Value for Money UnitLocal Government Audit Service
Management and Maintenance of Vacant Dwellings in
Local Authorities
Report No. 27 May 2011
Environment, Community and Local GovernmentComhshaol, Pobal agus Rialtas Áitiúil
Local Government Audit Service
The Local Government Audit Service (LGAS), incorporating the Value for Money (VFM) Unit, being an
external audit service, provides independent scrutiny of the financial stewardship of local authorities.
The sectoral goals of the LGAS are to:
• carry out the audits of local authorities and other bodies in accordance with the Code of Local Government
Audit Practice thereby fostering the highest standards of financial stewardship and public accountability
• promote the achievement of value for money in local authorities by undertaking Value for Money audits
and publishing reports thereon.
It is the responsibility of local authority management to ensure that value for money is achieved by
establishing and maintaining sound arrangements including procedures for planning, appraisal, authorisation
and control of resources.
Value for Money UnitLocal Government Audit Service
Management and Maintenance of Vacant Dwellings in
Local Authorities
Department of the Environment,Community and Local Government
© Department of the Environment, Community and Local Government 2011
This report was prepared on the basis of information, documentation and explanations obtained from thepublic bodies referred to in the report. The draft report was sent to the local authorities that participated inthe study. Where appropriate the comments received were incorporated in the final version of the report.
The website of the Department of the Environment, Community and Local Government is the primarymeans of publishing reports of the Value for Money Unit of the Local Government Audit Service. Shouldany errata arise they will be corrected and noted in the report published athttp://www.environ.ie/en/Publications/LocalGovernment/AuditService/
Contents
PAGE
MINISTER’S FOREWORD 3
EXECUTIVE SUMMARY 5
1. INTRODUCTION 16
2. QUESTIONNAIRE ON HOUSING MAINTENANCE 18
AND MANAGEMENT
3. SERVICE INDICATORS 29
4. FINDINGS 34
5. RECOMMENDATIONS 38
6. ACkNOWLEDGEMENT 43
7. APPENDICES 44
_____________________________________________________________________Local Government Audit Service, VFM Unit
APPENDICES
APPENDIX 1 - Number of Local Authority dwellings
2007 and 2008 46
APPENDIX 2 - Number of Local Authority Dwellings
not subject to major refurbishment 2007 and 2008 47
APPENDIX 3 - 2007 Vacant Dwellings 48
APPENDIX 4 - 2008 Vacant Dwellings 49
APPENDIX 5 - 2007 Vacant Dwellings available for re-letting 50
APPENDIX 6 - 2008 Vacant Dwellings available for re-letting 51
APPENDIX 7 - 2008 Average time taken to re-let a dwelling 52
APPENDIX 8 - 2007 and 2008 percentage of housing repairs
completed 53
APPENDIX 9 - Pre Tenancy Training Courses 54
APPENDIX 10 - County and City Manager’s Association
Submission 55
APPENDIX 11 - Northern Ireland Housing Executive 57
_____________________________________________________________________Local Government Audit Service, VFM Unit
In the context of housing policy, the management and maintenance of local authority housing
stock is a matter for each individual local authority under Section 58 of the Housing Act, 1966.
My Department is committed to supporting local authorities in maintaining and improving the
quality of the national social housing stock through a range of measures including large-scale
urban regeneration programmes, improving the standard and energy efficiency of dwellings,
pre-letting repairs and improvement and refurbishment works to vacant properties in order to
return these to productive use as quickly as possible.
Constraints on the public capital programme and the reduction in new social housing supply
have added to the urgency of focussing on vacant stock. This is relevant both in terms of
vacancies management and rent receipts. In this regard, this Value for Money Study on
Management and Maintenance of Vacant Dwellings in Local Authorities by the Local
Government Audit Service is timely and informative. It makes a number of sound
recommendations in relation to issues such as maintenance and repairs, allocation and refusals,
tenant sustainability, information technology, documentation and resourcing – all of which will
help local authorities in implementing improvement works programmes.
Service Indicators were introduced in 2004 to monitor the performance of local authorities
across a range of services that they provide. These are published on a yearly basis by the Local
Government Management Agency (incorporating the proposed merger of the Local Government
Management Services Board and the Local Government Computer Services Board). Service
Indicators for local authority housing stock, especially the figures in relation to dwellings that
are empty and on the time taken to re-let available dwellings, highlight areas of particular
concern. According to the 2009 Service Indicators Report, over 3% of housing stock was vacant.
In addition to revenue resources for ongoing repair and maintenance works, local authorities
have direct control of internal capital receipts in order to undertake planned maintenance and
improvement works to their housing stock, including repairs to vacant housing stock for the
purpose of re-letting. A more target-driven, cost effective and administratively efficient
improvement programme is now being implemented. Making vacant stock available for re-
letting will be a priority in 2011. In view of the decline in internal capital receipts, my
Department has gradually increased the level of capital support to local authorities for
improvement works and refurbishment of long term voids. Achieving value for money is now
more critical than ever. I am confident that this VFM Study will be of significant assistance to
the local authorities in implementing their improvement programmes in the years ahead.
Willie Penrose, T.D.,
Minister of State at the Department of Environment, Community and Local Government
May 2011
Minister’s Foreword
3
_____________________________________________________________________Local Government Audit Service, VFM Unit
_____________________________________________________________________Local Government Audit Service, VFM Unit
4
Executive Summary
5
1. Overview
Individual housing authorities are responsible for the management of local authority housing
stock. The minimum standards to which local authority housing should be maintained are
prescribed in the Housing (Miscellaneous Provisions) Act, 1992 and Regulations made under
this Act. Service Indicators in local authorities were introduced in 2004 to measure the
performance of local authorities across a range of services. The Local Government Management
Services Board (LGMSB) was given the task of monitoring and verification of the data as well as
the compilation and analysis of the indicators. Each local authority is responsible for submitting
and verifying data on the range of indicators. The information is collated into tables which
enable comparisons to be made across local authorities and the performance of individual local
authorities to be tracked on an annual basis. The Service Indicators were first published in 2005.
The LGMSB is required to submit an annual report to the Minister for the Environment,
Heritage and Local Government (the Minister). An independent assessment panel, appointed by
the Minister, quality assures the process.
2. The Study
The Value for Money (VFM) Unit of the Local Government Audit Service (LGAS) undertook a
study on the maintenance and management of vacant dwellings in the following eight
participating local authorities:
• Cavan County Council
• Cork City Council
• Dublin City Council
• Dún Laoghaire – Rathdown County Council (DLR)
• Galway City Council
• Kerry County Council
• Mayo County Council
• Wicklow County Council
The study was carried out through the issue of a questionnaire and structured interviews. The
Northern Ireland Housing Executive was visited and also the housing Service Indicators
published by the LGMSB were reviewed.
The areas addressed by this study were:
• The level of vacancies in local authorities at 31 December 2007 and 31 December 2008
• The identification of the main reasons for the delay in re-letting vacant dwellings
• The LGMSB Service Indicators in Local Authorities for 2007 and 2008. This report was
completed prior to the publication of the LGMSB Service Indicators for 2009.
• Recommendations to address the delays in the time period for the re-letting of vacant
dwellings.
_____________________________________________________________________Local Government Audit Service, VFM Unit
_____________________________________________________________________Local Government Audit Service, VFM Unit
6
3. Housing Stock Statistics
The total number of vacant dwellings in local authorities at 31 December 2007 and 2008 was
6,115 and 7,045 respectively representing 5.2% and 5.75% of the total stock on hand at those
dates. The table below gives a break down of these figures by the numbers of vacant dwellings
which were:
• Subject to major refurbishment
• Available for letting and
• Unavailable for letting.
The vacant dwellings unavailable for re-letting are subject to maintenance and refurbishment
work which is necessary in order to re-let the dwelling.
Housing Stock Statistics
Source: LGMSB Service Indicators Reports
2008 2007
The level of housing stock in local authorities at 31 December 122,446 118,276
Total housing stock that was subject to major refurbishmentprogrammes in the local authorities at 31 December
3,186 1,025
% of total housing stock that was subject to major refurbishmentprogrammes in the local authorities
2.6% 0.87%
Number of dwellings that were available for re-letting at 31 December 1,425 1,529
% of dwellings that were available for re-letting at 31 December 1.2% 1.3%
Number of dwellings unavailable for re-letting at 31 December 2,434 3,561
% of vacant dwellings unavailable for re-letting at 31 December 2% 3%
Average time taken by local authorities in 2008 to re-let a vacantdwelling in weeks.
22.43 -
7
4. Findings
Procurement Initiative Undertaken by Dublin City Council
Dublin City Council with the approval of the Department has embarked on a pilot project with
regard to a new type of contract for maintenance and refurbishment work. The new type of
contract is called a Term Maintenance and Refurbishment Works Contract (TMC). It is expected
that the use of this type of contract will significantly reduce the re-letting time for vacant
properties.
This new form of contract has been developed in response to a need to have in place a public
works contract that enables a contracting authority to respond to urgent maintenance and
refurbishment requirements as they arise and without having to engage in a procurement
process for each such circumstance.
Key features and principles of the TMC include;
• a competitive tendering process based on notional works as described in the pricing
document
• a contract without commitment unless activated by the issue of a Task Order to the
Contractor to carry out works and
• A contract limited by duration and/or aggregated value of Task Orders, whichever is
achieved first.
Department of Finance Circular 10/10: Facilitating SME Participation in Public
Procurement
The Department of Finance Circular 10/10: Facilitating SME Participation in Public
Procurement, dated 13 August 2010, has the intended purpose of ensuring that small and
medium sized businesses would not be hindered in competing for contracts that they could
perform effectively.
Use of the Term Maintenance and Refurbishment Works Contract, due to the aggregation of
separate works by means of Task Orders into a single contract, might be perceived as
disadvantaging the SME sector and therefore specific conditions are required to ensure that this
does not happen. Accordingly, it is a requirement for using the Term Maintenance and
Refurbishment Contract that an open tendering procedure should be used and that suitability
criteria (including economic and financial standing) be specified that would not exclude
contractors capable of performing the contract effectively. Consideration should also be given to
dividing the works into contract lots, possibly on the basis of defined geographic areas. This has
the advantage of facilitating effective competition even from smaller contractors, and helps to
sustain a competitive market into the future.
_____________________________________________________________________Local Government Audit Service, VFM Unit
_____________________________________________________________________Local Government Audit Service, VFM Unit
8
Reasons for Delays in Re-letting Vacant Dwellings
The reasons for delays vary from one local authority to another. The main reasons for the delays
in re-letting vacant dwellings as indicated in the LGMSB service indicator returns and from site
visits during this VFM study are as follows:
• The amount of necessary pre-letting repair work that needs to be carried out in order
that the dwelling can be re-let. This work can be quite extensive where unauthorised
renovations or alterations have been carried out to the dwelling by the tenant. Some of
the dwellings are in such a state of disrepair that major refurbishment work needs to be
undertaken. Health and safety issues are a major consideration when carrying out the
pre-letting repair work.
• There is a high level of private rented accommodation available in the housing market.
This accommodation is available to some prospective local authority tenants at a
subsidised rent under the rental accommodation scheme. The accommodation is seen as
superior and available in better locations. Prospective tenants are unwilling to accept
what is perceived as inferior accommodation from local authorities.
• Budgetary constraints and a lack of internal capital receipts
• Shortage of staff resources for maintenance and refurbishment work
• The process of advertising, reviewing tenders, award of contracts and contractors
arriving on site for maintenance and refurbishment works can take a considerable length
of time to complete.
