Sheffield City Council
Older People’s Housing Strategy
January 2007-2012
Contents
Our Vision for Older Peoples’ Housing in Sheffield ..................................................................... 2
Strategic Framework .......................................................................................................................... 2
Local Context ....................................................................................................................................... 3
Demand Analysis ................................................................................................................................ 4
Supply Analysis ................................................................................................................................... 5
Key Messages...................................................................................................................................... 6
Strategic Priorities for Action ............................................................................................................ 7
Older People’s Housing Strategy - Action Plan ............................................................................ 9
1
Our Vision for Older Peoples’ Housing in Sheffield
This strategy sets out Sheffield City Council’s plans to address the housing needs of older people in the
city over the next five years, but also a vision for the housing and services that will be available over the
next ten to fifteen years. Our aim is to ensure there is an effective housing solution for all older people,
with a range of good quality housing and support options and choices throughout the city. We face a
significant challenge in being able to deliver this while also providing for the housing needs of an ageing
population. The success of the strategy will depend on being able to respond to the priorities:
 Improve and diversify the housing and support options for older people, increasing choice.
 Ensure that the range of housing and support options are delivered effectively, with a focus on
quality of life and outcomes.
 Ensure that the appropriate mix of housing and support is developed within regeneration areas
of the city through the Neighbourhood Development Frameworks.
 Ensure appropriate investment is delivered within the social housing sector to bring all housing
for older people up to the Decent Homes Standard by 2010.
 Develop effective financial models to ensure consistent and effective decisions on investment in
the development and renewal of older peoples housing.
 Establish open and consistent consultation and engagement channels to involve older people in
the planning and delivery of housing and services.
Strategic Framework
The strategy responds to a number of local and national policies, including:

The government’s strategy document, Quality & Choice in Older People’s Housing, sets
expectations for older people to be able to live independently and make choices about the
provision of housing services.

Since 2005 local authorities need to demonstrate to the Audit Commission (in Comprehensive
Performance Assessments) that they are delivering on the national agenda for older people and
are actually impacting on their well-being.
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Sheffield’s Strategy for an Ageing Population is owned by Sheffield First and sets out plans for
multi-agency working across a range of activities to deliver better quality of life for older people in
the city.
The Older People’s Housing Strategy is one of the key documents that sit within the family of strategies
that make up Sheffield’s Housing Strategy. It makes a significant contribution across the three major
strategic objectives.

Successful housing markets – building new general needs homes that deliver the lifetime homes
standards and new older people’s housing development, specifically through the delivery of the
Extra Care Development Programme.

Delivery of decent homes in sustainable neighbourhoods through the Sheltered Housing
Investment Programme investing in housing for older people.

The promotion of the inclusion and independence, through delivery of the supporting people
contracts to enable and sustain independence at home. There are key joint objectives and links to
the Choices not Barriers strategy for disability and the learning disabilities accommodation
strategy.
The Decent Homes programme drives investment in housing across tenures to improve physical
standards and the local environment, while the Supporting People programme is driving strategic and
service development of housing related support to better enable vulnerable people to live
independently. Housing Market Renewal, Neighbourhood Renewal and other programmes that focus on
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reducing inequality and improving outcomes for people in disadvantaged neighbourhoods complement
these. Drives towards service integration and initiatives such as Individualised Budgets and Self
Directed Services will create opportunities to strengthen service user control over the provision of
services.
Local Context
Engagement and research indicate increasingly, older people prefer to live in high quality general
housing and receive care and support services in their own home. Therefore a key priority is to ensure
that the new affordable homes built within regeneration programmes can meet the needs of older
people, to enable them to continue living in the neighbourhood and housing of their choice.
In Sheffield larger numbers of older people are living in general needs housing, either moving into
specialist accommodation at a more advanced age or remaining all their lives in general needs housing.
The emphasis is therefore on the provision of services for older people that sustain continued
independence in the home of their choice, alongside a drive to increase the quality and quantity of new
specialist housing.
The council has a long-standing commitment to the development of extra care housing as a flexible,
high-quality option. To date two schemes are completed and a major retirement village is in
development. It will remain a local priority to increase the supply of extra care housing as a high quality
alternative in neighbourhoods across the city, particularly in areas where the supply of specialist
provision is poor or current provision, such as sheltered housing, is of poor quality.
A critical issue for older peoples housing is the need for effective investment in sheltered housing
provision in the city, especially the schemes owned by the council and managed by Sheffield Homes.
There are 67 sheltered housing schemes in the social housing sector in Sheffield, providing 2,278
properties, all of which will need to meet the Decent Homes standard by 2010. Of these, the council has
35 schemes, with 1508 properties, including:
 539 bedsits.
