping is even greater, at seven times the North Lincolnshire average.

Excess side waste and accumulations June 2020 – March 2023

Area Total Rate per 1,000 population
Area 1  310  51.7 
Area 2  1  0.5 
Crosby & Park  227  16.1 
Town  134  15.5 
Frodingham  17  2.1 
North Lincolnshire  406  2.4 

(Source: Internal NLC dataset)

Excess Waste & Accumulation heat map
The levels of excess side waste and accumulations reported in area 1 are very significant, to the extent that over 75% of reports in all North Lincolnshire over nearly three years were in this area. The rate of excess side waste and accumulations in area 1 is 21.5 times the North Lincolnshire average. By contrast, there was only a single report in area 2.

Graffiti reported April 2020 – March 2023

Area Total Rate per 1,000 population
Area 1  15  2.5 
Area 2  1  0.5 
Crosby & Park  10  0.7 
Town  14  1.5 
Frodingham  2  0.2 
North Lincolnshire  104  0.6 

(Source: Internal NLC dataset)

Graffiti heat map

Graffiti can significantly diminish the aesthetic quality of an area, making it appear neglected and less inviting and can contribute to people’s fear of crime. They are also costly and difficult for property owners to remove.

Adjusted for population size, the incidence of reported graffiti incidents in area 1 is four times higher than the North Lincolnshire average, whereas in area 2, the number of incidents is roughly in line with the area wide average. Notably, graffiti incidents are particularly concentrated in the southern part of area 1.

Community Protection Warnings April 2020 – March 2023

Area Total Rate per 1,000 population
Area 1  211  35 
Area 2  9  5 
Crosby & Park  160  11 
Town  133  15 
Frodingham  25  3 
North Lincolnshire  420  2 

(Source: Internal NLC dataset)

CPW General heat map

The Anti-Social Behaviour Crime and Policing Act 2014 is designed to address anti-social behaviour and environmental issues with the intention of improving the quality of life in a community by prohibiting or requiring specific actions. First, individuals receive written warning outlining their anti-social behaviour and the necessary steps for compliance, which must serve as a precursor to more formal action if the behaviour persists.

Both areas 1 and 2 see warnings issued at higher rates than the average for North Lincolnshire, although the picture in area 1, where the rate of warnings issued ran at 17 times the North Lincolnshire average, is more extreme than in area 2 where 2.5 times the number of warnings were issued compared to the area average.

Abandoned vehicles April 2020 – March 2023

Area Total Rate per 1,000 population
Area 1  36  6.0 
Area 2  5  2.5 
Crosby & Park  77  5.5 
Town  31  3.6 
Frodingham  27  3.3 
North Lincolnshire  500  2.9 

(Source: Internal NLC dataset)

Abandoned Vehicles heat map

Abandoned vehicles are often nuisance vehicles and expensive to remove, have a negative impact on the environment, look unsightly and can lower the quality of life in neighbourhoods. They can be the result of, or lead to crime, they take up valuable parking spaces and can quickly become dangerous when vandalised.. There is a risk of explosion or injury, they can leak dangerous fluids, which can catch fire or leak into drainage/water systems, and they are often burnt out, which can endanger lives, property and the environment.

Area 1 is a hotspot for abandoned vehicles, with the rate of abandoned vehicles in the area running at double the North Lincolnshire average. By contrast the rate of abandoned vehicles in area 2 is slightly below the area average.

Noise complaints April 2020 – March 2023

Area Total Rate per 1,000 population
Area 1  76  12.7 
Area 2  12  6.0 
Crosby & Park  112  7.9 
Town  74  8.6 
Frodingham  66  8.0 
North Lincolnshire  960  5.7 

(Source: Internal NLC dataset)

Noise Complaints heat map

Councils must investigate complaints about noise that could be a ‘statutory nuisance’ (defined by the Environmental Protection Act 1990). For the noise to amount to a legal statutory nuisance it must do one of the following:

  • unreasonably and substantially interfere with the use or enjoyment of a home or other premises
  • injure health or be likely to injure health

Where statutory nuisance occurs or is likely to occur, councils must serve an abatement notice. This requires the person responsible to stop or restrict the noise.

As with so many other types of anti-social behaviour, noise complaints are seen at elevated level in area 1, with the rate of complaints 2.2 times higher than the North Lincolnshire average. The rate of complaints in area 2 is broadly in line with the average for North Lincolnshire.