• The refusal of offers of vacant dwellings because of the following:
- Dwellings in low demand areas or areas perceived as undesirable locations
- Applicants are allowed two/three refusals of a reasonable offer of accommodation
- One of the participating local authorities stated that there are a number of Senior
Citizen bed sits that are void on an ongoing basis as prospective tenants will not
accept such accommodation and are prepared to wait for more suitable
accommodation.
- The vacant dwellings available do not match the needs of the applicants
• Risk of vandalism of vacant dwellings in certain areas means that dwellings are only
repaired on allocation
• All dwellings have to be assessed for an energy rating under Building Energy Rating
(BER)
• Planned regeneration programmes carried out by local authorities
• Time gap between the allocation of a dwelling and occupancy by the new tenant. These
properties are listed in the Service Indicators as a vacant dwelling until the first rent
debit has been raised
• On the death of a tenant, their rent account is immediately closed and the housing
system records that the dwelling is vacant. Normally the family of the deceased person
is given a period of weeks on compassionate grounds to dispose of the persons
furnishings and belongings
9
• In some cases, there is a dispute regarding the right of a family member of a deceased
tenant to succeed to the tenancy. Such cases often become the subject of legal
proceedings that can take a considerable time to bring to a conclusion.
Maintenance and Refurbishment
• Pre inspections of dwellings are not always carried out prior to the tenant vacating the
dwelling
• The eight participating local authorities used different methods of costing for in-house
maintenance and refurbishment work
• A formal inspection of all local authority dwellings is not carried out on a rotational
basis
• Different definitions were used among the eight participating local authorities for what
constituted a long term void.
Tenant Sustainability
• Responses to the questionnaire indicated best practice in relation to a) the capability of
prospective tenants for independent living, b) the measures taken in order to sustain the
tenancy and c) the measures in place to minimize the refusal of an offer of a dwelling.
• In 2008 all local authorities ran pre tenancy training for new tenants. The average
number of new tenants offered courses was 79.22% and varied from a low of 18.6% in
one local authority to a high of 100% in fourteen local authorities.
• A number of local authorities issue new tenants with a tenant handbook. However there
is no consistency on the content of these handbooks.
• A number of local authorities do not hold regular meetings with tenants or their
representative associations nor do they seek feedback from them on maintenance or
refurbishment work carried out on their behalf.
Documentation
The level of documentation held by the eight participating local authorities on various aspects of
the housing area varied considerably.
Information Technology (I.T.)
The level of I.T. systems for tracking vacant dwellings throughout the entire process from
vacation of the property to the allocation to a new tenant varied considerably among the eight
participating local authorities.
Local Authority Retrofitting Programme
To ensure that the national stock of 130,000 local authority-owned dwellings is maintained to a
high standard, achieves improved levels of energy performance, reduces emissions and yields an
important fuel poverty dividend for low income households, the Department established a
specific retrofitting programme for local authority stock in mid-2009. The programme initially
targeted the improvement of vacant local authority stock to facilitate its immediate return to
viable use. It also supported works to occupied/semi-occupied flat complexes. The retrofit
_____________________________________________________________________Local Government Audit Service, VFM Unit
_____________________________________________________________________Local Government Audit Service, VFM Unit
10
works aimed to achieve a BER rating of C1, where practicable, with a maximum grant per unit
of €15,000 or 75% of the total cost, whichever was the lesser. At the end of 2009, local
authorities reported works to some 1,155 units at a cost to the exchequer of almost €11 million.
In 2010 the programme funding was revised to account for the reduced availability of co-
funding resources in local authorities. The exchequer contribution increased to €15,000 or 90%
of cost, whichever is the lesser, for casual vacancies (those units vacant for less than six months),
and up to €35,000 or 90% of cost, whichever is the lesser, on void properties (units vacant for
more than six months). With a view to further assisting the local authorities, the programme was
expanded to include works to clusters of occupied units. In 2010, the first full year in
operation, the programme delivered some 3,100 improved units, 1,836 of which were vacant
units – at a cost to the exchequer of almost €37 million. The figures referred to above have been
supplied by the Operational and Management/Improvement of Housing Section of the
Department.
In light of the lessons learned over the early implementation stage and the recommendations set
out in this report, the Department has reviewed the orientation of the programme for 2011 and
placed a strong focus on refurbishment works to vacant and void properties in order to bring
these back into productive use. In the case of certain seriously deficient properties, a capital
grant of up to 60% of the replacement cost of the dwelling will be provided towards
refurbishment cost. From 2012 onwards, a specific target will be agreed with each local authority
to ensure properties are returned to use in a timely fashion, with a particular focus on void
properties.
Department Circular
The Department issued Circular SHIP 2011.05 Improving the Social Housing Stock to all local
authorities in February 2011. The circular addresses the need to improve the standard and
energy efficiency of local authority owned housing stock and, in particular, the urgency in
making vacant units available for letting as quickly as possible.
11
5. Recommendations
Maintenance/Repairs
• It is essential that the pilot project being undertaken by Dublin City Council i.e. the
introduction of the TMC, be fully tested and a report produced with findings and
recommendations on the new system by the local authority and issued to the
Department within one year of its implementation. If the use of the TMC is proven to be
successful in significantly reducing the re-letting time for vacant dwellings then the
Department should develop a guidance note and a template for the use of such contracts
and issue these to all local authorities immediately following the receipt of the report by
Dublin City Council. Local authorities should then embark on the use of such contracts
for maintenance and refurbishment work. The TMC should be implemented on a
regional or shared services basis by local authorities. As well as local authorities
adhering to domestic and EU procurement guidelines when awarding contracts for
repair, refurbishment and maintenance work they should also ensure that they are in
compliance with Department of Finance Circular 10/10 Facilitating SME Participation in
Public Procurement.
• Local authorities should access the funding available through the Department’s
retrofitting programme which will assist them in carrying out refurbishment works to
vacant and void properties in order to bring these back into productive use.
• Local authorities should comply with the requirements of circular SHIP 2011.05
Improving the Social Housing Stock.
• As budgetary constraints are likely to continue there is a need for local authority
management to take a more proactive role in re-letting vacant dwellings.
• Local authorities should carry out a pre inspection of a dwelling where a tenant has
given notice to vacate. An assessment of the work needed on the dwelling should be
carried out and assigned as either the responsibility of the tenant or the council. A
second inspection should be carried out prior to the dwelling being vacated. Any
additional costs incurred by the council on carrying out works that were assigned to the
tenant should be charged to the tenant.
• Local authorities should carry out formal inspections of all its dwellings on a regular
basis. Local authorities should then take preventative measures to address any problems
that arise with regard to repairs, maintenance or alterations to the dwelling which
should reduce the time taken on repairs when a dwelling is vacated.
• Local authorities should assess the level of refurbishment work needed on dwellings
and reduce this where possible while ensuring compliance with health and safety
_____________________________________________________________________Local Government Audit Service, VFM Unit
12
standards e.g. if alterations to a dwelling carried out by previous tenant are not to be
removed, the new tenant should be asked to sign an acceptance form for the dwelling
with the alterations included. The assessment should also take account of health and
safety and fire compliance standards.
• One standardised method of costing for in house maintenance and repair work should
be agreed through the City and County Managers Association (CCMA) and used by all
local authorities. In this way comparisons can be made between the overall costs of jobs
within a local authority and between different local authorities.
• There should be a standard definition, for all local authorities for what constitutes a
long term void e.g. a dwelling vacant in excess of six months. Long term voids are
usually the result of either the level of work needed on the dwelling or because it is in
an area within the local authority that is perceived as undesirable. As a priority local
authorities should implement measures to address the issue of long term voids by
introducing measures to deal with:
- The repair work on long term voids to make them fit for re-letting
- Environmental problems in an area of the local authority that give rise to long term
voids
- Anti social behaviour problems that make an area within the local authority low
demand or undesirable.
When compiling statistics on the length of time taken to re-let a dwelling long term
voids should be treated as a separate category. This will make the Service Indicators
more meaningful when presenting information on the average re-letting time for vacant
dwellings.
• The Department in conjunction with the CCMA should develop protocols for response
times for emergency, urgent and routine maintenance and repair requests. The record
for response times by each local authority against the standard times set should be
reported by the LGMSB in its Service Indicators. This will facilitate comparison of
performance in this area between local authorities and within a local authority over a
number of years.
Allocations/Refusals
• It is essential that local authorities allocate a vacant dwelling as early as possible in the
re-letting process. This should be done at the same time as the award of the tender prior
to the commencement of work on the dwelling. This procedure would reduce the
allocation time for a dwelling and lead to a reduction in overall time for the re-letting
process. This potential reduction in time that a dwelling is vacant will reduce the
security and shuttering costs and should result in an increase rental income.
_____________________________________________________________________Local Government Audit Service, VFM Unit
• There should be a standard definition used by all local authorities for what constitutes
the re-letting period for a vacant dwelling e.g. the period between the last rental debit
on the occupier vacating the dwelling to the first rental debit on the new occupier of the
dwelling. The definition should give clear instructions on when a dwelling is to be
considered a vacant dwelling and when it is a re-occupied dwelling. This would
facilitate reporting on performance across all local authorities in this area.
• Local authorities should assess and maintain records of the specific needs of prospective
tenants. Offers of accommodation should only be made where the needs of the
prospective tenant match the accommodation available. This should reduce the number
of refusals of dwellings and reduce the re-letting time for vacant properties.
• Local authorities should operate a refusal policy whereby tenants that refuse two
reasonable offers of accommodation should suffer substantial penalties such as a
considerable points reduction (if points system in operation) or be placed further down
the waiting list for a set period of time. In order for this policy to be successful, local
authorities would need to monitor its implementation and the effect on it of the Rental
Accommodation Scheme (RAS), which may offer a higher standard of accommodation
to local authority tenants.
• Local authorities need to implement measures to counter the negative perception of
certain low demand or undesirable areas within its remit. This should include
interaction with local community groups to address any problems such as anti social
behaviour in these areas. The local authority should also implement measures to
improve the physical environment in these areas.
• Local authorities need to have clear policies in place where either legal issues, personal
factors or disputes as to the rights of relatives are affecting the allocation of a dwelling
to a new tenant. There should be a clearly defined timeframe in place which is sensible
and reasonable for the resolution of this problem.
Tenant Sustainability
• In order to ensure the capability of prospective tenants for independent living they
should be subject to a pre-tenancy interview by a housing officer. At the interview any
special or medical needs are assessed and advice is sought from the housing welfare
officer or the HSE. A second interview is carried out with the prospective tenant where
identified problems can be solved.
• The measures taken in order to sustain the tenancy should include a pre- tenancy
interview where the tenant’s responsibilities are outlined. Follow up visits should be
organized by council housing staff to ensure that the tenant is complying with their
responsibilities. There should be ongoing communication with new tenants and if
13
_____________________________________________________________________Local Government Audit Service, VFM Unit
problems do arise the Housing Welfare Officer or a Social Worker will be involved.
Regular inspections of all dwellings should be carried out by council staff.
• The measures in place to minimize the refusal of an offer of a dwelling should ensure
that all dwellings are renovated to the appropriate standards prior to allocation. A
report should be produced by a Housing Investigation Officer in respect of the
prospective tenant and discussions take place with regard to the housing options
available. Offers are made on the basis of the local authorities system of letting priorities
and the preferences indicated by prospective tenants. Two refusals of a tenancy will
result in the prospective tenant losing points or either being suspended or being
removed from the housing list for a specified period.
• There should be an ongoing assessment by local authorities of the needs of their tenants.