 877 flats.
 92 bungalows.
A number of schemes have experienced low demand for many years and do not meet the expectations
of most older people, due to a range of factors including:
 Shared bathrooms.
 Small flat sizes.
 Poor location.
 Lack of local facilities and transport links.
To ensure effective use of the resources allocated to bring the sheltered Housing Stock up to Decent
Homes standard an options appraisal was carried out in 2006. The investment needs to address a
range of issues:
 Stock condition.
 Removal of shared facilities.
 Value for money.
 Affordability.
 Demand including turnover and void rates.
The options appraisal concluded that 29 of the 35 schemes have a viable future and should be
refurbished to Decent Homes standards. However, there are six sheltered schemes that do not have a
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long-term future because they require investment to meet the Decent Homes standard that exceeds the
funding available, and also they are in low demand and people do not choose to live in them.
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The six schemes are:
Athelstan Croft, Richmond.
Newman Court: Wincobank.
Chantry Tower Block: Jordanthorpe.
Firshill Court.
Sweeney House Stocksbridge.
Balfour House, Stocksbridge.
Within this context it is essential to understand the current issues of supply and demand of housing
services for older people in the city.
Registered Social Landlords (RSL) own and manage 770 units of sheltered housing provision in 32
schemes. A significant investment programme will be undertaken by the RSLs to ensure all social
housing meets the Decent Homes Standard by 2010. It is essential to consider the overall sheltered
housing provision for older people in the City, as the improved RSL schemes will provide good quality,
modernised housing choices for older people affected by the Council’s Sheltered Housing Programme.
Demand Analysis
Demand for housing and support from older people does and will continue to change, the long-term
population predictions provide basis number of older people but the aspirations of older people are and
will continue to change. The Housing Market Assessment Tool, developed within Strategic Housing, will
be used to track the housing market, its impacts and the impact and demand for new forms of older
people’s housing such as extra care.
Sheffield has a relatively high proportion of older people in the population – 17.5% of the population is
aged over 65, the highest level in the eight Core Cities. Analysis of demographic and needs data and
consultation findings identify some significant issues for the current and future population of older
people in the city, including:
 The proportion and numbers of older people in the population are projected to increase sharply
– those over 50 increasing from 33% of the population in 2003 to 38% in 2028. While the
population of people 65 plus has been declining, it is projected to increase significantly from
2007 till 2028. While the population of people aged 80 plus is stable, it is projected to increase
from 2014, by over a third by 2028.
 There will be a dramatic increase over the next 10 years in the number of older people in Black
and Minority Ethnic (BME) groups. Currently research indicates a lower take up of housing and
related services by older people from BME groups. There is therefore a pressing need to
develop effective services capable of meeting diverse cultural expectations. Engagement with
users is essential to ensure specialist requirements are met effectively and sensitively.
 The number of older people who are registered disabled is projected to increase by around 10%
between 2011 and 2021, indicating increased demand for adaptations and a need to plan for
the provision of new housing to Lifetime Home standards.
 Older people require different housing and support services at different times in their lives,
dependent on changing health, personal and social circumstances and crises. There is a need
to provide services that are flexible and can respond to changing need, as well as making it as
easy as possible to find out about and access other options.
 There is an ageing population in sheltered housing with an increasing population of tenants
aged over 75. These tenants may ultimately require more support than existing sheltered
schemes can offer.
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The mix of housing tenure in the city is changing, with increasing owner-occupation, particularly
among generations who will be approaching retirement in the next 20 years. Older owneroccupiers may wish to continue in home ownership and will be able to release equity from their
current homes to access new housing. Older people will aspire to different forms of provision
across all tenure types to meet their individual needs and aspirations.
People want to remain independent in their homes for as long as possible; indicating a need for
homes designed with the flexibility to manage with a disability or reduced mobility. The need for
space does not diminish with age and most older people would like a two bedroom home. Many
older peoples’ needs can be met within general needs housing provided it is developed with
sufficient flexibility and space standards, reducing the need for specialist accommodation
provision.
Bed-sits with shared facilities are no longer an acceptable option for the vast majority of older
people, so sheltered housing schemes and other housing that offer this will need to be
remodelled or decommissioned.
Location is important to older people, with a general preference for living in a familiar
neighbourhood with easy access to facilities. This is particularly relevant for older BME people,
for whom proximity to places of worship, shops and family support are important.