Conclusion

Selective licensing is intended to bring about a reduction in anti-social behaviour. As a result, it makes most sense to introduce this initiative in the parts of North Lincolnshire with the most anti-social behaviour problems. Licence conditions to address over occupancy and poor waste management practices would assist towards improving the increasing levels of fly tipping and excess waste in the local area. Licence Conditions requiring the landlord to respond to ASB in co-operation with the Police, Community Safety Partnership and North Lincolnshire Council would also assist towards reducing ASB in the local area.

The police-recorded rate of anti-social behaviour in Area 1 is high, more than double the North Lincolnshire average and at a level comparable to that seen in the wider Scunthorpe town centre area.

Data relating to specific anti-social behaviour issues such as fly-tipping, graffiti, nuisance noise and abandoned vehicles gives an even more extreme picture, with the rate of issues in area 1 commonly running at two to ten times the North Lincolnshire average. There were 17 times the number of Community Protection Warnings issued in area 1 compared to the North Lincolnshire average.

The rate of police-recorded anti-social behaviour issues in area 2 was less than half that in area 1 and slightly below the council average. However, area 2 still has comparatively high levels of fly-tipping and sees over double the rate of Community Protection Warnings issued compared to the average for North Lincolnshire as a whole.

4. Migration

A selective licensing scheme can also be designated for an area experiencing high levels of migration both within a country from one area to another and migration from overseas. Selective licensing would form part of a wider strategy, to preserve or improve the economic conditions of the area to which migrants have moved and ensure people (including migrants) occupying private rented properties do not live in poorly managed housing or unacceptable conditions.

Government guidance advises that a population increase of around 10% or more over a 5-year period would be indicative that the area has or is experiencing a high level of migration into it.

In assessing whether the area is experiencing or has experienced significant migration the council has considered the information it holds on households in the area; any significant increase in the call for, or in the provision of council services in the area; any increase in local authority or police intervention in the area; and any changes to the socio-economic character of the area.

Length of Residence in the UK % of all people

Area  Born in the UK  10 years or more  5 years or more, but less than 10 years  2 years or more, but less than 5 years  Less than 2 years 
Area 1  45.0%  16.0%  14.1%  13.6%  11.3% 
Area 2  79.7%  7.7%  5.1%  5.5%  1.9% 
Crosby & Park  68.6%  13.5%  7.7%  6.1%  4.2% 
Town  65.0%  14.2%  7.4%  6.8%  6.5% 
Frodingham  85.1%  7.1%  3.9%  2.4%  1.4% 
North Lincolnshire  90.6%  5.0%  2.0%  1.4%  1.0% 

(Source: ONS 2021 Census)

If length of residency in the UK is examined, this shows that for area 1, 24.9% of the population of the area have resided in the UK for less than 5 years, with 11.3% resident for less than 2 years. This is higher than the proportion for the two wards area 1 falls within (Crosby & Park 10.3% less than 5 years with 4.2% less than 2 years, Town 13.3% less than 5 years with 6.5% less than 2 years), and much higher than the North Lincolnshire average of 2.4% under 5 years with 1% under 2 years. Area 1 exceeds the 10% threshold (high level of migration) over a 5-year period for migration.

For area 2 the proportions are less, with 7.4% of the population resident for less than 5 years and 1.9% less than 2 years. This is still above the average for the Frodingham ward in which it falls (3.8% under 5 years and 1.4% under 2 years) and the North Lincolnshire average. Area 2 is below the 10% threshold over a year period for migration.

Ethnic Group % of all people

Area  Asian, Asian British or Asian Welsh  Black, Black British, Black Welsh, Caribbean or African  Mixed or Multiple ethnic groups  White  Other ethnic group 
Area 1  24.6%  3.1%  3.2%  61.9%  7.2% 
Area 2  3.9%  0.3%  1.4%  92.5%  1.9% 
Crosby & Park  12.1%  1.7%  2.1%  80.4%  3.7% 
Town  21.4%  2.1%  1.7%  70.6%  4.2% 
Frodingham  2.7%  0.5%  1.8%  94.0%  1.0% 
North Lincolnshire  3.3%  0.5%  1.1%  94.3%  0.8% 

(Source: ONS 2021 Census)

Examining the ethnicity of the two areas, area 1 has high proportions of people in non-white ethnic groups, higher than the proportions for the wards of Crosby & Park, and Town within in which it lies, and compared to the North Lincolnshire average. The ‘Asian, Asian British, or Asian Welsh’ category is particularly high – 24.6% of all people in area 1 being in this group.