• Local authorities should make pre-tenancy training courses available to all new tenants
and the new tenants must partake in the pre-tenancy courses prior to being allocated a
dwelling.
• A tenant handbook should be given to all tenants. The handbook should clearly define
the responsibilities of the local authority and the tenant with regard to routine
maintenance and repair work on a dwelling. This should enable local authority staff to
carry out emergency and urgent work on dwellings.
The handbook should cover the following areas:
- Introduction
- Tenancy and tenancy conditions
- Rents and rent assessment
- Responsibility for repairs and maintenance
- Safety in your home
- Housing options
- Housing welfare
- Combating anti social behaviour
- Waste, recycling and energy saving
- Useful contacts.
• There should be regular meetings with residents’ representatives on estate management
at district or neighbourhood level and problems raised such as anti social behaviour, the
physical environment of the area, vacant dwellings and any maintenance or repair work
required on properties should be addressed quickly by the local authority.
• Local authorities should look for feedback from their tenants on the level of service
provided by using a formal feedback form and they should provide a summary
statement on the results of the feedback received in their annual report.
_____________________________________________________________________Local Government Audit Service, VFM Unit
14
15
Documentation
• All local authorities should produce documents in the housing area such as:
- Housing Strategy – policy on housing management, housing action plan
- Anti-Social Behaviour Policy and Procedures
- Action plan on homelessness
- Scheme of letting priorities
- Tenant Handbook
- Welcome Pack for New Tenants
- Code of Practice for maintenance and contract staff
The Department and the CCMA should issue guidance on the contents of the documents listed
above, where such guidance is not already available.
Information Technology (I.T.)
• Local authorities should use an I.T. system to track and provide management
information on vacant dwellings across the rents section, the allocations section, the area
teams and housing maintenance section. The module should track progress in the
processing of vacant dwellings across all areas of the local authority and enable the local
authority to highlight where the delays in the system arise and enable it to tackle these
areas and ensure a faster turnover of properties.
• Local authorities should use I.T. to gather information and report on housing vacancies
at 31 December each year under the following headings in their annual report:
- Level of vacancies
- Type of vacancies
- Length of time dwellings are vacant
- The stage the vacancy is at – vacated, major refurbishment, pre-letting repairs being
carried out and allocated to tenant
- Long term voids
- Dwellings subject to major refurbishment/major works
_____________________________________________________________________Local Government Audit Service, VFM Unit
1.1 Background
The responsibility for the management of local authority housing stock resides with the
individual housing authorities concerned, in accordance with section 58(1) of the Housing Act
1966. The minimum standards to which local authority housing should be maintained are
prescribed in the Housing (Miscellaneous Provisions) Act 1992. The Department of the
Environment, Heritage and Local Government (the Department) made available co-funding of
€20m in 2009 and €40m in 2010 under the Social Housing Investment Programme for the
retrofitting of vacant properties both casual and planned, across local authority housing stock.
1.2 The Value for Money Study
The areas addressed by this study are:
• The level of vacancies in local authorities at 31 December 2007 and 31 December 2008
• The identification of the main reasons for the delay in re-letting vacant dwellings
• The Local Government Management Services Board (LGMSB) Service Indicators in
Local Authorities for 2007 and 2008. This report was completed prior to the publication
of the LGMSB Service Indicators for 2009.
• Recommendations to address the delays in the time period for the re-letting of vacant
dwellings.
1.3 Basis for Selection
The eight local authorities participating in the study were chosen following a review of statistics
submitted to the Department, and their geographical spread. The participating authorities were
Dublin, Cork and Galway City Councils and Dún Laoghaire-Rathdown, Kerry, Cavan, Mayo
and Wicklow County Councils.
1.4 Methodology
A questionnaire was prepared with the assistance of the social housing section of the
Department and two local authorities. Visits were carried out to the participating authorities,
where the responses to the questionnaire were validated. A visit was made to the Northern
Ireland Housing Executive where meetings were held with personnel from the housing policy
and support section and the section dealing with performance indicators. Among the topics
discussed were the awarding of contracts for maintenance and repair of dwellings, the level of
vacancies, the type of reports produced and their interaction with tenants. A review was
undertaken of the housing Service Indicators submitted by the local authorities to the LGMSB.
1.5 Advisory Group
As part of the study process an advisory group was established comprising representatives from
the local authorities housing directorates and Departmental officials.
1.6 Local Authority Retrofitting Programme
To ensure that the national stock of 130,000 local authority-owned dwellings is maintained to a
high standard, achieves improved levels of energy performance, reduces emissions and yields
an important fuel poverty dividend for low income households, the Department established a
1. Introduction
_____________________________________________________________________Local Government Audit Service, VFM Unit
16
specific retrofitting programme for local authority stock in mid-2009. The programme initially
targeted the improvement of vacant local authority stock to facilitate its immediate return to
viable use. It also supported works to occupied/semi-occupied flat complexes. The retrofit
works aimed to achieve a BER rating of C1, where practicable, with a maximum grant per unit
of €15,000 or 75% of the total cost, whichever was the lesser. At the end of 2009, local
authorities reported works to some 1,155 units at a cost to the exchequer of almost €11 million.
In 2010 the programme funding was revised to account for the reduced availability of co-
funding resources in local authorities. The exchequer contribution increased to €15,000 or 90%
of cost, whichever is the lesser, for casual vacancies (those units vacant for less than six months),
and up to €35,000 or 90% of cost, whichever is the lesser, on void properties (units vacant for
more than six months). With a view to further assisting the local authorities, the programme was
expanded to include works to clusters of occupied units. In 2010, the first full year in
operation, the programme delivered some 3,100 improved units, 1,836 of which were vacant
units – at a cost to the exchequer of almost €37 million. The figures referred to above have been
supplied by the Operational and Management/Improvement of Housing Section of the
Department.
In light of the lessons learned over the early implementation stage and the recommendations set
out in this report, the Department has reviewed the orientation of the programme for 2011 and
placed a strong focus on refurbishment works to vacant and void properties in order to bring
these back into productive use. In the case of certain seriously deficient properties, a capital
grant of up to 60% of the replacement cost of the dwelling will be provided towards
refurbishment cost. From 2012 onwards, a specific target will be agreed with each local authority
to ensure properties are returned to use in a timely fashion, with a particular focus on void
properties.
1.7 Department Circular
The Department issued Circular SHIP 2011.05 Improving the Social Housing Stock to all local
authorities in February 2011. The circular addresses the need to improve the standard and
energy efficiency of local authority owned housing stock and, in particular, the urgency in
making vacant units available for letting as quickly as possible.
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17
2.1 General
A questionnaire was prepared with the assistance of the Department (Social Housing Supply,
Regeneration and Management Section) and two local authorities. This questionnaire, issued to
eight local authorities, covered the following areas:
• Procedures for monitoring of vacant dwellings
• Management of Vacant Dwellings
• Finance and Staffing
• Maintenance Requests
• Contract/In House maintenance
• Performance Indicators.
Seven of the eight local authorities have a written policy on housing management. The policies
varied and were contained in a number of documents provided by the authorities:
• The local authority corporate plan
• Statement of policy on housing management
• Housing action plan
• Housing strategy
• Anti social behaviour
• Traveller accommodation
• Scheme of letting priorities
• Action plan on the homeless
• Tenant handbook.
2.2 Vacant Dwellings Procedures
In the normal course of events dwellings are subject to a thorough inspection when vacated.
These inspections are used to assess the level of work that needs to be carried out on the
dwelling before it can be re-let. Some local authorities have introduced a pre inspection of the
dwelling prior to the tenant vacating. This inspection is used to highlight to the tenant the level
of work that needs to be carried out on a dwelling by the tenant prior to vacating. A post
vacating inspection is also carried out to ascertain if this work has been completed. All eight
local authorities indicated that Building Energy Rating (BER) as required by regulation now
forms part of the refurbishment of vacant dwellings. Local authorities are statutorily required to
provide BER to new tenants.
There is no consistent definition in the eight authorities as to what constitutes a long term void.
From the responses received it varies from a dwelling vacant for three months to in excess of a
year. One local authority has no classification and another determines a long term void as a
dwelling subject to major refurbishment. Table 1 gives details of the number of long term voids,
dwellings abandoned by the tenant and illegally occupied dwellings in the eight local
authorities at 31 December 2008.
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2. Questionnaire on Housing Maintenance and Management
19
Table 1 – Voids, Abandoned and Illegally Occupied Dwellings at 31 December 2008
Source: Questionnaire issued to the eight participating local authorities and the LGMSB Services
Indicators
* 34 dwellings vacant in excess of 12 months
# all dwellings subject to major refurbishment
2.3 Management of Vacant Dwellings
Each local authority has set out its own scheme of letting priorities. In most of the local
authorities if a tenant refuses two reasonable offers they are penalized in the letting scheme. A
reasonable offer of a dwelling excludes offers in low demand or undesirable areas or of the
wrong type of accommodation.
Dwellings are classified occupied in the following scenarios:
• Tenancy agreement signed – 6 local authorities
• Keys Collected – 1 local authority
• First rent debit – 1 local authority.
Two important initiatives introduced by local authorities in recent years are pre tenancy training
courses and the introduction of tenant handbooks to make tenants aware of their
responsibilities. The eight participating local authorities offer pre tenancy training to new
tenants. Three of the local authorities issue the tenants with a handbook which sets out their
_____________________________________________________________________Local Government Audit Service, VFM Unit
Local AuthorityDefinition of
Long Term Void
Level ofHousing
Stock
No. of Long Term
Voids
% ofHousing
Stock
No. ofAbandoned
andIllegally
OccupiedDwellings
Cavan County CouncilMajor
refurbishment1,792 4 0.22 2
Cork City Council > 6 months 8,514 104* 1.22 3
Dublin City Council > 6 months 27,066 163 0.6 None
Dún Laoghaire-RathdownCounty Council (DLR)
> 6 months 4,153 7 0.17 6
Galway City Council No classification 2,137 None Zero None
Kerry County Council > 6 months 3,931 12 0.31 None
Mayo County Council > 3 months 2,054 40# 1.95 9
Wicklow County Council > 1 year 4,188 7 0.17 None
responsibilities. One local authority ensures that the tenant signs a pre tenancy agreement. The
level of take up of tenancy training in 2008 was supplied by each local authority to the LGMSB
as part of their Service Indicators. The Service Indicators for the eight local authorities surveyed
are shown in Table 2.
Table 2 – Pre-Tenancy Training in 2008
Source: 2008 LGMSB Service Indicators
Best practice as indicated by the responses to the questionnaire in relation to the capability of
prospective tenants for independent living, the measures taken in order to sustain the tenancy
and the measures in place to minimize the refusal of an offer of a dwelling are detailed below
and should form part of all local authorities strategy in these areas.
- Tenants are subject to a pre tenancy interview by a housing officer. At the interview any
special or medical needs are assessed and advice is sought from the housing welfare
officer or the HSE. A second interview is carried out with the prospective tenant where
identified problems can be solved.
- During a pre tenancy interview the tenant’s responsibilities are outlined. Follow up
visits are organized by council housing staff to ensure that the tenant is complying with
their responsibilities. There is ongoing communication with new tenants and if
problems do arise the Housing Welfare Officer or a Social Worker will be involved.
Regular inspections of all dwellings should be carried out by council staff.