Supply Analysis
While there is a range of provision in the city, both of specialist accommodation and services to support
continued housing independence, the overall level of provision is low compared to the current and
projected size of the older population. Overall it is expected there will be increased pressures in coming
years on all services, particularly those which enable “ageing in place”, because the development of
new specialist housing cannot keep pace with growth in numbers of older people.
Social Housing
 Although Sheffield has higher levels of social rented housing than the national average, it has
comparatively low levels of sheltered housing and other provision for older people - less than
half the national average - and of this around 20% is bed-sit accommodation. Many of the
existing social housing sheltered schemes do not currently meet the Decent Homes Standards
or the aspirations of older people.
 There are currently 35 Council owned sheltered schemes offering 1508 units, the Sheltered
Housing Investment Programme will reduce this to 29 schemes offering 1089 units of
modernised good quality accommodation for older people.
 There are currently 32 sheltered schemes offering 770 units of social rented housing owned &
managed by Registered Social Landlords in the city.
 There are relatively few bungalows in the social housing sector, most of the accommodation
being flats.
 There is very little provision of specialist housing which is culturally sensitive to the needs of
BME older people.
 There is limited, though increasing, provision of extra care housing in the city, increasing from
nil in 2003 to around 300 units by 2007.
 There needs to be explicit provision for older persons within the Neighbourhoods Development
Frameworks to address the needs of the ageing population.
Owner-occupation
 Sheffield has lower levels of owner-occupation than the national average, though proportions
are changing as owner occupation increases.
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A proportion of the older owner-occupiers will have difficulties maintaining their homes, some of
which are in poor condition and lack central heating. The Houseproud service may increase
some older persons’ access to equity and thus their ability to afford repairs and improvements
to meet mobility and other disability needs.
Currently demand for the aids and adaptations service far outstrips what can be funded within
available grant levels. There are significant levels of older owner-occupiers living in houses who
will require equipment and adaptations as they become less mobile.
There are significant levels of owner-occupation in areas with high BME populations. BME
groups have generally lower levels of awareness of the services that are available to help them
remain independent. This is compounded by the lack of appropriate culturally sensitive services
for diverse needs.
Independent Living
An increasing number of older people in Sheffield are being supported to remain independent in their
own homes in all tenures, resulting in reduced admissions to care homes and fewer delayed discharges
from hospital. Provision of dispersed services has significant cost and staffing implications, particularly
when compared to provision within schemes, where economies of scale can be achieved. Therefore
further analysis is required of the potential costs of provision and sources of revenue to enable provision
to keep pace with demand.
 The planned expansion of the Council’s Telecare pilot will enhance the existing community
alarms service, resulting in the promotion of independent living for all vulnerable groups,
including older people.
 Ranges of other services are currently commissioned to support independent living. These
include around 450 units of floating housing support; the Stayput home improvement agency;
and a handypersons scheme. These services play a key role in addressing housing issues that
may otherwise necessitate a move to specialist accommodation.
 Sheffield’s Partnership for Older People project will be employing link workers in disadvantaged
neighbourhoods over the next two years to improve access and engagement with services as
well as developing more integrated health and social care service provision.
Key Messages
Analysis of the needs and supply data leads us to a number of conclusions about the issues that need
to be tackled through implementation of the strategy:
 The population is ageing, and the older population has a highly diverse range of needs and
aspirations.
 There is an expectation for service provision to be flexible in order to meet the changing needs of older people.
 Commissioners and providers should not assume that they know what older people require. It
is essential that user engagement becomes an integrated element of strategy delivery.
 Our strategic plans are based on the premise that older people have the right to independent
living and self-determination, so that they are able to secure and sustain their independence in
a home appropriate to their circumstances.
 The provision of access to appropriate housing and services for older people that promote
independence and are responsive to needs and preferences is essential.
 Older people should be able to make active and informed choices about their accommodation,
so the provision of clear and comprehensive advice and information is essential.
 There are expectations that all housing and support services will be of good quality, providing
homes that are warm, safe and secure and high-performing, efficient support services.
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Services need to be proactive and take preventative approaches to support and care needs,
ensuring that housing related services reduce demand for more costly health and social care
interventions.
It is essential to have a “whole systems approach” that delivers seamless and integrated
services through partnership working between commissioners and providers of housing, health
and social care services.
It is essential that services maximise social inclusion and social cohesion by addressing the
diverse needs of all customers and mainstream equality standards, working to prevent age
discrimination by maximising opportunity and quality of life for customers.
Strategic Priorities for Action
Based on this analysis we have identified strategic priorities, based on the three themes in Housing
Strategy Successful Housing Markets, Decent Homes in Sustainable Communities and Inclusion and
Independence. The five themes of Government’s Quality & Choice for Older People’s Housing are
integral to the delivery and underpin the delivery of the action plan for implementation of the strategy.
