Agenda item

[Report of the Director for Housing and Growth. To be introduced by the Deputy Leader and Cabinet Member for Housing and Estate Renewal]

 

To make decisions regarding the future of some of the blocks on the Broadwater Farm estate including to consult residents following the receipt and consideration of structural reports and feasibility studies.

The Cabinet Member for Housing and Estate Renewal introduced the report which sought approval to immediately re-house residents in Tangmere block, for safety reasons and also sought approval to consult with the residents of Tangmere and Northolt blocks on whether to carry out the required strengthening works or whether to demolish the blocks and rebuild the Council homes on the estate. These actions were required following structural surveys, which concluded that these blocks did not meet key structural criteria. The report further expressed the Council’s preferred option in the consultation, which was to demolish the blocks.

 

The Cabinet Member expressed the Council’s commitment to safe decent and affordable homes for everyone and having understood the structural issues with these two blocks needed to guarantee the safety of residents .This was in keeping with the Council’s overall responsibility as a landlord .There was the possibility strengthening the blocks to a habitable standard. However, this should not be the standard and there was a political commitment to offer tenants far more than habitability and the Council were committed to expressing a view on what it felt tenants deserved. The Cabinet was clear that there was no decision being taken immediately on the demolition or strengthening options and would continue to listen to residents on Broadwater Farm.

 

The Cabinet Member outlined that a decision of this scale, to demolish people’s homes, was not one that could be taken lightly. The decision on the future of these blocks would not be taken now. The Council were committing to consult residents in Northolt and Tangmere.

 

The Cabinet Member continued to provide assurance that residents would be central to this process throughout and their views fully taken into account before taking any final decision either to demolish the blocks or to strengthen, and on the approach to rehousing.

 

The Cabinet Member for Housing and Estate Renewal advised the meeting that residents should have as much choice over where they live as possible and proposed to Cabinet that the Council go further for Tangmere tenants, and also give them ‘Band A’ priority on the housing register, even after they’ve moved from the block. This would give them priority to bid for other Council homes that fall vacant, so they can move again if they wish. Under this amendment, residents in Tangmere, if required, would be able to continue to bid and still have a right to return to the estate whatever the outcome of the future decision on the blocks i.e. strengthening or re-building.

 

 

The Cabinet Member proposed that the above commitment be reflected in the Rehousing Policies that would apply to the residents of Tangmere and further proposed that Cabinet agree an additional recommendation to delegate authority to the Director of Housing, Regeneration and Planning, in consultation with the Cabinet Member, to amend the Tangmere Rehousing Priority Scheme and the proposed Rehousing Policy to reflect the above commitment.

 

The Cabinet Member for Housing and Estate Renewal continued to respond to questions from Cabinet Members and the following information was noted:

 

• The difficult situation with rehousing was understood, but if the process was completed properly and speedily, the residents could continue to bid to find a home suitable to their needs. Under the proposed amendments, to the re-housing policies, residents could continue to bid to find a home suitable to their needs. This was above what Council’s usually offered so the choices around housing were available. The choices further allowed the Council to ensure that tenants were safe by the end of October and ensured tenants were still able to bid for properties that meet their expectations.

 

• Since March 2018, when the engineering reports regarding Tangmere and Northolt Blocks had been received, Homes for Haringey had been holding as many vacant properties as possible. There were a potential 89 households in Tangmere to be re-housed and currently 84 vacant Council homes so there was nearly enough properties already. Not all the interviews with tenants had been completed and there was still a few to do. However, Homes for Haringey were checking that there was a good match, through in - depth interviews with residents, of vacant homes to meet the needs of the residents.

 

• Bed and Breakfast accommodation was only provided when there was no warning of homelessness and affected a small minority of people in the borough. Homes for Haringey were confident of not resorting to bed and breakfast accommodation to temporarily house residents.

 

 

• Noted that an overcrowded family, which had moved to a property to meet their needs, would also get an appropriate property to meet their needs if a decision was made to rebuild the homes and the household exercised their Right to Return.

 

• Noted that the amendment to the rehousing policy meant that if a resident chose to accept a property that met their needs and found they wanted to stay in that property, on permanent basis, this could be accommodated; or they could return to the estate; or they could bid for a property elsewhere on a permanent basis.