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Local Authority
Number ofnew localauthoritytenants
% of newtenantsofferedcourses
Cavan County Council 277 96.8
Cork City Council 413 18.6
Dublin City Council 902 51.4
Dún Laoghaire-Rathdown County Council 112 43.8
Galway City Council 193 35.8
Kerry County Council 295 80
Mayo County Council 146 100
Wicklow County Council 246 67.1
- All dwellings are renovated to the highest standards prior to allocation. A report is
produced by a Housing Investigation Officer in respect of the prospective tenant and
discussions take place with regard to the housing options available. Offers are made on
the basis of the local authorities system of letting priorities and the preferences indicated
by prospective tenants. Two refusals of a tenancy will result in the prospective tenant
losing points or either being suspended or removed from the housing list for a specified
period.
2.4 Finance and Staffing
The expenditure in the eight local authorities surveyed on the maintenance and improvement of
local authority housing units including service support costs is shown in Table 3 below.
Table 3 - Overall Maintenance Expenditure 2008
Source: VFM Questionnaire issued to the eight participating local authorities
21
_____________________________________________________________________Local Government Audit Service, VFM Unit
Local AuthorityOverall Expenditure
€000
Cavan County Council 1,386
Cork City Council 11,684
Dublin City Council 51,824
Dún Laoghaire-Rathdown County Council
12,034
Galway City Council 2,500
Kerry County Council 1,096
Mayo County Council 430
Wicklow County Council 889
The total number of full time equivalents employed by the eight local authorities on housing
maintenance is shown in Table 4 below.
Table 4 - Number of Full Time Equivalents
Source: VFM Questionnaire issued to the eight participating local authorities
The average cost of refurbishing a dwelling varies considerably between local authorities.
The cost of repairs to a dwelling depends on the extent of pre-letting repair work to be carried
out, the extent of renovations or alterations that have been carried out to the dwelling and if the
property is to be fitted with new windows, boiler or a central heating system. Local authorities
use different methods for calculating the cost of maintenance jobs which makes it difficult to
compare costs and ensure that value for money is achieved.
In relation to a question on the cost of security for unoccupied dwellings, the four rural local
authorities Cavan, Kerry , Mayo and Wicklow County Councils stated that these costs were
either nil or were not applicable to the local authority. The four urban local authorities stated
that costs related to security were as follows:
Cork City Council - Total cost €226,444
Dublin City Council - Total cost €312,000
DLR County Council - Average cost of €145 per unit per month
Galway City Council - Average cost €1,000 per unit.
2.5 Maintenance Requests
Details are contained in the tenant handbook used by a number of local authorities of how and
to whom a request for maintenance work can be made. The handbook contains contact names
and numbers and the times when a request can be made. When making a request for
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Local Authority Number of Full Time Equivalents
Cavan County Council 9
Cork City Council 169
Dublin City Council 711.5
Dún Laoghaire-Rathdown County Council
42
Galway City Council 43
Kerry County Council 9
Mayo County Council 5
Wicklow County Council 23
maintenance work to be carried out on a dwelling a tenant may communicate with the local
authority by phone, in writing, by e mail at the public counter or through a public
representative. Requests can be made to the customer services section, customer care, to the
housing liaison officer or revenue collector. All requests are logged electronically. Local
authorities use different systems for logging requests. Requests are categorized as Emergency,
Urgent and Routine.
Emergency requests can be made on a twenty four basis in three of the eight local authorities
surveyed. A further two local authorities provide a limited emergency request service outside of
normal office hours. Three local authorities do not provide a service outside of normal office
hours. Only one local authority provides a written acknowledgement of maintenance requests
received to all its tenants. A second local authority does so in certain cases.
Table 5 shows the percentage of housing repairs that were completed during 2008 by the eight
local authorities and the percentage outstanding at 31 December 2008.
Table 5 – Housing Repairs at 31 December 2008
Source: LGMSB Service Indicators
Each local authority has a preventative maintenance programme in place. The programmes vary
to a great extent and are dependent on the availability of funding and internal capital receipts.
All local authorities should have a defined five year preventative maintenance programme in
place.
23
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Local Authority% Housing
RepairsCompleted
% HousingRepairs
Outstanding
Cavan County Council 78.38 21.62
Cork City Council 93.24 6.76
Dublin City Council 85.53 14.47
Dún Laoghaire-Rathdown County Council 99.83 0.17
Galway City Council 99.88 0.12
Kerry County Council 97.03 2.97
Mayo County Council 85.42 14.58
Wicklow County Council 94.92 5.08
2.6 Contract / In House Maintenance
All eight local authorities surveyed employ contractors to carry out repair and maintenance
work on their housing stock. Contractors are mainly used for major refurbishment works such
as:
• Renovation of void properties
• Planned maintenance including replacement of doors, windows, facia, sofit and
guttering
• Refurbishment of badly damaged properties where the level of repair work required is
outside of the capacity of direct labour staff
• Improving the energy efficiency of properties
• Installation and maintenance of central heating systems
• Shuttering to secure vacant properties
• Large scale remedial works.
The participating local authorities stated that they complied with domestic and EU procurement
requirements. The participating local authorities also stated that they adhered to the financial
limits which apply when seeking tenders or quotations for contracts. They have established an
approved panel of contractors.
• In five of the local authorities all approved contractors for particular jobs are invited to
tender.
• In three of the local authorities selected contractors are invited to tender for the various
contracts with work spread throughout the entire approved panel of contractors.
• Specified tender documentation is used by all eight local authorities.
All eight local authorities employ their own maintenance staff to carry out routine maintenance
and repair work on the housing stock. The staff employed are qualified craftsmen. One local
authority surveyed stated that they did not cost this work but the other seven participating
authorities do cost the work carried out by their internal maintenance staff. The following are
the methods used:
• Time and materials used to complete repair and maintenance work on particular
projects
• Local authority maintain a rates schedule for maintenance and repair work
• Maintenance and repair work coded to individual dwellings
• Maintenance and repair work coded against local area budgeted costs
Six of the local authorities surveyed stated that they have a general customer charter. There are
procedures in place for dealing with complaints by the local authorities tenants. Seven local
authorities stated that they had procedures in place to allow tenants give feedback on
maintenance and repair work carried out. The systems varied between local authorities and
encompassed the following:
• Comment cards available at the housing office
• Phone, letter and public counter
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• Depot Clerks
• Local area office
• Tenant Liaison Officer
• Rent Collectors
• Estate Management Officer.
2.7 Performance Indicators
The questionnaire issued to the eight local authorities dealt with some performance indicators
relating to housing. The responses to the questionnaire were verified with the LGMSB Service
Indicators.
Table 6 shows the level of housing stock and the number of dwellings subject to major
refurbishment for the eight local authorities surveyed.
Table 6 – Housing Stock and Dwellings Subject to Major Refurbishment at
31 December 2008
Source: LGMSB Service Indicators
25
_____________________________________________________________________Local Government Audit Service, VFM Unit
Local AuthorityHousing
StockMajor
Refurbishment
% ofHousing
Stock
Cavan County Council 1,792 16 0.89
Cork City Council 8,514 198 2.33
Dublin City Council 27,066 2,103 7.77
Dún Laoghaire-Rathdown County Council 4,153 80 1.93
Galway City Council 2,137 0 0
Kerry County Council 3,931 54 1.37
Mayo County Council 2,054 40 1.95
Wicklow County Council 4,188 59 1.41
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Table 7 below shows the percentage and number of dwellings that were empty and the
percentage and number of those dwellings that were unavailable for letting as maintenance or
refurbishment work needs to be carried out excluding those subject to major refurbishment in
the eight local authorities at 31 December 2008.
Table 7 – Vacant Dwellings/Unavailable for Letting at 31 December 2008
Source: LGMSB Service Indicators
* includes newly purchased properties
The level of vacant dwellings varied from 1.57% to 8.9% in the eight local authorities surveyed.
The average for the 34 local authorities is approximately 3.5%. The numbers of dwellings
unavailable for re-letting is mainly due to the level of pre-letting repair work that has to be
carried out.
Local AuthorityVacant
Dewllings%
Number ofVacant
Dwellings
Unavailablefor Letting
%
NumberUnavailablefor Letting
Cavan County Council 8.9 158 44.94 71
Cork City Council 4.64 386 86.14 332
Dublin City Council 3.08 769 53.19 409
Dún Laoghaire-RathdownCounty Council
1.57 64 59.38 38
Galway City Council 5.9* 126 39.68 50
Kerry County Council 4.98 193 57.12 110
Mayo County Council 4.67 94 58.51 55
Wicklow County Council 2.39 99 65.99 65
Table 8 shows the average time taken to re-let a dwelling in the eight local authorities surveyed.
Table 8 – Average Time (Weeks) Taken To Re-Let a Dwelling
Source: LGMSB Service Indicators
There are a number of reasons for the long delays in re-letting a dwelling such as:
• Budgetary constraints due to the reduction in internal capital receipts and the shortage
of staff resources due to the moratorium on recruitment
• The high levels of refusals by applicants
• Dwellings in low demand areas
• The level of pre-letting repair work carried out
• Dwellings subject to major refurbishment or perceived as undesirable
• The matching of housing needs with housing stock.
These areas need to be tackled if the period for re-letting a property is to be reduced. As
budgetary constraints are likely to continue there is a need for local authority management to
take a more proactive role on the prevention of the causes of the delays in re-letting vacant
dwellings.
27
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Local Authority
From date ofvacation ofdwelling to
the datewhen allnecessaryrepairs arecarried out
From worksbeing
completed to date offirst rent
debit
Totalnumber of weeks
Cavan County Council 5 5.12 10.12
Cork City Council 18.32 7.03 25.35
Dublin City Council 21.77 6.05 27.82
Dún Laoghaire-Rathdown County Council 7.49 14.87 22.36
Galway City Council 3.91 2 5.91
Kerry County Council 8.92 27.56 36.48
Mayo County Council 17 3 20
Wicklow County Council 13.14 3.19 16.33
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Six of the eight local authorities surveyed set their own target times for responding to
repair/maintenance requests and kept records of their response times. These are published by
the LGMSB in the service indicator report. It is important that response times for maintenance
be set independently for all local authorities if the statistics relating to response times are to be
meaningful. The percentage of maintenance requests carried out on target in 2008 was as
follows.
• Cork City Council - 90%
• Dublin City Council - 85.5%
• Dún Laoghaire-Rathdown County Council - 98%
• Kerry County Council - 92.9%
• Galway City Council - 90%
• Mayo County Council - 85%
Source: Questionnaire issued to the eight participating local authorities
3.1 Introduction
Service Indicators were introduced in 2004 to measure the performance of local authorities
across a range of services. Each local authority is responsible for submitting and verifying data
on the range of indicators. The information is collated into tables which enable comparisons to
be made across local authorities and the performance of individual local authorities to be
tracked on an annual basis. The Service Indicators were first published in 2005. The Local
Government Management Services Board (LGMSB) was given the task of monitoring and
verification of the data as well as the compilation and analysis of the indicators. The Board is
also required to submit an annual report to the Minister for the Environment, Heritage and
Local Government (the Minister). An independent assessment panel, appointed by the Minister,
quality assures the entire process.
When reviewing the Service Indicators it is important to be aware that each local authority is
different although providing a similar range of services. Some of the key differences that need to
be taken into account are:
- Geographical size
- Population density
- Demographic change
- Levels of poverty, unemployment and deprivation
- Levels of inward investment.
This report was completed prior to the publication of the LGMSB Service Indicators for 2009.
3.2 County and City Managers’ Association (CCMA) Submission
The 2008 service indicator report includes details from a submission made by the CCMA to the
Department on some of the factors affecting the time taken to re-let a dwelling together with
actions taken by local authorities to ameliorate the situation (See Appendix 10).