These are:
Diversity and Choice
1
Devise and implement an older people's consultation and involvement strategy to ensure that they
play an active role in decision-making on strategic issues and service delivery. Utilise and coordinate a range of methods and approaches to engage hard to reach groups such as very frail and
housebound older people, BME communities, lesbian and gay older people, and older people with
mental health problems.
2
Consult with representatives of agencies and voluntary organisations that work with the BME elders
to establish precisely the nature of accommodation, services and facilities that specific cultural
groups require. Then take steps to ensure that these needs are adequately catered for within future
delivery plans.
3
Continued development of new extra care housing throughout the city with a mix of tenure options.
Use partnership working and innovative approaches to secure capital funding from a range of
sources. Ensure that extra care housing provides a “home for life” that can meet residents’
changing needs and support independence for as long as possible.
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Increase the provision of housing options and choices for older people, particularly ensuring that
regeneration programmes deliver solutions for the housing needs of older people in disadvantaged
communities. Ensure that new housing for older people meets aspirational quality standards,
meeting demand for larger homes in attractive surroundings.
Information, Advice and Access
5
Develop and implement information and marketing strategy for older peoples’ housing services to
ensure the best possible availability of advice and information on service provision. Independence
for older people means the capacity to make choices and exercise control over their lives. In order
for this to happen, not only do they have to have services in place that they can access but they
also need advice and information to enable them to make those choices.
In consultation with older people and stakeholders, a review of the approach taken in promoting the
services will take place. Alongside this we will take a strategic approach to ensuring services are
adequately promoted.
Flexible Service Provision
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Continue to improve and develop services that enable older people to continue independent living
in their own home for longer, such as disability adaptations, home improvement agencies, equity
release schemes and housing-related support.
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Continue to develop the use of telecare and assistive technology to manage risks for older people,
enhance quality of independent living and help older people to remain safe and secure in their
homes.
Quality and Standards
8
Ensure that all housing-related services for older people are governed by clear and consistent
service standards which reflect our expectation of:
 High quality and continuous improvement.
 Flexible service provision.
 Customer and outcome focus.
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Involve older people in setting and monitoring the quality of services that they receive and
influencing the strategic approach to the provision of housing and support services.
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Ensure that all sheltered housing in the city meets the Decent Homes standards and provides good
quality housing and services that are in demand.
Joint Working
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Work in partnership with other agencies and stakeholders through the Council’s Strategy for an
Ageing Population to tackle ageism and move towards achieving more integrated user-led services
that actively remove the barriers to holistic service provision for older persons.
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Older People’s Housing Strategy - Action Plan
Project
Successful
Neighbourhoods
Brunswick Gardens
Retirement Village
Flower/Roman Ridge
Hemsworth Extra
Care Housing
Scheme
Dyche Road,
Summary of aims and action
In partnership with Arena Housing
Group and the Extra care Charitable 
Trust, to develop 217 one and two
bedroom units of extra care housing
within a retirement village setting. 175
properties will be available for rent, 30
for shared ownership and 12 for
outright sale, with numerous communal
facilities.
In partnership with Sanctuary Housing,
development of an innovative scheme
of 80 two bedroom flats in Wincobank
with 24 hour care and support and
amenities for residents and the local
community.
Mixed tenure – 77% for rent, 15% for
shared ownership and 8% for outright
sale. Part of regeneration of a 14-acre
site that includes the construction of
200 affordable homes and an
Intermediate Care Centre.
Develop a mixed tenure extra care
housing scheme in Hemsworth to the
south of the city with around 80 two
bedroom properties, approx 30% of
which will be in social rented housing,
with communal facilities.
Work with a partner to develop a
Timescale
Outcomes
 Currently on site.
Completion in November
2007.
 Occupation in January
2008.
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Planning in progress,
seeking funding.
Assuming resources
obtained, completion of
scheme circa March 2009.
217 units of extra care housing.
Approx 300 people provided with support.
At least 75 service users provided with personal care.
Use of communal facilities and activities by local
community.
80 units of extra care housing and community
facilities.
 Integrated housing, heath and social care services.
 Use of communal facilities and services by local
community.
 Development partner to be
appointed in February 2007.
 Scheme to open
by December 2008.
 80 units of extra care housing and community facilities.
 Use of communal facilities and services by local
community.
2008 – 2010.
 50 plus units of extra care housing and communal
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Project
Jordanthorpe
Stocksbridge
New sites and
opportunities
Older People’s
housing within the
Neighbourhood
Development
Framework (NDF)
areas
Summary of aims and action
scheme of 50 or more two-bedroom
properties, available for rent, shared
ownership or outright purchase.
