Demographic context
Society is ageing and more people require housing that meets their needs as they age. ONS figures from 2018 predict that the number of people aged over 65 is forecast to rise over the next decade, from the current 10.8 million people, to 13.8 million by 2035, a 27 per cent rise. This means that approximately one in five of the total population being over 65 in 10 years’ time, which will become one in four by 2050.
Whilst people are living longer and the number of older people is rising, the advances in healthy and disability free life expectancy are not keeping track. Life expectancy figures from ONS have declined slightly recently and the number of years we can expect to spend in good health, without a disabling illness, continues to decline; this is now 62.4 years for men and 60.9 years for women. There are also significant inequalities in healthy life expectancy affected by deprivation.
The number of older people that have some form of care need is also significant and predicted to rise as is the number of over 65s living with a limiting long-term illness where daily activities are affected either significantly or in a minor way.
Older person’s housing sector
The specialist older person’s housing sector in the UK is starting to mature amid increasing recognition of the demographic trends that will underpin demand for specialised housing for older people.
The sector is also becoming more defined between retirement housing (also known as ‘independent living for older people’) and housing with care (with increased provision of communal facilities and on-site care). Although the market is becoming more established, it is still very modest in size, with capacity for significant growth.
Retirement housing (including housing with care) accounts for only around 2.6 per cent of homes across the UK. The Elderly Accommodation Counsel (EAC) estimates that there are approximately 620,000 units of retirement housing (including both ‘independent living for older people’ schemes and extra care housing schemes) in England.
Age-friendly housing design has been developed and promoted in recent years. The series of HAPPI reports have proved influential in raising awareness of the attractive design features that can make ‘retirement housing’ a product to be desired not dismissed; for example, HAPPI compliance was been built into the requirements to secure funding from the Department of Health’s Care and Support Specialised Housing Fund.
The role of digital technology in relation to housing for older people is also increasingly recognised as part of an effective building management solution to deliver smarter, more accessible, adaptable, and environmentally friendly homes. The recent report, Technology for our Ageing Population: Panel for Innovation (TAPPI), of which the LGA was a panel member, has developed a benchmark for what ‘good’ looks like in technology for housing and care including 10 ‘TAPPI’ principles which should be applied to technology and housing contexts, for example:
- adaptable – able to adapt to changing user needs and technological advances
- person-centred – putting the person first to give control over own environment, care and support needs
- co-produced – involving people to co-create solutions to inform how they want to live their lives
- inclusive – reduce digital, health, income inequalities to enable active involvement in home, local community or networks
- cost-effective – offer value for money and benefit both to individuals but also to local housing and care economies.
Planning policy
The Government’s guidance for councils in preparing planning policies on housing for older and disabled people sets out the rationale for councils: offering older people a better choice of accommodation to suit their changing needs can help them live independently for longer, feel more connected to their communities and help reduce costs to the social care and health systems. Therefore, an understanding of how the ageing population affects housing needs is something to be considered from the early stages of plan-making through to decision-taking.
The guidance sets out how councils may consider the housing needs of groups with particular needs such as older people. This guidance sets out how councils can consider proposals for the different types of housing that these groups are likely to require. They could also provide indicative figures or a range for the number of units of specialist housing for older people needed across the plan area throughout the plan period.
The guidance also suggests that councils could consider different types of specialist housing designed to meet the diverse needs of older people, which can include:
- Age-restricted general market housing: this type of housing is generally for people aged 55 and over and the active elderly. It may include some shared amenities such as communal gardens, but does not include support or care services
- Retirement living or sheltered housing: this usually consists of purpose-built flats or bungalows with limited communal facilities such as a lounge, laundry room and guest room. It does not generally provide care services but provides some support to enable residents to live independently. This can include 24-hour on-site assistance (alarm) and a warden or house manager
- Extra care housing or housing-with-care: this usually consists of purpose-built or adapted flats or bungalows with a medium to high level of care available if required, through an onsite care agency registered through the Care Quality Commission (CQC).
However, the guidance recognises that many older people may not want or need specialist accommodation or care and may wish to stay or move to general housing that is already suitable, such as bungalows, or homes which can be adapted to meet a change in their needs. Councils therefore need to identify the role that general housing may play as part of their assessment.
The National Planning Policy Framework glossary also provides definitions of older people and people with disabilities for planning purposes, which recognise the diverse range of needs that exist.
Health and social care policy
The Adult Social Care Reform White Paper recognises the importance of home in relation to care and support for older people and of an integrated approach: ‘making every decision about care a decision about housing’.