3.3 Current Housing Stock
Table 9 (See Appendices 1 and 2 for detail by local authority) gives details of the level of
housing stock and the level of stock not subject to long term refurbishment at 31 December.
Table 9 - Level of Housing Stock
Source: LGMSB Service Indicators Reports
3. Service Indicators
29
_____________________________________________________________________Local Government Audit Service, VFM Unit
2007 2008
Housing stock at 31 December 118,276 122,446
Houses subject to long term refurbishment 1,025 3,186
% of housing stock subject to long term refurbishment 0.87% 2.6%
Stock not subject to major refurbishment 117,251 119,260
The increase in the figures for 2008 is caused by a number of factors including a regeneration
scheme in one local authority and a major refurbishment project carried out by another local
authority.
3.4 Level of Vacant Dwellings
Table 10 gives the number and percentage of empty dwellings excluding the stock subject to
major refurbishment at 31 December.
Table 10 - Vacant Dwellings
Source: LGMSB Service Indicators Reports
(Appendices 3 and 4 give details of vacant dwellings for all 34 local authorities)
The level of vacant dwellings can be affected by the number of new properties that come on
hand towards the end of the year and the level of maintenance work that needs to be carried out
on vacated properties.
3.5 Available Dwellings
Table 11 gives the number and percentages of dwellings available for re-letting at 31 December.
Table 11 – Dwellings Available for Re-letting
Source: LGMSB Service Indicators Reports
(Appendices 5 and 6 give details for all 34 local authorities)
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2007 2008
Number of vacant dwellings 5,090 3,859
Average percentage of vacant dwellings 4.34% 3.24%
Highest percentage of vacant dwellings 9.33% 8.9%
Lowest percentage of vacant dwellings 1.00% 1.08%
2007 2008
Number of dwellings available for re-letting 1,529 1,425
Highest percentage of dwellings available for re-letting 65.1% 77.78%
Lowest percentage of dwellings available for re-letting 1.8% 6.67%
The level of dwellings available for re-letting is affected by routine maintenance work, pre-
letting maintenance work, refurbishment of dwellings and newly purchased dwellings towards
the end of the year.
3.6 Average time taken to re-let dwellings
For 2008 the performance indicator for the average time taken to re-let dwellings was broken
into two categories as follows:
• Category 1 - The average time taken in weeks from the date of vacation of dwelling to
the date when all necessary repairs are carried out, which are deemed necessary to re-let
the dwelling
• Category 2 - The average time taken in weeks from the works being completed to the
date of first rent debit
Table 12 (See Appendix 7 for detail by local authority) gives a summary of the average number
of weeks taken for category 1, category 2 and the combination of both in 2008.
Table 12 - Average number of weeks taken to re-let dwellings
Source: LGMSB Service Indicators Reports
Table 13 below details the number of local authorities by three categories of the time taken to re-
let dwellings
Table 13 – Time taken in weeks to re-let dwellings
Source: LGMSB Service Indicators Reports
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Category 1 Category 2 Combined
Average time taken 16.56 5.87 22.43
Longest time taken 55.96 27.56 64.84
Shortest time taken 1 1 2
Number of local authorities
1 Week to 15 Weeks 12
16 Weeks to 30 Weeks 13
> than 30 Weeks 9
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The time taken for re-letting a dwelling varied from 2 weeks to 64.84 weeks with an average
time taken of 22.43. There were 9 local authorities where the time taken to re-let a dwelling was
in excess of 30 weeks. This is a cause for serious concern in the context of meeting social housing
needs, effectively utilising capital assets and generating revenue income. One local authority
stated that it took an average of 2 weeks to re-let a dwelling. This figure is much lower than any
other local authority and would need to be investigated by the Department and the LGMSB.
The problems identified by local authorities for causing delays in both categories 1 and 2 which
are listed below need to be addressed by the sector if the time taken to re-let dwellings is to be
reduced:
• Budgetary constraints – lack of internal capital receipts
• Multi refusals by applicants of dwellings
• Dwellings in low demand areas or in perceived undesirable locations
• The extent of pre-letting repair works that need to be carried out
• Problems with particular properties which require extensive refurbishment work to be
carried out
• Shortage of staff resources
• Re-letting in certain urban areas
• Refurbishment of long term voids. In one case dwellings vacant in excess of three years
• Risk of vandalism in certain areas means that dwellings are only repaired on allocation.
3.7 Housing Repairs Completed
Table14 (See Appendix 8 for detail by local authority) gives details of the number of repairs
completed as a percentage of the number of valid repair requests received.
Table 14 – Repairs Completed as a % of Repair Requests Received
Source: LGMSB Service Indicators Reports
The average percentage for completion of repairs was 87.12% in 2007 and 90.41% in 2008. There
was an improvement in the recording and tracking of repair requests in 2008 due to the use of
on line systems.
% Repairs Completed2007
No. of localauthorities
2008No. of localauthorities
> 90% 17 21
>80% < 90% 12 9
< 80% 5 4
3.8 Tenant Training
A new performance indicator on Pre-Tenancy Familiarisation Courses was introduced in 2008.
These courses were introduced by local authorities for new tenants. The average number of new
tenants offered courses was 79.22% and this varied from a low of 18.6% to a high of 100%.
Twenty one local authorities offered courses to in excess of 90% while fourteen of these achieved
a figure of 100%. In future all local authorities should ensure that courses are offered to all new
tenants. (See Appendix 9 for detail by local authority)
33
_____________________________________________________________________Local Government Audit Service, VFM Unit
4.1 Procurement Initiative Undertaken by Dublin City Council
Dublin City Council with the approval of the Department has embarked on a pilot project with
regard to a new type of contract for maintenance and refurbishment work. The new type of
contract is called a Term Maintenance and Refurbishment Works Contract (TMC). It is expected
that the use of this type of contract will significantly reduce the re-letting time for vacant
properties. If the pilot project is successful it is the intention to draft a template for this type of
contract for issue to all local authorities.
Background to TMC
The Term Maintenance and Refurbishment Works Contract is a new addition to the suite of
public works contracts under the Capital Works Management Framework. It is different to the
other forms of contract in that it is not based on the general principle of ‘fixed price lump sum
fixed price tenders for clearly defined scope of works’.
This new form of contract has been developed in response to a need to have in place a public
works contract that enables a contracting authority to respond to urgent maintenance
requirements as they arise and without having to engage in a procurement process for each such
circumstance.
The underlying principles are,
• a competitive tendering process based on notional works as described in the pricing
document, and
• the issuing of a Task Order to the Contractor to carry out works.
The key features of the Term Maintenance and Refurbishment Works Contract are,
• a competitive tendering process based on notional works,
• a contract without commitment unless activated by the issue of a Task Order, and
• a contract limited by duration and/or aggregated value of Task Orders, whichever is
achieved first.
As noted above, this contract is unique in that it is not based on the principle of ‘fixed price lump
sum fixed price tenders for clearly defined scope of works’, and therefore should only be used in
limited circumstances, i.e., where the works are of a response maintenance nature that are
required to be executed without incurring the delay associated with a separate procurement
process. Note that works of a planned maintenance nature by definition must be undertaken by
means of one of the other public works contracts.
4.2 Department of Finance Circular 10/10: Facilitating SME Participation in Public
Procurement
The Department of Finance Circular 10/10: Facilitating SME Participation in Public
Procurement, dated 13 August 2010, has the intended purpose of ensuring that small and
medium sized businesses would not be hindered in competing for contracts that they could
perform effectively.
4. Findings
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34
Use of the Term Maintenance and Refurbishment Works Contract, due to the aggregation of
separate works by means of Task Orders into a single contract, might be perceived as
disadvantaging the SME sector and therefore specific conditions are required to ensure that this
does not happen. Accordingly, it is a requirement for using the Term Maintenance and
Refurbishment Contract that an open tendering procedure should be used and that suitability
criteria (including economic and financial standing) be specified that would not exclude
contractors capable of performing the contract effectively.
Consideration should also be given to dividing the works into contract lots, possibly on the
basis of defined geographic areas. This has the advantage of facilitating effective competition
even from smaller contractors, and helps to sustain a competitive market into the future.
4.3 Reasons for Delays in Re-letting Vacant Dwellings
The reasons for delays vary from one local authority to another. The main reasons for the delays
in re-letting vacant dwellings as indicated in the LGMSB Service Indicators reports and from site
visits made during this VFM study are as follows:
• The amount of necessary pre-letting repair work that needs to be carried out in order
that the dwelling can be re-let. This work can be quite extensive where unauthorised
renovations or alterations have been carried out to the dwelling by the tenant. Some of
the dwellings are in such a state of disrepair that major refurbishment work needs to be
undertaken. Health and safety issues are a major consideration when carrying out the
pre-letting repair work.
• There is a high level of private rented accommodation available in the housing market.
This accommodation is available to some prospective local authority tenants at a
subsidised rent under the rental accommodation scheme. The accommodation is seen as
superior and available in better locations. Prospective tenants are unwilling to accept
what is perceived as inferior accommodation from local authorities.
• Budgetary constraints and a lack of internal capital receipts
• Shortage of staff resources for maintenance and refurbishment work
• Delays in the tendering and award of contracts for maintenance and refurbishment
• The refusal of offers of vacant dwellings because of the following:
- Dwellings in low demand areas or areas perceived as undesirable locations
- Applicants are allowed two/three refusals of a reasonable offer of
accommodation
- One of the participating local authorities stated that there are a number of
Senior Citizen bed sits that are void on an ongoing basis as prospective tenants
will not accept such accommodation and are prepared to wait for
accommodation with suitable facilities.
- The vacant dwellings available do not match the needs of applicants
• Risk of vandalism of vacant dwellings in certain areas means that dwellings are only
repaired on allocation
• All dwellings have to be assessed for an energy rating under BER
• Planned regeneration programmes carried out by local authorities
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• Time gap between the allocation of a dwelling and occupancy by the new tenant. These
properties are listed in the Service Indicators as a vacant dwelling until the first rent
debit has been raised
• On the death of a tenant, their rent account is immediately closed and the housing
system records that the dwelling is vacant. Normally the family of the deceased person
is given a period of weeks on compassionate grounds to dispose of the persons
furnishings and belongings
• In some cases, there is a dispute regarding the right of a family member of a deceased
tenant to succeed to the tenancy. Such cases often become the subject of legal
proceedings that can take a considerable time to bring to a conclusion.
4.4 Maintenance and Refurbishment
• Pre inspections of dwellings are not always carried out prior to the tenant vacating the
dwelling
• The eight participating local authorities used different methods for costing in house
maintenance and refurbishment work
• A formal inspection of all local authority dwellings is not carried out on a rotational
basis
• Different definitions were used among the eight participating local authorities for what
constituted a long term void.
4.5 Tenant Sustainability
• Responses to the questionnaire indicated best practice in relation to a) the capability of
prospective tenants for independent living, b) the measures taken in order to sustain the
tenancy and c) the measures in place to minimize the refusal of an offer of a dwelling.
• In 2008 all local authorities ran pre tenancy training for new tenants. The average
number of new tenants offered courses was 79.22% and varied from a low of 18.6% in
one local authority to a high of 100% in fourteen local authorities.
• A number of local authorities issue new tenants with a tenant handbook. However there
is no consistency on the content of these handbooks.
• A number of local authorities do not hold regular meetings with tenants or their
representative associations nor do they seek feedback from them on maintenance or
refurbishment work carried out on their behalf.
4.6 Documentation
The level of documentation held by the eight participating local authorities on various aspects of
the housing area varied considerably.