Plan and deliver a major community
development with a choice of suitable
quality housing for older people on a
number of cleared sites in the area.
This will involve the replacement of
sheltered schemes at Sweeney/Balfour
and residential care at Newton Grange.
Analysis of housing demand,
demographic, health and housing data
and site availability to identify most
appropriate development sites for older
peoples housing. Appraisal of funding
mechanisms and partnership
arrangements to deliver new schemes.
Plan jointly with NDF teams/developers
in the North, South and East of the city
to develop provision in areas/sectors of
the market where gaps are identified.
South
- Scowerdons, Weaklands and
Newstead.
- Wybourn, Arbourthorne.
- Manor Park centre.
- Manor.
North
- Standish.
Timescale
Outcomes
facilities/activities.
 Approx 80 people provided with support.
 Initial project planning,
consultation and proposal
development – 2007.
 Completion of new
development – 2010.
A high quality development for older people with choice of
tenure and service provision, including both extra care
and general needs housing.
Ongoing through the life of the
strategy.
 Database of locality data related to development.
 Programme of development of new projects.
 Increased provision and choice of tenure for older
people throughout NDF/regeneration areas,
sustainable housing markets and neighbourhoods with
diverse provision for all age groups
 Standish: 12 x 2 bed flats for rent for older
cat 1.
- 2007 – 2015.
- 2010 onwards.
- 2011 onwards.
- To be determined.
- Summer 2007.
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 Busk Phase 2: 18 x 2 bed flats, 12 for s/o.
people –
Project
Decent Homes in
Sustainable
Neighbourhoods
Sheltered housing
Summary of aims and action
- Busk Phase 2.
- Foxhill.
- Shirecliffe and Parson Cross.
Timescale
- Spring 2007.
- 2007 – 11.
- Up to 2013.
East
- Woodside and Ellesmere - Catherine
Street.
- 2007 – 2011.
- 2009 – 2013.
Plan and deliver investment to bring 29
of the 35 council sheltered schemes up
to the Decent Homes Plus standard.
Where appropriate, schemes will be
remodelled to provide larger
accommodation.
Plan decommissioning of the remaining
6 schemes and carry out consultation
on alternative uses for buildings or
sites. Establish a resident’s charter and
consultation process to oversee
development of plans, including the
provision of support for residents.
Identify suitable future housing options
for residents. The 6 schemes will be
maintained normally until
decommissioning plans are in place,
but will not receive Decent Homes
 Investment programme – up
to 2012.
 Decommissioning – up to
2012.
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Outcomes
 Delivery of Decent Homes Standard in most schemes.
 Schemes not viable for investment decommissioned
and alternative use found.
Project
Inclusion &
Independence
Integrated solution for
older peoples
housing support in
the community
Telecare
Summary of aims and action
improvements. Schemes to continue to
be let normally, with no change in
management until plans are in place.
Timescale
Maintain and develop the existing
Ongoing.
range of services that support people to
remain independent, including:
 City wide handypersons schemes
for older people in all tenures.
 Older peoples floating support
services.
 Stay Put home improvement
agency provides advice and
assistance to older homeowners
and private tenants to carry out
repairs, improvements and
adaptations to their homes.
Ensure that services are co-ordinated
effectively, offer best value and achieve
strategic outcomes.
Expansion and rollout of Telecare
assistive technology, including passive
and movement sensors that are placed
Outcomes
 Sustain independence and help people remain in their
own homes for longer.
 Improve safety and security.
 Prevent inappropriate hospital admissions and enable
more effective discharge following hospital care.
 Reduce social exclusion and isolation.
Ongoing.
 Sustain independence and help people remain in their
own homes for longer.
 Prevent inappropriate hospital admissions and reduce
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Project
Outreach floating
support
Consultation
Summary of aims and action
Timescale
around individuals home. Explore and
trial use of Telemedicine.
Develop a workable model for the
By 2008.
provision of outreach floating support
from sheltered housing schemes,
providing low-level neighbourhood
based monitoring and support for older
people living independently.
Establish and maintain consultation
2007 and ongoing.
dialogue with older people, via Elders
Congress and 50+ Group, BME
community groups, tenant associations,
community groups. Utilise consultation
mechanisms established through
POPPs programme to consult on
housing issues.
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Outcomes
delayed discharge.
 Increased support options and choice.
 Improved community safety.
 Reduced demand for specialist accommodation.
Established communication channels, older people and
other stakeholders actively influencing service delivery
and strategic direction.