Area 2 in contrast has an ethnic breakdown similar to that for Frodingham ward in which it is located and compared to the North Lincolnshire averages, except in the case of the ‘Asian, Asian British, or Asian Welsh’ category (3.9% compared to 2.7% for Frodingham and 3.3% for North Lincolnshire) and the ‘Other ethnic group’ category (1.9% compared to 1% and 0.8%).

Proficiency in English % of people aged three years and over

Area    

Main language is English 

 

 

Can speak English very well 

 

Can speak English well 

 

Cannot speak English well 

 

Cannot speak English 

Area 1  53.1%  9.3%  20.8%  14.3%  2.5% 
Area 2  84.2%  4.0%  7.0%  4.5%  0.3% 
Crosby & Park  73.7%  6.8%  11.5%  6.9%  1.0% 
Town  72.4%  8.1%  11.5%  6.9%  1.1% 
Frodingham  88.1%  3.9%  5.1%  2.5%  0.4% 
North Lincolnshire  93.6%  2.0%  2.7%  1.5%  0.2% 

(Source: ONS 2021 Census)

Proficiency in speaking English for those people whose main language is not English, again shows that areas 1 and 2 have higher proportions of people who either cannot speak English well or not at all, with the proportions in area 1 (16.8%) much higher that area 2 (4.8%), but both areas are above the average for their respective wards (Crosby and Park 7.9%, Town 8% and Frodingham 2.9%) and the 1.7% for North Lincolnshire as a whole.

Main language Area 1 % Area 2 %
English 2467 53.5% 660 86.8%
Other European language (EU): Any other European languages 1017 22.1% 34 4.5%
Other European language (EU): Polish 329 7.1% 47 6.2%
East Asian language: Any other East Asian languages 240 5.2% 2 0.3%
Portuguese 210 4.6% 3 0.4%
South Asian language: Bengali (with Sylheti and Chatgaya) 159 3.4% 1 0.1%
West or Central Asian languages 50 1.1% 1 0.1%
African languages 25 0.5% 0 0.0%
East Asian language: Mandarin, Cantonese and other Chinese languages 20 0.4% 0 0.0%
South Asian language: Any other South Asian languages 16 0.3% 0 0.0%
South Asian language: Panjabi 15 0.3% 2 0.3%
South Asian language: Urdu 13 0.3% 2 0.3%
Russian 8 0.2% 3 0.4%
Turkish 8 0.2% 0 0.0%
Spanish 8 0.2% 0 0.0%
South Asian language: Tamil 7 0.2% 5 0.7%
European languages (non-EU) 5 0.1% 0 0.0%
French 4 0.1% 0 0.0%
Arabic 4 0.1% 0 0.0%
Any other languages 2 0.0% 0 0.0%
Any other UK languages 1 0.0% 0 0.0%
Sign language: British Sign Language 1 0.0% 0 0.0%
Total 4609 760

(Source: ONS 2021 Census)

The 2021 Census asked respondents what is their first or preferred language.2 This helps to identify the need for language services as part of the consultation process for Selective Licensing. A breakdown of the responses for areas 1 and 2 is given below. The number of non-English responses for area 1 (2,142) is much greater than for area 2 (100). Aside from English, the largest responses for both areas are in the ‘Other European (EU) languages and Polish categories, however the total numbers for these two categories are much higher in area 1 (1,346) compared to area 2 (81). Area 1 also has large numbers (over 100) in the ‘East Asian language’, ‘Portuguese’, and ‘South Asian language: Bengali (with Sylheti and Chatgava)’ categories.

Conclusion

The outcome of a Selective Licencing Designation where significant levels of migration has been identified, should be to preserve or improve the economic or social conditions of the area during the lifetime of the designation and ensure that a proper standard of management of privately rented housing is maintained and that properties do not become overcrowded. The council considers that this can be achieved via Licence Conditions that address and maintain proper standards of management of privately rented properties in the area and occupancy restrictions to prevent properties becoming overcrowded.