4.7 Information Technology (IT)
The level of IT systems for tracking vacant dwellings throughout the entire process from
vacation of the property to the allocation to a new tenant varied considerably among the eight
participating local authorities.
_____________________________________________________________________Local Government Audit Service, VFM Unit
36
37
_____________________________________________________________________Local Government Audit Service, VFM Unit
4.8 Local Authority Retrofitting Programme
To ensure that the national stock of 130,000 local authority-owned dwellings is maintained to a
high standard, achieves improved levels of energy performance, reduces emissions and yields
an important fuel poverty dividend for low income households, the Department established a
specific retrofitting programme for local authority stock in mid-2009. The programme initially
targeted the improvement of vacant local authority stock to facilitate its immediate return to
viable use. It also supported works to occupied/semi-occupied flat complexes. The retrofit
works aimed to achieve a BER rating of C1, where practicable, with a maximum grant per unit
of €15,000 or 75% of the total cost, whichever was the lesser. At the end of 2009, local
authorities reported works to some 1,155 units at a cost to the exchequer of almost €11 million.
In 2010 the programme funding was revised to account for the reduced availability of co-
funding resources in local authorities. The exchequer contribution increased to €15,000 or 90%
of cost, whichever is the lesser, for casual vacancies (those units vacant for less than six months),
and up to €35,000 or 90% of cost, whichever is the lesser, on void properties (units vacant for
more than six months). With a view to further assisting the local authorities, the programme was
expanded to include works to clusters of occupied units. In 2010, the first full year in
operation, the programme delivered some 3,100 improved units, 1,836 of which were vacant
units – at a cost to the exchequer of almost €37 million. The figures referred to above have been
supplied by the Operational and Management/Improvement of Housing Section of the
Department.
In light of the lessons learned over the early implementation stage and the recommendations set
out in this report, the Department has reviewed the orientation of the programme for 2011 and
placed a strong focus on refurbishment works to vacant and void properties in order to bring
these back into productive use. In the case of certain seriously deficient properties, a capital
grant of up to 60% of the replacement cost of the dwelling will be provided towards
refurbishment cost. From 2012 onwards, a specific target will be agreed with each local authority
to ensure properties are returned to use in a timely fashion, with a particular focus on void
properties.
4.9 Department Circular
The Department issued Circular SHIP 2011.05 Improving the Social Housing Stock to all local
authorities in February 2011. The circular addresses the need to improve the standard and
energy efficiency of local authority owned housing stock and, in particular, the urgency in
making vacant units available for letting as quickly as possible.
5. Recommendations
_____________________________________________________________________Local Government Audit Service, VFM Unit
38
5.1 Maintenance/Repairs
• It is essential that the pilot project being undertaken by Dublin City Council i.e. the
introduction of the TMC, be fully tested and a report produced with findings and
recommendations on the new system by the local authority and issued to the
Department within one year of its implementation. If the use of the TMC is proven to be
successful in significantly reducing the re-letting time for vacant dwellings then the
Department should develop a guidance note and a template for the use of such contracts
and issue these to all local authorities immediately following the receipt of the report by
Dublin City Council. Local authorities should then embark on the use of such contracts
for maintenance and refurbishment work. The TMC should be implemented on a
regional or shared services basis by local authorities. As well as local authorities
adhering to domestic and EU procurement guidelines when awarding contracts for
repair, refurbishment and maintenance work they should also ensure that they are in
compliance with Department of Finance Circular 10/10 Facilitating SME Participation in
Public Procurement.
• Local authorities should access the funding available through the Department’s
retrofitting programme which will assist them in carrying out refurbishment works to
vacant and void properties in order to bring these back into productive use.
• Local authorities should comply with the requirements of circular SHIP 2011.05
Improving the Social Housing Stock.
• As budgetary constraints are likely to continue there is a need for local authority
management to take a more proactive role in re-letting vacant dwellings.
• Local authorities should carry out a pre inspection of a dwelling where a tenant has
given notice to vacate. An assessment of the work needed on the dwelling should be
carried out and assigned as either the responsibility of the tenant or the council. A
second inspection should be carried out prior to the dwelling being vacated. Any
additional costs incurred by the council on carrying out works that were assigned to the
tenant should be charged to the tenant.
• Local authorities should carry out formal inspections of all its dwellings on a regular
basis. Local authorities should then take preventative measures to address any problems
that arise with regard to repairs, maintenance or alterations to the dwelling which
should reduce the time taken on repairs when a dwelling is vacated.
• Local authorities should assess the level of refurbishment work needed on dwellings
and reduce this where possible while ensuring compliance with health and safety
standards e.g. if alterations to a dwelling carried out by previous tenant are not to be
removed, the new tenant should be asked to sign an acceptance form for the dwelling
with the alterations included. The assessment should also take account of health and
safety and fire compliance standards.
• One standardised method of costing for in house maintenance and repair work should
be agreed through the City and County Managers Association (CCMA) and used by all
local authorities. In this way comparisons can be made between the overall costs of jobs
within a local authority and between different local authorities.
• There should be a standard definition, for all local authorities for what constitutes a
long term void e.g. a dwelling vacant in excess of six months. Long term voids are
usually the result of either the level of work needed on the dwelling or because it is in
an area within the local authority that is perceived as undesirable. As a priority local
authorities should implement measures to address the issue of long term voids by
introducing measures to deal with:
- The repair work on long term voids to make them fit for re-letting
- Environmental problems in an area of the local authority that give rise to long
term voids
- Anti social behaviour problems that make an area within the local authority low
demand or undesirable.
When compiling statistics on the length of time taken to re-let a dwelling long term
voids should be treated as a separate category. This will make the Service Indicators
more meaningful when presenting information on the average re-letting time for vacant
dwellings.
• The Department in conjunction with the CCMA should develop protocols for response
times for emergency, urgent and routine maintenance and repair requests. The record
for response times by each local authority against the standard times set should be
reported by the LGMSB in its Service Indicators. This will facilitate comparison of
performance in this area between local authorities and within a local authority over a
number of years.
5.2 Allocations/Refusals
• It is essential that local authorities allocate a vacant dwelling as early as possible in the
re-letting process. This should be done at the same time as the award of the tender prior
to the commencement of work on the dwelling. This procedure would reduce the
allocation time for a dwelling and lead to a reduction in overall time for the re-letting
process. This potential reduction in time that a dwelling is vacant will reduce the
security and shuttering costs and should result in an increase rental income.
• There should be a standard definition used by all local authorities for what constitutes
the re-letting period for a vacant dwelling e.g. the period between the last rental debit
on the occupier vacating the dwelling to the first rental debit on the new occupier of the
_____________________________________________________________________Local Government Audit Service, VFM Unit
39
dwelling. The definition should give clear instructions on when a dwelling is to be
considered a vacant dwelling and when it is a re-occupied dwelling. This would
facilitate reporting on performance across all local authorities in this area.
• Local authorities should assess and maintain records of the specific needs of prospective
tenants. Offers of accommodation should only be made where the needs of the
prospective tenant match the accommodation available. This should reduce the number
of refusals of dwellings and reduce the re-letting time for vacant properties.
• Local authorities should operate a refusal policy whereby tenants that refuse two
reasonable offers of accommodation should suffer substantial penalties such as a
considerable points reduction (if points system in operation) or be placed further down
the waiting list for a set period of time. In order for this policy to be successful, local
authorities would need to monitor its implementation and the effect on it of the Rental
Accommodation Scheme (RAS), which may offer a higher standard of accommodation
to local authority tenants.
• Local authorities need to implement measures to counter the negative perception of
certain low demand or undesirable areas within its remit. This should include
interaction with local community groups to address any problems such as anti social
behaviour in these areas. The local authority should also implement measures to
improve the physical environment in these areas.
• Local authorities need to have clear policies in place where either legal issues, personal
factors or disputes as to the rights of relatives are affecting the allocation of a dwelling
to a new tenant. There should be a clearly defined timeframe in place which is sensible
and reasonable for the resolution of this problem.
5.3 Tenant Sustainability
• In order to ensure the capability of prospective tenants for independent living they
should be subject to a pre-tenancy interview by a housing officer. At the interview any
special or medical needs are assessed and advice is sought from the housing welfare
officer or the HSE. A second interview is carried out with the prospective tenant where
identified problems can be solved.
• The measures taken in order to sustain the tenancy should include a pre- tenancy
interview where the tenant’s responsibilities are outlined. Follow up visits should be
organized by council housing staff to ensure that the tenant is complying with their
responsibilities. There should be ongoing communication with new tenants and if
problems do arise the Housing Welfare Officer or a Social Worker will be involved.
Regular inspections of all dwellings should be carried out by council staff.
_____________________________________________________________________Local Government Audit Service, VFM Unit
40
• The measures in place to minimize the refusal of an offer of a dwelling should ensure
that all dwellings are renovated to the appropriate standards prior to allocation. A
report should be produced by a Housing Investigation Officer in respect of the
prospective tenant and discussions take place with regard to the housing options
available. Offers are made on the basis of the local authorities system of letting priorities
and the preferences indicated by prospective tenants. Two refusals of a tenancy will
result in the prospective tenant losing points or either being suspended or being
removed from the housing list for a specified period.
• There should be an ongoing assessment by local authorities of the needs of their tenants.
• Local authorities should make pre-tenancy training courses available to all new tenants
and the new tenants must partake in the pre-tenancy courses prior to being allocated a
dwelling.
• A tenant handbook should be given to all tenants. The handbook should clearly define
the responsibilities of the local authority and the tenant with regard to routine
maintenance and repair work on a dwelling. This should enable local authority staff to
carry out emergency and urgent work on dwellings.
The handbook should cover the following areas:
- Introduction
- Tenancy and tenancy conditions
- Rents and rent assessment
- Responsibility for repairs and maintenance
- Safety in your home
- Housing options
- Housing welfare
- Combating anti social behaviour
- Waste, recycling and energy saving
- Useful contacts.
• There should be regular meetings with residents’ representatives on estate management
at district or neighbourhood level and problems raised such as anti social behaviour, the
physical environment of the area, vacant dwellings and any maintenance or repair work
required on properties should be addressed quickly by the local authority.
• Local authorities should look for feedback from their tenants on the level of service
provided by using a formal feedback form and they should provide a summary
statement on the results of the feedback received in their annual report.
_____________________________________________________________________Local Government Audit Service, VFM Unit
41
5.4 Documentation
• All local authorities should produce documents in the housing area as follows:
- Housing Strategy – policy on housing management, housing action plan
- Anti-Social Behaviour Policy and Procedures
- Action plan on the homeless
- Scheme of letting priorities
- Tenant Handbook
- Welcome Pack for New Tenants
- Code of Practice for maintenance and contract staff
The Department and the CCMA should issue guidance on the contents of the
documents listed above, where such guidance is not already available.
5.5 Information Technology (I.T.).
• Local authorities should use an I.T. system to track and provide management
information on vacant dwellings across the rents section, the allocations section, the area
teams and housing maintenance section. The module should track progress in the
processing of vacant dwellings across all areas of the local authority and enable the local
authority to highlight where the delays in the system arise and enable it to tackle these
areas and ensure a faster turnover of properties.
• Local authorities should use I.T. to gather information and report on housing vacancies
at 31 December each year under the following headings in their annual report:
- Level of vacancies
- Type of vacancies
- Length of time dwellings are vacant
- The stage the vacancy is at – vacated, major refurbishment, pre-letting repairs
being carried out and allocated to tenant
- Long term voids
- Dwellings subject to major refurbishment/major works.