 

 

• Even before the section105 consultation starts, there would be engagement with residents to provide re-assurance about the re-housing process and to support residents to move safely to accommodation to meet their needs. Homes for Haringey had already been meeting with residents to ensure tenants are re-assured and safely moved to accommodation that meets their need.

 

• All households in Tangmere would receive support from a specific Homes for Haringey officer throughout the rehousing process. This officer would work with the household to understand their housing needs, their preferences for where their new property is located and provide support on the options.

 

• There had already been a significant amount of work completed in understanding of the level and type of engagement with communities. This will continue in parallel with the section 105 consultation. Homes for Haringey were keen to make sure there was equal access to information and were discussing the same issue with all residents in the two blocks. The Homes for Haringey Director for Operations also indicated that there was a dedicated engagement team in place for Tangmere residents. Work was also underway to appoint an ITLA [Independent Tenant and Leaseholder Adviser] to advise Northolt and Tangmere residents.

 

• The Council and Homes for Haringey would be supporting families as they move and through the formal process of consultation, whereby the views of residents of both blocks will be taken forward. The formal process was only part of the work, and the Council was keen to ensure the engagement is fully integrated so residents feel they are speaking to same officers about both current support and the future of the blocks.

 

The Homes for Haringey Director of Operations further explained that over the last two weeks, the Housing team had been engaging with residents in both blocks to explain the situation. There was a dedicated team working with Tangmere residents to explore housing options and understanding if properties are to be taken on a temporary basis or longer term. This activity was also about understanding long-term impact on families that were being moved so putting in place actions to minimise disruption as soon as possible or putting tools in place to support the families with a move.

 

The Council and Homes for Haringey were already developing consultation activities, in preparation for the Cabinet decisions on section 105 consultation, and planning ahead, being mindful of summer holidays.

 

There were further questions put forward by non-Cabinet Members and the following information was noted:

• As far as the Cabinet Member was aware, Broadwater Farm was the only estate in the borough with large panel system blocks .Appropriate safety checks had been conducted on all other HfH blocks in the Borough and there were no other safety issues.

 

• In relation to understanding how this unsafe position had been reached, for Northolt and Tangmere blocks, it would be important to consider the available documentation. Also to explore the learning, post Ronan Point, and consider the information the Council had had and understand why, so many years later, and this unsafe situation had become known. Part of the estate had been built prior to the Ronan Point incident and some after. The Cabinet Member would consider the options for investigating how this situation had occurred .It was important to keep in mind that there would likely be limited available information on this. The recent structural reports for the 2 blocks were available online.

 

• In relation to purchasing properties, the Council had received a commitment for support in buying street properties to alleviate the re- housing situation in Broadwater Farm. This funding had been confirmed in writing and the Council were exploring purchasing properties to contribute to the re- housing effort.

 

• With regards to empty private homes, the Council was always interested in bringing them back into use subject to available resources. This was not a potential source of immediate help but kept under review and the Council were always open to using this option to increase available housing.

 

• In relation to the suggestion to demolish the Enterprise Centre, adjacent to Tangmere block, assurance was provided of consultation with Councillors as they were key part of the discussions, but ultimately the Cabinet were not yet deciding on demolition, at this meeting.

 

• With regard to concerns about existing residents on the housing waiting list and the longer term impact on Love Lane residents, who would also be part of future rehousing activity, there could not be comment on this situation. There was no decision being taken on the master plan for Love lane at the meeting, and there was not a decision being taken on demolition at this meeting.

 

 

• The Cabinet Member emphasised that other blocks on Broadwater Farm had passed the lower impact test. All piped gas was being removed and district heating system extended and upgraded on the estate blocks so they were not affected in the same way as Northolt and Tangmere blocks.

 

• The issue on a ballot had been responded to in the deputation response as outlined above.

 

 

RESOLVED

 

1. To agree to commence temporarily rehousing residents from Tangmere immediately, because:

 

(a)     Tangmere has failed both the 34 kN/m² and the 17 kN/m² structural tests which means there is a risk of progressive collapse from an explosion caused by piped gas or from an explosion from a lower impact event such as a vehicle strike or bottled gas explosion, and

 

(b)     Piped gas will be removed from the block at the end of October 2018 and as such there will be no supply of heating and hot water to the block after this date, and

 

(c)     It is necessary to rehouse residents temporarily even if a decision is made to strengthen Tangmere.