The White Paper has a focus on housing, new models of care, digital and technology. The aspiration is that people are able to say:
- I can live as part of a community, where I am connected to the people who are important to me, including friends and family, and I have the opportunity to meet people who share my interests.
- I lead a fulfilling life with access to support, aids and adaptations to maintain and enhance my wellbeing.
- I can live in my own home, with the necessary adaptions, technology, and personal support as designed by me, to enable me to be as independent as possible.
- I have a good choice of alternative housing and support options, so I am able to choose where I live and who I live with, with the opportunities to plan ahead, and take up those options in a timely fashion.
As part of the launch of the White Paper a series of measures, including substantial funding, have been announced that specifically target the housing market with the aim of helping all people with care and support needs, including older people, to live well, safely and independently. This includes:
- Invest at least £300 million over the next three years to embed the strategic commitment in all local places to connect housing with health and care and drive the stock of new supported housing. (Housing Transformation Fund).
- Invest at least £150 million of additional funding over the next three years to drive digitisation across the sector; and unlock the potential of caretech innovation that enables preventative care and independent living.
- Launch a £30 million Innovative Models of Care Programme to support local systems to build the culture and capability to embed into the mainstream innovative models of care. This will work for a changing population with more options for people that suit their needs and circumstances.
- Fund a new service to make minor repairs and changes in peoples’ homes, to help people remain independent and safe. This will happen alongside increasing the upper limit of the Disabled Facilities Grant (DFG).
- Continue to invest in the Care and Support Specialised Housing (CASSH) fund with £210 million available for the period 2022/23 to 2024/25.
This approach to integration of health, care and housing reinforces the importance for councils and their local partners of establishing a memorandum of understanding to support local delivery of the Adult Social Care Reform White Paper.
Levelling up policy
There is a significant opportunity to align specifically the redevelopment of town centres and COVID-19 recovery with the housing needs of an ageing population.
Building more town centre housing and re-purposing existing buildings for later life, especially large retail spaces such as those formerly occupied by department stores, has the potential to play a role in revitalising high streets, support older people to live independently for longer and maximise older people’s economic and social contribution to our communities.
This includes suitably designed mainstream housing that can meet changing needs as people age and appeal to a wider and younger audience (for example, larger apartments, lift access, accessible ground floor areas), in addition to more specialist housing with access to care and support.
COVID-19 has accelerated trends in the retail market and less office working will mean redundant urban buildings and a need to generate economic growth. As we begin the COVID-19 recovery, breathing new life into our high streets will be critical to the future economic prospects and the social fabric of towns right across England. Combined with longer-term trends, the pandemic and associated lockdowns have had a significant impact on high streets and town centres. In November 2020, the local data company predicted that there could be 15,000 additional empty shops in Britain.
Recent evidence has highlighted that with many retirees increasing their savings since the virus hit, ‘silver saviours’ could come to the rescue of Britain's shops and communities post-pandemic, if retirement housing developments are built in or close to town centres and high streets, notwithstanding the potential effects of the current cost of living crisis. Similar arguments apply to building more general needs housing that is suitable for later living. This also helps to connect older people to neighbourhoods.
In addition, as announced in the recent Levelling-Up White Paper, the Government is launching a new task force on the issue of older people’s housing. It will look at ways to provide better choice, quality, and security of housing for older people. This work will be taken forward in partnership with the Department of Health and Social Care.
Supported accommodation policy
The Department of Levelling up, Housing and Communities (DLUCHC) National Statement of Expectations for Supported Housing (2020) provides guidance for councils in terms of planning for, commissioning and managing the quality of supported accommodation for older and other people with care and support needs.
The DLUHC Committee has recently launched an inquiry into exempt accommodation – a type of supported housing that is exempt from Housing Benefit rules limiting rents to particular levels. This type of accommodation is used to house a range of people with support needs, including some types of supported accommodation for older people. The findings from the inquiry are likely to influence future policy in relation to supported accommodation generally and exempt accommodation specially.
In March 2022 DLUHC published a written ministerial statement about the quality and regulation of supported housing. Key measures that are expected to be introduced, which will affect housing for older people as well as other supported housing, include:
- The introduction of minimum standards for the support provided to residents. The aim of this is to ensure that residents receive the good quality support they expect and deserve to live as independently as possible and achieve their personal goals.
- New powers for local authorities in England to better manage their local supported housing market and ensure that rogue landlords cannot exploit the system to the detriment of vulnerable residents and at the expense of taxpayers.
- Changes to housing benefit regulations to seek to define care, support and supervision to improve quality and value for money across all specified supported housing provision.