Area 1 exceeds the 10% threshold over a 5-year period for migration and it has the highest proportion of people born outside the UK and who have lived in the UK for less than five years in all North Lincolnshire. The area has above average concentration of ethnic groups in non-white categories, particularly ‘Asian or Asian British’, and over 15% cannot speak English well or at all.

Area 2 is below the 10% threshold over a 5-year period for migration as the percentage of people living in the area who were born outside the UK and have lived here less than five years. Its ethnic makeup is comparable to North Lincolnshire as a whole except for a higher percentage classed as ‘other ethnic group’. Around 5% of residents cannot speak English well or at all.

5. Deprivation

A selective licensing scheme can also be designated for an area experiencing a high level of deprivation. This, together with other measures as part of a wider strategy, should support a reduction of the problems with housing in the private rented sector contributing to the high level of deprivation. The council has considered the following factors when compared to other similar neighbourhoods within North Lincolnshire and the region:

  • the employment status of adults (Section 4 deprivation metrics)
  • the average income of households (Section 4 deprivation metrics)
  • the health of households (Section 4 deprivation metrics)
  • the availability and ease of access to education, training and other services for households (Section 4 deprivation metrics)
  • housing conditions (Section 4 and 4 deprivation statistics)
  • the physical environment (Section 4 deprivation statistics)
  • levels of crime (Section 2 crime data and 3.5 deprivation statistics).

Census data classifies household deprivation in four dimensions based on indicators for four selected household characteristics which can be used for.

  • Education: A household is classified as deprived in the education dimension if no one has at least level 2 education and no one aged 16 to 18 years is a full-time student.
  • Employment: A household is classified as deprived in the employment dimension if any member, not a full-time student, is either unemployed or economically inactive due to long-term sickness or disability.
  • Health: A household is classified as deprived in the health dimension if any person in the household has general health that is bad or very bad or is identified as disabled.
  • Housing: A household is classified as deprived in the housing dimension if the household’s accommodation is either overcrowded, in a shared dwelling, or has no central heating.
Area Not deprived in any dimension Deprived in one dimension Deprived in two dimensions Deprived in three dimensions Deprived in four dimensions
Area 1 28.1% 43.1% 20.8% 7.5% 0.5%
Area 2 34.4% 41.4% 18.5% 5.7% N/A
Crosby and Park 39.0% 38.2% 17.6% 5.0% 0.3%
Town 39.3% 37.2% 17.7% 5.5% 0.4%
Frodingham 37.2% 37.8% 19.1% 5.85 0.15
North Lincolnshire 46.1% 35.0% 15.2% 3.5% 0.1%

(Source: ONS 2021 Census)

The table above shows that both areas 1 and 2 have high levels of deprivation compared to their respective ward averages and the average for North Lincolnshire as whole. Over 40% of households in areas 1 and 2 have deprivation in at least one dimension compared to 35% for North Lincolnshire. For deprivation in three dimensions, 7.5% of households in area 1 and 5.7% of households in area 2 are deprived compared to 3.5% for North Lincolnshire. Finally, 0.5% of households in area 1 have deprivation in all four dimensions, compared to 0.1% of households for North Lincolnshire as a whole.

Index of Multiple Deprivation

There are 7 domains of deprivation, which combine to create the Index of Multiple Deprivation (IMD2019) which are as follows:

  1. Income (22.5%) Measures the proportion of the population experiencing deprivation relating to low income
  2. Employment (22.5%) Measures the proportion of the working age population in an area involuntarily excluded from the labour market
  3. Education (13.5%) Measures the lack of attainment and skills in the local population
  4. Health (13.5%) Measures the risk of premature death and the impairment of quality of life through poor physical or mental health
  5. Crime (9.3%) Measures the risk of personal and material victimisation at local level
  6. Barriers to Housing & Services (9.3%) Measures the physical and financial accessibility of housing and local services
  7. Living Environment (9.3%) Measures the quality of both the ‘indoor’ and ‘outdoor’ local environment
IMD deprivation map
(Source: Index of Multiple Deprivation 2019)

The Index of Multiple Deprivation ranks every small area (Lower Super Output Areas) in England from 1 (most deprived area) to 32,844 (least deprived area)., considering the 7 domains detailed above.