 

  2.

(a)     To agree that officers should consult with the residents of Tangmere and Northolt as set out in paragraphs 6.42 and 6.43 on whether to carry out the required strengthening works or whether to demolish the blocks and rebuild the Council homes on the estate;

 

(b)     To agree that the Council has preferred option in the consultation will be to demolish the blocks due to the significant cost of the works needed to address the health and safety issues identified;

 

3     To delegate authority to the Director of Housing, Regeneration and Planning to buy back leasehold properties in Tangmere on a voluntary basis;

 

4. To approve the Tangmere Leasehold Offer set out in section 6.67 – 6.73, including (i) the offer of equity loans to Tangmere leaseholders from the date this decision comes in to force, and (ii) the offer of temporary accommodation to leaseholders to assist them in moving out of Tangmere by agreement before they find their own, longer-term accommodation, and (iii) paying the cost of such temporary accommodation where appropriate depending on the circumstances of each case;

 

5. To approve the Tangmere Rehousing Priority Scheme for secure tenants attached at Appendix 1, which will apply to the rehousing recommended in recommendation 1 and approves (i) paying all or part of the cost of temporary accommodation for secure tenants where it is not possible for the Council to offer a Council or Housing Association property at the point where they need to move for health and safety reasons, as appropriate depending on the circumstances of each case and (ii) paying all or part of the difference between the tenant’s current Council rent and the rent of the alternative accommodation they are offered, as appropriate depending on the circumstances of each case;

 

6. To delegate authority to the Director of Housing, Regeneration and Planning to commence the rehousing of residents in Northolt on health and safety grounds if the position regarding the safety of the block changes before Cabinet makes a decision about the future of the block. In the event that the Director takes such a decision the references to Tangmere in recommendations 3, 4 and 5 above shall also apply to Northolt;

 

7.  

(a)      To agree that officers should consult with residents on the proposed Broadwater Farm Rehousing and Payments Policy, attached at Appendix 2 and detailed at paragraph 6.74 – 6.97;

 

(b)     To note that the proposed policy is drafted so that it could apply in all the scenarios being consulted on i.e. whether to strengthen either or both blocks or whether to demolish either or both blocks and rebuild the homes on the estate;

 

(c)     To agree that officers should consult with residents of Tangmere and Northolt on the proposed Broadwater Local Lettings Plan, attached at Appendix 2 and detailed at paragraph 6.98-6.99;

 

8. To agree that a report should be brought to Cabinet after the summer following the consultations, recommending a decision on the futures of Tangmere and Northolt, and to approve a Rehousing and Payments Policy;

 

9. To note that any residents who are temporarily rehoused before final decisions are made on the future of Tangmere and Northolt will benefit from the Rehousing and Payments Policy that is approved by Cabinet later this year. The proposed Rehousing and Payments Policy includes a Right to Return to Broadwater Farm for any tenant who needs to move as a result of the structural issues identified; either to their own flat (if their block is to be strengthened) or (for tenants) elsewhere on the estate or to newly built homes on the estate, if a decision is made to demolish the blocks and rebuild; and

 

10. To note that the HRA capital costs associated with the above recommendations will be funded from the existing £11.5m capital provision, and that the revenue implications to both the HRA and General Fund associated with the above recommendations will be subject to further reporting in the budget monitoring report.

 

11. To delegate authority to the Director of Housing, Regeneration and Planning, in consultation with the Cabinet Member for Housing and Estate Renewal, to amend the Tangmere Rehousing Priority Scheme and the proposed Rehousing Policy to reflect the commitments made by the Cabinet Member in the meeting. In particular granting to Tangmere tenants ‘Band A’ priority under the Council’s Allocations Policy after they have moved out of the block to allow them to move on.

 

 

Reasons for decision

 

The Council has identified risks in a number of blocks on Broadwater Farm. Surveys have identified structural issues in the estate’s medium-rise blocks, which means they do not meet the required standards to use piped gas and there is a risk of progressive collapse in the event of a gas explosion. The reports also identified that two blocks – Tangmere and Northolt – have failed a lower test, which means that there is a risk of progressive collapse from a lower impact event such as a vehicle strike or bottled gas explosion. These risks have been mitigated through the introduction of measures set out in section six of this report, including:

 

·         In the blocks with piped gas, the replacement of gas cookers with electric cookers and the installation of gas interrupter valves, which will switch off the gas if a leak is detected

·         In the blocks, which have also failed the lower test, a 24-hour concierge and a programme of home visits to reduce the risk that items such as bottled gas are taken into the building.