_____________________________________________________________________Local Government Audit Service, VFM Unit
42
The LGAS would like to thank the following for their co-operation and advice during the course
of this VFM study:
- The eight local authorities that participated in the study
- The Nortern Ireland Housing Executive (NIHE) and the Local Government
Management Services Board (LGMSB)
- The VFM Advisory Group for this study.
6. Acknowledgement
_____________________________________________________________________Local Government Audit Service, VFM Unit
43
APPENDICES
APPENDIX 1 - Number of Local Authority dwellings
2007 and 2008 46
APPENDIX 2 - Number of Local Authority Dwellings
not subject to major refurbishment 2007 and 2008 47
APPENDIX 3 - 2007 Vacant Dwellings 48
APPENDIX 4 - 2008 Vacant Dwellings 49
APPENDIX 5 - 2007 Vacant Dwellings available for re-letting 50
APPENDIX 6 - 2008 Vacant Dwellings available for re-letting 51
APPENDIX 7 - 2008 Average time taken to re-let a dwelling 52
APPENDIX 8 - 2007 and 2008 percentage of housing repairs
completed 53
APPENDIX 9 - Pre Tenancy Training Courses 54
APPENDIX 10 - County and City Manager’s Association
Submission 55
APPENDIX 11 - Northern Ireland Housing Executive 57
45
Appendix 1
46
Housing Stock StatisticsNumber of Local Authority Dwellings
2007 Stock 2008 StockIncrease /Decrease
Carlow County Council 1,488 1,515 27
Cavan County Council 1,692 1,792 100
Clare County Council 2,081 2,318 237
Cork City Council 8,168 8,514 346
Cork County Council 5,937 6,325 388
Donegal County Council 4,034 4,134 100
Dublin City Council 26,658 27,066 408
Dún Laoghaire Rathdown County Council 4,140 4,153 13
Fingal County Council 4,098 4,190 92
Galway City Council 1,977 2,137 160
Galway County Council 2,205 2,284 79
Kerry County Council 3,824 3,931 107
Kildare County Council 3,012 3,248 236
Kilkenny County Council 1,770 1,953 183
Laois County Council 1,727 1,891 164
Leitrim County Council 941 962 21
Limerick City Council 2,884 2,889 5
Limerick County Council 1,916 1,975 59
Longford County Council 1,662 1,735 73
Louth County Council 3,160 3,344 184
Mayo County Council 2,034 2,054 20
Meath County Council 2,509 2,430 -79
Monaghan County Council 1,188 1,276 88
North Tipperary County Council 1,652 1,675 23
Offaly County Council 1,413 1,593 180
Roscommon County Council 1,138 1,202 64
Sligo County Council 1,938 1,998 60
South Dublin County Council 8,276 8,570 294
South Tipperary County Council 2,551 2,646 95
Waterford City Council 2,744 2,914 170
Waterford County Council 1,508 1,602 94
Westmeath County Council 1,579 1,622 43
Wexford County Council 2,404 2,320 -84
Wicklow County Council 3,968 4,188 220
Totals 118,276 122,446 4,170
Source: LGMSB Service Indicators Reports 2007 and 2008
Number of Local Authority Dwellings 2007 and 2008
_____________________________________________________________________Local Government Audit Service, VFM Unit
Appendix 2
47
Number of Local Authority Dwellings not Subject to Major Refurbishment 2007 and 2008
Number of Local Authority Dwellingsnot subject to major refurbishment
2007 Stock 2008 StockIncrease /Decrease
Carlow County Council 1,488 1,515 27
Cavan County Council 1,669 1,776 107
Clare County Council 2,046 2,273 227
Cork City Council 7,980 8,316 336
Cork County Council 5,885 6,269 384
Donegal County Council 4,034 4,102 68
Dublin City Council 26,461 24,963 -1498
Dún Laoghaire Rathdown County Council 4,027 4,073 46
Fingal County Council 4,098 4,190 92
Galway City Council 1,967 2,137 170
Galway County Council 2,205 2,284 79
Kerry County Council 3,755 3,877 122
Kildare County Council 3,012 3,240 228
Kilkenny County Council 1,746 1,924 178
Laois County Council 1,721 1,891 170
Leitrim County Council 939 962 23
Limerick City Council 2,884 2,824 -60
Limerick County Council 1,913 1,973 60
Longford County Council 1,661 1,731 70
Louth County Council 3,143 3,320 177
Mayo County Council 2,001 2,014 13
Meath County Council 2,508 2,402 -106
Monaghan County Council 1,163 1,247 84
North Tipperary County Council 1,638 1,662 24
Offaly County Council 1,412 1,521 109
Roscommon County Council 1,107 1,168 61
Sligo County Council 1,905 1,893 -12
South Dublin County Council 8,276 8,570 294
South Tipperary County Council 2,542 2,631 89
Waterford City Council 2,689 2,878 189
Waterford County Council 1,503 1,599 96
Westmeath County Council 1,551 1,586 35
Wexford County Council 2,359 2,320 -39
Wicklow County Council 3,961 4,129 168
Totals 117,251 119,260 2,009
Source: LGMSB Service Indicators Reports 2007 and 2008
_____________________________________________________________________Local Government Audit Service, VFM Unit
Appendix 3
48
2007 Vacant Dwellings
Dwellings that are vacant excluding those subject to major refurbishment
2007 %
2007Number of Houses
Carlow County Council 1.60 24
Cavan County Council 7.15 119
Clare County Council 3.66 75
Cork City Council 3.68 293
Cork County Council 3.76 221
Donegal County Council 2.40 97
Dublin City Council 9.33 2,469
Dún Laoghaire Rathdown County Council 1.11 45
Fingal County Council 2.20 90
Galway City Council 2.62 52
Galway County Council 4.00 88
Kerry County Council 4.49 169
Kildare County Council 2.20 66
Kilkenny County Council 5.31 93
Laois County Council 3.69 64
Leitrim County Council 2.12 20
Limerick City Council 1.00 29
Limerick County Council 3.25 62
Longford County Council 3.04 51
Louth County Council 1.47 46
Mayo County Council 3.46 69
Meath County Council 3.96 99
Monaghan County Council 2.24 26
North Tipperary County Council 2.75 45
Offaly County Council 6.46 91
Roscommon County Council 4.17 46
Sligo County Council 4.39 84
South Dublin County Council 1.00 83
South Tipperary County Council 4.76 121
Waterford City Council 1.83 49
Waterford County Council 3.91 59
Westmeath County Council 3.09 48
Wexford County Council 1.26 30
Wicklow County Council 1.72 68
Number of Houses 5,090
Percentage of dwellings that are empty 4.34
Source: LGMSB Service Indicators Reports 2007
_____________________________________________________________________Local Government Audit Service, VFM Unit
Appendix 4
49
2008 Vacant Dwellings
Dwellings that are vacant excluding those subject to major refurbishment
2008 %
2008Number of Houses
Carlow County Council 1.78 27
Cavan County Council 8.9 158
Clare County Council 3.48 79
Cork City Council 4.64 386
Cork County Council 4.82 302
Donegal County Council 1.9 78
Dublin City Council 3.08 769
Dún Laoghaire Rathdown County Council 1.57 64
Fingal County Council 2.03 85
Galway City Council 5.9 126
Galway County Council 5.21 119
Kerry County Council 4.98 193
Kildare County Council 2.18 71
Kilkenny County Council 7.29 140
Laois County Council 1.81 34
Leitrim County Council 3.12 30
Limerick City Council 1.59 45
Limerick County Council 4.02 79
Longford County Council 3.99 69
Louth County Council 1.17 39
Mayo County Council 4.67 94
Meath County Council 2.71 65
Monaghan County Council 2.77 35
North Tipperary County Council 2.35 39
Offaly County Council 3.16 48
Roscommon County Council 5.65 66
Sligo County Council 4.07 77
South Dublin County Council 1.08 93
South Tipperary County Council 3.74 98
Waterford City Council 2.5 72
Waterford County Council 3.5 56
Westmeath County Council 2.38 38
Wexford County Council 3.71 86
Wicklow County Council 2.39 99
Number of Houses 3,859
Percentage of dwellings that are empty 3.24
Source: LGMSB Service Indicators Reports 2008
_____________________________________________________________________Local Government Audit Service, VFM Unit
Appendix 5
50
2007 Vacant Dwellings Available for Re-letting
Empty dwellings available for lettingexcluding those subject to refurbishment
2007 %
2007Number of Houses
Carlow County Council 21.7 5
Cavan County Council 50.7 61
Clare County Council 20 15
Cork City Council 16.5 48
Cork County Council 34.1 76
Donegal County Council 61.2 59
Dublin City Council 28.8 711
Dún Laoghaire Rathdown County Council 32 14
Fingal County Council 1.8 2
Galway City Council 30.8 16
Galway County Council 44 39
Kerry County Council 34.1 57
Kildare County Council 14.7 10
Kilkenny County Council 23.9 22
Laois County Council 55.5 35
Leitrim County Council 7.3 1
Limerick City Council 73 21
Limerick County Council 3.6 2
Longford County Council 43.9 22
Louth County Council 4 2
Mayo County Council 39 27
Meath County Council 51 51
Monaghan County Council 23.1 6
North Tipperary County Council 15.2 7
Offaly County Council 14.3 13
Roscommon County Council 37 17
Sligo County Council 21 18
South Dublin County Council 40 33
South Tipperary County Council 39.7 48
Waterford City Council 20.2 10
Waterford County Council 65.1 38
Westmeath County Council 41.7 20
Wexford County Council 25.3 8
Wicklow County Council 22.7 15
Number of Houses 1,529
Percentage available for re-letting 30.05
Source: LGMSB Service Indicators Reports 2007
_____________________________________________________________________Local Government Audit Service, VFM Unit
Appendix 6
51
2008 Vacant Dwellings Available for Re-letting
Empty dwellings available for lettingexcluding those subject to refurbishment
2008 %
2008Number of Houses
Carlow County Council 37.04 10
Cavan County Council 55.06 87
Clare County Council 8.86 7
Cork City Council 13.86 53
Cork County Council 49.01 148
Donegal County Council 66.67 52
Dublin City Council 46.81 360
Dún Laoghaire Rathdown County Council 40.62 26
Fingal County Council 7.06 6
Galway City Council 60.32 76
Galway County Council 12.61 15
Kerry County Council 42.88 83
Kildare County Council 31.56 22
Kilkenny County Council 38.15 54
Laois County Council 65.69 22
Leitrim County Council 6.67 2
Limerick City Council 77.78 35
Limerick County Council 7.89 6
Longford County Council 56.52 39
Louth County Council 43.59 17
Mayo County Council 41.49 39
Meath County Council 49.23 32
Monaghan County Council 31.88 11
North Tipperary County Council 14.1 6
Offaly County Council 16.67 8
Roscommon County Council 25.76 17
Sligo County Council 23.38 18
South Dublin County Council 21.08 20
South Tipperary County Council 22.14 22
Waterford City Council 49.83 36
Waterford County Council 39.29 22
Westmeath County Council 25.83 10
Wexford County Council 36.05 31
Wicklow County Council 34.01 34
Number of Houses 1,425
Percentage available for re-letting 36.93
Source: LGMSB Service Indicators Reports 2008
_____________________________________________________________________Local Government Audit Service, VFM Unit
Appendix 7
52
2008 Average Time Taken to Re-let a Dwelling
Average time taken in weeks to re-let dwellings in 2008
RepairsPeriod
LettingPeriod
Total
Carlow County Council 13.84 4.51 18.35
Cavan County Council 5 5.12 10.12
Clare County Council 23.78 8.13 31.91
Cork City Council 18.32 7.03 25.35
Cork County Council 9 3 12
Donegal County Council 18 9 27
Dublin City Council 21.77 4 25.77
Dún Laoghaire Rathdown County Council 7.49 14.87 22.36
Fingal County Council 14 6 20
Galway City Council 3.91 2 5.91
Galway County Council 45 2.6 47.6
Kerry County Council 8.92 27.56 36.48
Kildare County Council 14.3 4 18.3
Kilkenny County Council 55.96 8.88 64.84
Laois County Council 9 2 11
Leitrim County Council 15.67 1.99 17.66
Limerick City Council 1.62 1.93 3.55
Limerick County Council 27.12 6.05 33.17
Longford County Council 1 1 2
Louth County Council 8 3 11
Mayo County Council 17 3 20
Meath County Council 12.39 4 16.39
Monaghan County Council 10.9 3.79 14.69
North Tipperary County Council 17.33 2.98 20.31
Offaly County Council 6.65 3.42 10.07
Roscommon County Council 25.5 17.34 42.84
Sligo County Council 54 3 57
South Dublin County Council 15.43 1.4 16.83
South Tipperary County Council 4.8 5.06 9.86
Waterford City Council 33.65 1.76 35.41