To help show variation the 32,844 neighbourhoods in England from most deprived to least deprived are then divided into 10 equal groups. These range from the most deprived 10% of neighbourhoods nationally to the least deprived 10% of neighbourhoods nationally. The dark red Lower Super Output Areas covering much of the map above highlights that much of areas 1 and 2 are among the most deprived 10% of communities in the country. Area 1 also has less deprived areas at 20-30% (circa 50% shaded orange) and Area 2 also has less deprived areas at 40-50% (circa 30% shaded yellow). The average IMD score for North Lincolnshire is 22%.

This evidences that Area 1 is partially impacted by deprivation above the North Lincolnshire IMD average and Area 2 is also partially impacted above the IMD average.

Economic Activity Status % of people aged 16 years and over
Area Economically active: In employment Economically active: Unemployed Economically inactive
Area 1 60.3% 6.3% 33.4%
Area 2 59.3% 5.3% 35.5%
Crosby and Park 56.9% 4.3% 38.8%
Town 59.6% 4.8% 35.6%
Frodingham 57.0% 5.0% 38.0%
North Lincolnshire 54.7% 3.0% 42.3%

(Source: ONS 2021 Census)

The economic activity status of people in these areas shows that both areas have higher proportions of people in employment than their respective wards and the average for North Lincolnshire and proportions economically inactive below their respective ward proportions and the North Lincolnshire average. This reflects the younger age profile of the two areas compared to North Lincolnshire as a whole. However, the proportion classed as unemployed is higher for both areas than the average for their respective wards and for North Lincolnshire.

Housing Benefit Claimants May 2023
Area Number of claimants Rate per 1,000 Population Percentage of North Lincs Total
Area 1 247 41.2 5.0%
Area 2 64 32.0 1.3%
Crosby and Park 457 32.4 9.2%
Town 326 37.5 6.6%
Frodingham 344 41.4 6.9%
North Lincolnshire 4,962 29.2 100%

(Source: DWP Stat-Explore)

Looking at the numbers claiming housing benefit in each area, the numbers claiming in area 1 are over three times the number claiming in area 2, and area 1 comprises 5% of all housing benefit claimants in North Lincolnshire. As a population rate per 1,000 people both areas rates are above that for North Lincolnshire (41.2 and 32 compared to 29.2). Compared to the wards they lie within, the rate for area 1 is also above that for Crosby & Park (32.4) and Town (37.5), in contrast the rate for area 2 is below that for Frodingham ward (32 compared to 41.4).

Conclusion

Both areas 1 and 2 are among the most deprived parts of North Lincolnshire, parts of areas 1 and 2 are among the most deprived 10% of communities in England. The two areas also have a higher rate of people claiming housing benefit than the North Lincolnshire average, although the claimant rate in area 1 is 28% higher than area 2.

The government recognises that:

  • poor housing conditions are associated with a number of health problems, including respiratory infections, asthma and poor mental health
  • the Private Rented Sector has the highest proportion of non-decent homes
  • more families with children are using the private sector where homes are less likely to meet the decent homes standard
  • with the shortage of housing in the social rented sector, more low-income families are relying on private sector accommodation, where homes are less likely to be affordable and meet the decent homes standard
  • fuel poverty (the condition of being unable to afford to keep one’s home adequately heated for comfort), is one of the factors associated with a reduced quality of health in England, contributing to social and health inequalities.

The Selective Licencing Designation will through Licence Conditions ensure that properties are well maintained in a way that they will be safe, secure, warm and dry. Targeted housing standards improvements via Part 1 inspection and enforcement and landlord management and maintenance via Licence Conditions will contribute to an improvement in the well-being of the occupants and wider community which currently contributes to the high level of deprivation.

6 Impact of Other Interventions

The government values the private rented sector and wants to see a strong, healthy and vibrant market. Its aim is a private rented sector that offers a greater security of tenure and safer, higher quality homes for renters. The government is keen to ensure that the sector is encouraged to meet, in a professional way and with decent quality accommodation, the demands placed upon it by the housing needs of the wide range of tenants it services.

NLC must consider whether there are any other courses of action available to us that would achieve the same objective as the proposed scheme without the need for the designation to be made. Set out below are other courses of action taken by the council with the aim of meeting the same objectives and which evidences the fact that these interventions are not sufficient to tackle the underlying private rented property issues being experienced in the proposed Selective Licencing Areas 1 and 2.

6.1 Crosby Renewal Area within Area 1

A renewal area was declared in Crosby in 1996. The purpose of renewal areas was to focus funding and service provisions upon an area experiencing significant multiple problems (e.g., crime, housing and environment). At this time, it was estimated that 1 in 4 properties in the area were legally unfit to live in.