 

In the case of Tangmere and Northolt, which have failed the lower test, significant strengthening works, are required to address the problems identified and make the buildings safe for long-term habitation. Based on estimates received by Homes for Haringey, the costs of strengthening works would have a significant impact on the Housing Revenue Account’s position. The Council is therefore proposing to consult residents on whether it should strengthen or demolish the blocks, with its preferred option being to rehouse residents, demolish the blocks and rebuild the Council homes on the estate. The results of the consultation will be presented to Cabinet later this year to inform a decision on the future of both blocks.

 

Tangmere Rehousing

 

A decision is required now regarding the occupation of Tangmere, as the piped gas supply to Tangmere is – in common with all blocks on the estate which currently have piped gas – due to be switched off by the end of October 2018. This date has been set by the gas supplier, Cadent, who have indicated that this date for switching the gas off cannot be moved. This report recommends that Cabinet approve the Tangmere Rehousing Priority Scheme, which will apply pending a decision being made by Cabinet later this year on the future of both blocks. This scheme will give Tangmere tenants priority for Council homes, which become vacant. The urgent nature of the rehousing means that the Council may need to issue notices seeking possession under Ground 10, Schedule 2 of the Housing Act 1985 in order to regain possession of the homes. When relying on Ground 10, the Council is required to provide suitable alternative accommodation to the tenant.

 

Northolt

 

As Northolt does not have piped gas, the October deadline does not apply and there is no need to rehouse residents at this point, but if strengthening works are carried out to the block residents would need to be rehoused temporarily to allow the works to take place. Recommendation 3.5 seeks delegated authority to the Director of Housing, Regeneration and planning to commence the rehousing of residents in Northolt if the position regarding the safety of the block changes before Cabinet makes a decision about the future of the block. For the reasons set out in section six of this report, the Council has preferred option in the consultation with Northolt residents will be to demolish Northolt and rebuild the Council homes on the estate.

 

Rehousing Approach

 

The Council does not have a rehousing policy, which applies in scenarios such as this one – where residents urgently need to be rehoused due to a building requiring major structural repairs, or possible demolition due to the expense of repairs. Therefore, a proposed policy will be consulted on over the summer, and presented to Cabinet later this year for approval.

 

Alternative options considered

 

Tangmere Rehousing

 

The option of leaving residents living in Tangmere beyond October was discounted due to the October 2018 deadline for the gas to be switched off, which means that by this date residents must either be rehoused, or an alternative source of heat and hot water provided. If the rehousing process were not started imminently, there would be insufficient time to rehouse residents from Tangmere before the end of October. Homes for Haringey, who have been liaising with the gas provider Cadent, asked whether the October deadline could be extended, but Cadent have indicated that they are not willing to move the deadline because of the increased demand for gas in the winter months, which increases the risk of a gas explosion.

 

The Council considered but discounted the option of providing temporary heating to Tangmere, as it plans to with the medium-rise blocks before they are connected to the renewed district heating system. This is because, unlike the medium-rise blocks, an alternative source of heating and hot water alone would not resolve the problem as Tangmere would still need to be strengthened to make it safe in the long-term. The cost of providing heat and hot water to Tangmere through temporary boilers would be approximately £1.3m, as new pipework, heat interface units and temporary boilers would need to be installed to the block. If a Cabinet decision were made later this year to carry out strengthening works to Tangmere, some of this new infrastructure would need to be removed to allow the strengthening works to take place.

 

Furthermore, if Cabinet decides later this year that strengthening works should be carried out to Tangmere, residents of Tangmere would still need to be temporarily rehoused to allow these works to take place.

 

Consultation on preferred option

 

The Council could consult residents on a preferred option to carry out the strengthening works, or consult without expressing a preferred option. However, the impact of the costs of the strengthening works as set out in this report would have a major impact on the position of the Housing Revenue Account. This would mean that investment in other Council homes and estates would need to be re-profiled.The Council has preferred option for both blocks is therefore to demolish the blocks and rebuild the homes on the estate.