Waterford County Council 12.46 21 33.46
Westmeath County Council 6.17 3.95 10.12
Wexford County Council 12 3 15
Wicklow County Council 13.14 3.19 16.33
Average 16.56 5.87 22.43
Source: LGMSB Service Indicators Reports 2008
_____________________________________________________________________Local Government Audit Service, VFM Unit
Appendix 8
53
2007 and 2008 Percentage of Housing Repairs Completed
Number of repairs completed as a percentage ofthe number of valid repair requests received
2007 2008
Carlow County Council 94.4 94.27
Cavan County Council 71.7 78.38
Clare County Council 91 94.95
Cork City Council 99.3 93.24
Cork County Council 75 87.81
Donegal County Council 95 93.2
Dublin City Council 83.2 85.53
Dún Laoghaire Rathdown County Council 84.8 99.83
Fingal County Council 98.9 98.15
Galway City Council 84.7 99.88
Galway County Council 65 70.02
Kerry County Council 94.8 97.03
Kildare County Council 93 98.92
Kilkenny County Council 60.7 65.54
Laois County Council 92.9 92.22
Leitrim County Council 92.7 92.95
Limerick City Council 96 88.3
Limerick County Council 80.4 85.24
Longford County Council 90.7 94.86
Louth County Council 95 96.19
Mayo County Council 85.9 85.42
Meath County Council 89.7 94.54
Monaghan County Council 82.7 89
North Tipperary County Council 89.6 92.48
Offaly County Council 90.9 95.06
Roscommon County Council 62.7 79.42
Sligo County Council 86 89.95
South Dublin County Council 96.4 97.78
South Tipperary County Council 89.5 88.65
Waterford City Council 96.3 94.52
Waterford County Council 82.3 91.72
Westmeath County Council 90.6 91.85
Wexford County Council 95.6 90.18
Wicklow County Council 84.8 94.92
Source: LGMSB Service Indicators Reports 2007 and 2008
_____________________________________________________________________Local Government Audit Service, VFM Unit
Appendix 9
54
Pre Tenancy Training Courses
2008 Pre-Tenancy Familiarisation CoursesNumber of NewTenants
PercentageOfferedCourses
NumberOfferedCourses
Carlow County Council 87 51.7 45
Cavan County Council 277 96.8 268
Clare County Council 229 100 229
Cork City Council 413 18.6 77
Cork County Council 544 90.3 491
Donegal County Council 318 94.7 301
Dublin City Council 902 51.4 464
Dún Laoghaire Rathdown County Council 112 43.8 49
Fingal County Council 329 100 329
Galway City Council 193 35.8 69
Galway County Council 202 100 202
Kerry County Council 295 80 236
Kildare County Council 204 100 204
Kilkenny County Council 392 100 392
Laois County Council 168 43.5 73
Leitrim County Council 112 100 112
Limerick City Council 97 100 97
Limerick County Council 194 63.4 123
Longford County Council 213 63.9 136
Louth County Council 406 100 406
Mayo County Council 146 100 146
Meath County Council 255 100 255
Monaghan County Council 122 88.5 108
North Tipperary County Council 135 91.9 124
Offaly County Council 145 93.1 135
Roscommon County Council 131 64.9 85
Sligo County Council 185 100 185
South Dublin County Council 542 55.2 299
South Tipperary County Council 267 95.9 256
Waterford City Council 400 100 400
Waterford County Council 153 100 153
Westmeath County Council 183 100 183
Wexford County Council 88 94.3 83
Wicklow County Council 246 67.1 165
Average 255 79.22 202
Source: LGMSB Service Indicators Reports 2008_____________________________________________________________________Local Government Audit Service, VFM Unit
County and City Managers’ Association (CCMA) Submission
1. Issue: Difficulty in locating contractors to complete refurbishment/repairs to
dwellings. Up until very recently, local authorities were experiencing acute
difficulty in getting contractors to carry out refurbishment/repairs to dwellings.
Action: Given the downturn in the construction industry, contractors are now more
readily available and repairs are being completed in faster timeframes. This will
have a positive impact on the situation.
2. Issue: Refusal to accept a dwelling -for some dwellings there may be a number of
refusals before a tenant is found.
Action: As already indicated, many local authorities now operate a refusals policy, so
that, if a potential tenant on the waiting list refuses two or more dwellings
offered to them, they are then relocated down the waiting list for a period of
time, usually one to two years.
3. Issue: Expectations of prospective tenants: second-hand dwellings are expected to be
of the standard of a new-build.
Action: Where possible local authorities carry out refurbishment/repairs to ensure that
the standard of the dwelling compares well with a new unit. However local
authorities report that expectations among those on the waiting lists mean that
many will not accept a “second-hand unit”. This may lead to refusals and thus
lengthens the time taken to re-let the dwellings. Prospective tenants may be
aware of the plans of the authorities for new houses or indeed even in relation
to houses coming on stream under Part V, and this may influence their
behaviour. Again, in this situation, authorities may enforce a refusals policy,
similar to that mentioned above.
4. Issue: The extent of work that may be required to bring the dwelling up to standard.
Action: Local authorities try to improve the standard of houses prior to letting. This can
involve:
• Repainting walls;
• Cleaning out rubbish;
• Cleaning the property internally;
• Replacing fixtures, fittings and white goods which may have been
removed/damaged by previous tenants e.g. kitchen and bathroom
units;
• Changing locks;
• Replacing doors;
• Replacement of sanitary facilities.
In addition, the opportunity may be taken to:
• Install central heating systems and /or fire safety systems;
• Service boilers/ranges.
Appendix 10
55
_____________________________________________________________________Local Government Audit Service, VFM Unit
Appendix 10 contd.
56
_____________________________________________________________________Local Government Audit Service, VFM Unit
5. Issue: Transfers for tenants -Local authorities have identified what might be regarded
as unnecessary transfers, i.e. discretionary moves of tenants from one dwelling
to another as quite costly in money and time.
Action: Some local authorities do not allow transfers, except in certain circumstances
e.g. tenants fearing for their safety, disability needs, etc.
6. Issue: Significant damage from vandalism can occur where a dwelling has been
refurbished but before a tenant has taken up occupation.
Action: Dwellings are only refurbished once a tenant has been identified by the local
authority and this means that the tenant will move in immediately the work is
completed.
7. Issue: Personal factors affecting the length of time to re-let.
Action: Where the death has occurred of a tenant, the family of the deceased is normally
given a short period of time e.g. four to six weeks to dispose of the deceased
person’s furnishings and belongings. In some cases, the family may be reluctant
to hand back the keys and this requires sensitive but firm pressure from the
local authority to resolve the matter. Again, this may take some weeks to
resolve, but is handled appropriately by authorities.
8. Issue: Dispute regarding automatic right of tenancy for family of deceased tenants.
Action: Family members may feel that they have automatic rights to tenancy where a
deceased relation has been tenant. This can often result in legal proceedings
which can take a considerable time to bring to a conclusion.
9. Issue: Designated housing for the elderly can be vacant on an ongoing basis as
prospective tenants are not inclined to accept certain such accommodation and
are prepared to wait for one-bed units: again this is an example of prospective
tenant having legitimate increased expectations.
Northern Ireland Housing Executive
As part of the research a visit was undertaken to the Northern Ireland Housing Executive
(NIHE). The NIHE is a non-departmental public body established by the Housing Executive Act
(Northern Ireland). Under the Act the NIHE took over the housing responsibilities of 65 separate
authorities and became Northern Ireland’s overall housing authority. The NIHE has a budget of
£600m and a staff of over 3,000. The work the NIHE carries out with communities on housing
services and the issues that affect local neighbourhoods adds real value to decision making,
service development and higher standards. The level of vacant dwellings under the jurisdiction
of the NIHE at 31 March 2008 and 2009 was as follows.
Table 16 NIHE level of Vacant Dwellings
The NIHE put in place a number of measures to address the problem of vacant dwellings and
these include:
• Estate strategies which involve improvement, sale and/or selective demolition
• Marketing community safety and anti-blight measures in public sector estates, including
use of alarm systems, the appointment of neighbourhood wardens and other security
measures
• More intensive management such as the implementation of caretaker services where
necessary
• An information pack is issued to tenants setting out :- their rights and responsibilities, a
customer charter and the general conditions of tenancy
• The 35 local district councils which are located throughout the province operate a 24
hour 7 day repair response service and they can be contacted by phone, online or by a
visit to a district office.
During the meetings held with the NIHE personnel they stated that there is a great deal of
interaction between the NIHE and local community groups and tenants representatives.
Meetings are held at local, district and national level where problems identified on the ground
can be tackled with the help of the local community.
Repair work for the NIHE is carried out on a contract basis. The NIHE is responsible for the
tendering process and the award of the contracts. Contracts are awarded for particular districts
and last for four years. A schedule of costs is agreed with the contractor and all invoices are paid
on this basis. Tenants are surveyed following the repair work and the results of these surveys
are published annually.
Appendix 11
57
YearNo. of
DwellingsVacant
Dwellings% Vacant
Dwellings
31 March 2008 90,551 1,150 1.27%
31 March 2009 90,500 1,152 1.27%
_____________________________________________________________________Local Government Audit Service, VFM Unit
58
Appendix 11 contd.
Key performance and management information is published on a monthly basis. Performance is
assessed under the following:
• Housing sales
• Total rent/rate arrears
• Housing applications - % processed within target
• Voids by category
• Maintenance performance statistics
• Maintenance KPI summaries
• Customer perceived service failure statistics.
Key management information is produced on the following:
• Homelessness
• Response to maintenance requests
• Anti social behaviour cases recorded by district.
Statistics are also produced annually comparing all housing authorities in the United Kingdom
over a range of performance measures.
The NIHE also produce an annual report called “Continuous Tenant Omnibus Survey” which
gives details of the result of surveys of tenants under the following headings:
- Characteristics of Housing Executive Dwellings
- Household Characteristics
- Housing History and Satisfaction with Home
- Tenant Contact with the Housing Executive
- Home Repairs
- Anti Social Behaviour/Formal Complaints Procedure
- Housing Executive Services
- Attitudes to Home and Estate
- Standards of Service Delivery
- Religion and Service Delivery
- Client Response.
_____________________________________________________________________Local Government Audit Service, VFM Unit
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