The renewal area had initial improvements within the area. Investment in house renovations and regeneration projects however did not lead to a sustainable improvement in the area and there has been a gradual and ongoing withdrawal of owner occupiers and an increase in private renting and empty properties in this area.

6.2 Landlord Accreditation Scheme/Landlord Forum

The Council has maintained a voluntary landlord accreditation scheme across North Lincolnshire since 2010. Landlords have been encouraged to apply to this scheme to demonstrate to tenants that they provide high quality private rented housing and promote good quality in the private rented sector.

The scheme required that the following were fair and reasonable:

  • Condition of the properties
  • The level of provision of basic amenities
  • Management practices

Compliance with the scheme aimed to ensure that:

  • Landlords, tenants and the public enjoy the benefits of good property conditions, competent management standards and considerate neighbourly behaviour.
  • Misunderstandings and disputes are reduced.
  • Where problems do occur, they are promptly resolved.

The scheme is completely voluntary in nature and therefore there is no way of enforcing landlords renting poor quality housing to join the scheme.

The scheme has low buy in from landlords in North Lincolnshire, and only 35 landlords across the whole of North Lincolnshire have been accredited by this scheme since its launch.

Strong landlord forums require active engagement. The landlords that are targeted by selective licensing may be amongst the least likely to productively engage or attend such events. Landlords may also choose not to play their part in resolving issues that are raised at forums. Therefore, whilst the forums added some value and have played a role in identification, selective licensing is still necessary to address issues and target those not meeting their landlord responsibilities to tenants and community.

DASH Services is a Private Rented Sector service for Local Authorities, Landlords & Tenants and is hosted by Derby City Council on behalf of numerous Council across England. Going forward the council has now partnered with DASH Services to deliver its Landlord Accreditation Scheme which will be rolled out as part of the proposed Selective Licencing Scheme. Further information about applying for Accreditation with DASH Services can be found here: https://www.dashservices.org.uk/Accreditation and further information will be made available as part of the selective licencing consultation exercise.

6.3 Mandatory HMO Licences and Unlicensed small HMO’s

Houses in multiple occupations (HMOs) form a vital part of the private rented sector, often providing cheaper accommodation for people whose housing options are limited.

Under the Housing Act (2004), it has been mandatory for HMOs meeting all the following criteria to be licensed:

  • The property is rented to 5 or more people who form 2 or more separate household
  • The tenants share toilet, bathroom or kitchen facilities

There are currently 25 Houses in Multiple Occupation where Mandatory Licences have been granted and these can be viewed on the Council Public Register: https://www.northlincs.gov.uk/council-tax-benefits-and-housing/public-register/

Of those 25 properties 13 required planning permission as occupancy is 6 or more persons. Seven of the 25 Licenced properties are in Area 1 and 3 are located in Area 2.

Smaller HMO’s of 4 persons or less remain unlicensed and their locations are not certain as the rate of tenant churn is high and property ownership is fluid. It is recognised that it may be financially advantageous for landlords to create smaller dwellings which do not fall under mandatory licensing.

Houses in Multiple Occupation (unless exempt) are required to comply with Management Regulations enforced under the Housing Act 2004. Further details of these Regulations can be found in Appendix 4B.

6.4 Housing Standards Enforcement

The Council’s existing enforcement of housing standards (Health and safety standards for rented homes (HHSRS) inspections) is not sustaining a change in some landlord management behaviours to improve in areas 1 and 2. Principally it is a reactive service, targeted to respond to address issues as they appear. Selective licensing provides a completely different ethos, it is a proactive form of regulation and enforcement which encourages sustainable behavioural change in tenants and landlords. It emphasises the importance of stakeholders taking responsibility alongside the Council for the wellbeing of an area. It also operates alongside other proactive measures using a multi-agency approach.

The “rent to rent” model fetters progress with housing standards enforcement under Part 1 of the Housing Act 2004 and therefore Selective Licencing would provide clarity in terms of those person responsible for the letting and management of the dwelling. It would also allow for better targeting of the Council’s enforcement powers within the areas both for licensing and other Part 1 functions to address rogue and criminal landlord activity.

6.5 Civil Penalties

A small number of rogue or criminal landlords knowingly rent out unsafe and substandard accommodation. The Government wants to crack down on these landlords and disrupt their business model and has provided the legal tool of Civil Penalties to assist with this aim.

The Housing and Planning Act 2016 provides powers that permit councils to impose a civil penalty of up to £30,000 as an alternative to prosecution for a range of offences under the Housing Act 2004, and where a landlord or property agent has breached a banning order under the Housing and Planning Act 2016.

North Lincolnshire Council has had in place an enforcement approach to Civil Penalties since 2019 which has been reviewed, revised and updated in 2023 and can be found on the link here: https://m.northlincs.gov.uk/public/publications/Civil-Penalties-Enforcement-Guidance-and-Procedure-2/index.html#page=1

Despite issuing a significant number of Civil Penalty Fines there has been limited impact in rogue and criminal landlord activity.

6.6 Targeted Environmental Programmes

In North Lincolnshire, measures that have been taken to address the issue of fly-tipping include issuing fixed penalty notices for smaller incidents, installing both overt and covert surveillance cameras in fly-tipping ‘hotspots’ and launching an online portal through which members of the public can submit evidence of fly tipping in the region. Whilst such measures can contribute to tackling the issue, North Lincolnshire is not immune to the difficulties of this increasing national issue, and more is required to bring incidents down further.

To address fly tipping and accumulations within Area 1 the council has also adopted a Public Space Protection Order for waste (Scunthorpe North as defined by Map D) has been put in place which can be found on the following link: https://www.northlincs.gov.uk/planning-and-environment/public-spaces-protection-order-pspo/

In 2020/21 Local authorities in England dealt with 1.13 million incidences of fly-tipping and carried out around 450,000 enforcement actions. Even if the 1.13 million figure is taken as representing 100% of incidents, however unlikely that may be, that would still mean that fewer than 45% of incidents resulted in enforcement actions being taken. These figures make clear that current measures are insufficient for dealing with the incredibly high number of fly-tipping incidents throughout England.

It is also worth noting that clearing fly tipped waste on private land is the responsibility of the landowner, and that sub-standard landlords may be unwilling or particularly slow in addressing any waste on their land. Selective licensing would ensure that incidents of fly-tipping on private land in the licensing areas are more likely to be dealt with swiftly and specific conditions relating to waste management within the Licence Conditions will assist towards decreasing the impact of domestic waste in the proposed Selective Licensing areas.

6.7 Housing Stock Improvements

Green Homes Grant

The government funded Green Homes Grants (GHG) (5 schemes in total so far) has contributed to improvements in a number of homes in North Lincolnshire.

The schemes have resulted in over 350 homes being installed with some form of energy efficiency measure or measures across North Lincolnshire. Within Area 1, 58 homes have received assistance and within Area 2, the figure is 30. However, private landlords have at least a 30% contribution to be made towards the cost of the measures and therefore so far, no landlords have had their properties through these schemes.

Whilst the GHG scheme has been rightly praised for its impact, it is limited in that the funding in the main has failed to attract private landlords, due in the main to the contribution that needs to be made.

Improving the quality of housing stock, particularly in problem areas, can contribute to improvements in standards and behaviour, but more comprehensive intervention is required to tackle a more significant proportion of households in problem areas. Selective licensing can contribute to improving housing stock and will cover a far greater number of households than the Green Homes Grant. It will also allow us to support landlords more effectively to access grants of this type, thereby improving conditions and health.

Energy Company Obligation (ECO4) scheme

Like the Green Homes Grant, ECO4 (including Flex) is a national programme targeting low-income households and focused on improving energy efficiency. The Council has a minor role in this scheme, having the ability to refer eligible households to obligated companies.

It is the eligibility of the tenant of the property, rather than the landlord, that needs to be considered for ECO4 retrofits. To reflect the Minimum level of Energy Efficiency Standard (MEES) for private rented sector (PRS) properties, the measure types that can be installed in PRS properties under ECO4 depend on the EPC rating.

PRS properties occupied by a member of the help to heat group (identified as those most in need due to being on a low income), or a person declared as eligible by the local authority with an initial SAP energy efficiency rating of E, F, and G are eligible to receive ECO4 measures.

The ECO4 scheme requires the landlord to agree to the work and therefore relies on engagement and permission. There may also be a financial contribution required in certain circumstances from the landlord. Poorer landlords may just choose to ignore the scheme or refuse permission to undertake work. One of the aims of selective licensing is to ensure landlords are more engaged and that only suitable people are in that position. The nature of the ECO4 scheme means that it would benefit from working in tandem with selective licensing, as this would likely result in more households benefiting from the scheme.

6.8 Community Safety

CCTV

The Council has been utilizing CCTV for several years with a range of aims, primarily to assist with public safety and security and to protect property. The council has 319 CCTV cameras positioned in town centers across North Lincolnshire as well as other public places such as car parks, council buildings, sports facilities and recycling centers. Cameras are also fitted to our refuse collection vehicles and body worn cameras are worn by our Community Wardens and Envirocrime patrol officers. Fundamentally, CCTV is a useful measure, but it has limitations and functions most effectively when combined with a wide range of other approaches. The stronger the intervention in the area, the better CCTV can achieve its aims, suggesting that selective licensing may help to maximise CCTV efficacy.

Neighbourhood Action Teams (NATs)

NATs involve meetings with several stakeholders in an area, both local residents and representatives from organisations such as the police and council. They have been held in each of North Lincolnshire’s electoral wards. The aims of the NATs are as follows:

Receive information from the community about local issues which, primarily, affect community safety and the built environment.

Priorities those issues for action

Work with the local community and partners to resolve the issues.

Ensure the wider community is aware of the priorities and action through effective means.

Essentially, NATs assist in the identification of problems and problem areas. Those involved in the NATs have reported that they strongly support their continuation and value the contributions made. However, the NATs require enforcement measures to be taken so that issues may be resolved. Selective licensing in areas where problems have been identified by the NATs would demonstrate that those raising issues have been heard and measures are being taken to resolve the problems they identify.

6.9 Community Renewal Fund

The UK government has provided £220 million funding through the UK Community Renewal Fund to help local areas prepare for the launch of the UK Shared Prosperity Fund.

This work includes:

Crosby Transformations: The project will support people and organisations in Crosby towards an exciting and prosperous future.

Plans include:

  • Expansion to the existing Fresh Food Provision which brings affordable food to the community
  • Relaunch of Family Nights, a place where food is shared, and homework problems addressed
  • Launch of an Amnesty project in conjunction with our local police
  • Delivering a popular Tenancy Support programme*
  • Bringing on additional staff to work with the area’s residents to understand their needs and offer support particularly in the context of those for whom English is not their first language
  • Creating opportunities for local residents to become Community Translators

Reconnect: is a short-term post pandemic programme to re-engage members of our communities with their pre-Covid energy, plans and ambitions.

The project offers a range of activities such as:

  • Learning new skills
  • Day trips (shopping centres, museums, garden centres etc)
  • Tea & Coffee Mornings (make new friends)
  • Cooking
  • Craft
  • Walking groups
  • Employment support
  • Mental health support
  • Counselling

Aspire to Progress aims to support employers to address skills needs through offering a range of fully funded short courses targeted at engineering, manufacturing, construction, management and digital skills.

Building Prosperous Communities to help upskill local people in skills gap areas and move them into work through accredited training, life coaching and developing employability.

R-evolution – In addition to skills and employment the initiative will operate as a circular economy contributing towards climate change and recycling objectives, enable opportunities for social distancing, health and exercise and help to bring communities together through inclusive community activity.

The aim of the project is to boost the confidence of individuals, improve self-esteem and remove barriers to progression to further education/training and employment.

6.10 Government UK Shared Prosperity Fund (UKSPF)

Local organisations – including businesses, charities, local councils and sport and community groups have been able to apply for a share of the latest Government UK Shared Prosperity Fund (UKSPF). More than £2.46m has been made available. The cash is available for a wide number of projects, from open air markets to community gardens and marketing schemes.

6.11 Conclusion

Whilst the above measures have all led to some improvements in local housing standards and community safety, they have not caused a significant and sustained improvement to overall housing conditions in areas 1 and 2. Some of the existing schemes are reliant on landlords to willingly engage in order for them to have impact.

Adding selective licensing to our existing body of intervention would provide a sustainable and proportionate mechanism (and funding) through which it will be possible to inspect all private rented properties in the area as part of the licensing process. It can act to attract further investment and resources to enable a combination of actions to help improve the sector, its management and conditions, contributing to improvements in the area as well as the safety and well-being of those who make the area their homes.