This is not a stand-alone housing strategy, and it is important to acknowledge that success depends on effective collaboration across the council, our partners and people who live in Cumberland.

This is a key strategy which has been designed to be aligned with other key strategy documents that are focused on improving health and wellbeing and addressing inequalities, in particular:

• Cumberland Council Plan 2023 to 2027
• Adult Social Care and Housing Vision
• Homelessness Prevention and Rough Sleeping Strategy 2025 to 2030
• Home Adaptations and Assistance Policy 2025
• Cumbria Economic Strategy 2025 to 2045
• Joint Local Health and Wellbeing Strategy 2023 to 2028

And will influence the development or review of:

• Cumberland Local Plan
• Affordable Housing Policy and partnerships
• Cumbria Choice Allocations Policy
• Private sector enforcement policy
• Supported Accommodation Strategy
• Empty Homes Plan
• Accessibility Strategy
• Tenancy Strategy
• Sustainable Warmth and meeting Net Zero Targets
• Cumberland Care Review 2025
• Equality Objectives 2024 to 2028
• Community Engagement Framework
• Applying Corporate parenting principles
• Joint working protocol between ASCH and children's services

The Housing Strategy 2025 to 2039 puts health and well-being at its centre and outlines the key priorities needed to ensure that there are fewer households in fuel poverty and more affordable and suitable homes available.

This strategy is aligned to the aim of Cumberland Council's Plan 2023 to 2027:

The Cumberland Plan sets out the council’s values that are embedded in everything that we do. These values cut across all aspects of Adult Social Care and Housing work, both collectively as services and through individual staff behaviours. We are:

• compassionate
• innovative
• empowering
• ambitious
• collaborative

The Cumberland Plan aim is improving health and wellbeing.

The key areas of work are:

• addressing inequalities
• local economies that work for local people
• environmental resilience and climate emergency
• delivering excellent public services

The Cumberland approach to service delivery include:

• listening, involving and engaging
• learning and improving
• sustainabilitity
• driving change
• local first
• leadership
• collaborative working
• prevention and early intervention
• accessible and trusted services

All these priorities interlink and reinforce each other to improve the opportunities, wellbeing, and quality of life of our communities from tackling inequality to making best use of the council’s resources.

By aligning the Housing Strategy with the Cumberland Plan we aim to support residents in our communities by making housing accessible and providing housing that they can aspire to live in.

Housing is part of the Adult Social Care and Housing Directorate, our Directorate Vision, aligned to the Cumberland Plan is:

The vision for Adult Social Care and Housing is that we provide excellent care and support and create homes where people feel they truly belong. We support people to live fulfilled, healthy, and independent lives by focusing on what matters most to them and their wellbeing. By listening to people, offering real choice, and embracing new ideas, we will create housing and support that meets people’s needs and ensures everyone has a place that they are happy to call home.

The vision is underpinned by five priorities:

• excellence in practice
• valuing our skilled workforce
• empowered voices, empowered choices
• right support, right time, right place
• innovating for our communities

We know the challenges and issues that are faced in Cumberland, and we can only address these through collaboration with our partners and our communities. Our aim is to create strong relationships with others to enable us to deliver on our priorities.

Consultation and engagement encourage better decision making and problem-solving as well as providing an opportunity to hear new ideas and different voices. The Community Engagement Framework includes four principles of engagement, namely that it should be:

• inclusive
• co-ordinated
• collaborative
• meaningful

The relevance and success of this strategy involves a wide range of key stakeholders across Cumberland Council’s local communities, and there has been a series of engagement and consultation activities over several months. Consultation began during the development of the housing studies when consultants met with several community panels and presented a mid-point review of emerging findings to key stakeholders.

Consultation on the draft priorities in this Housing Strategy has been undertaken through a range of methods, and amendments have been made as feedback has been received: 

• staff engagement events
• directorate team, portfolio holders, and housing lead officers briefing sessions
• stakeholder engagement event, including developers, registered providers, government funders, neighbouring councils, Lake District National Park, NHS
• formal stakeholder consultation
• public consultation (online survey)
• Cumberland Council elected members
• community panels
• members of the Cumbria Housing Supply Group

The latest NPPF was issued in December 2024. This document reflects the Government’s Plan for Change pledge to kickstart economic growth, partly through delivering planning reform to build 1.5 million new homes. The NPPF sets out the Government’s planning policies for England and how these should be applied. 

Homes England Strategic Plan 2023 to 2028

Homes England are the government’s housing and regeneration agency. They work in collaboration with local government, housebuilders, developers, housing associations, infrastructure providers, landowners and lenders to deliver change. Homes England own over 9,000 hectares of land and £16 billion of combined capital spend to deploy by March 2028. 

The Strategic Plan 2023 to 2028 sets out how Homes England will use their land and funding "to address geographic inequalities in the built environment and deliver better homes and places for the people who need them."

This work will include bespoke partnering with local authorities to plan and deliver housing and mixed-use schemes. Homes England also pledge to “support local authorities to deliver the affordable housing needed by their communities. This includes their capacity to deliver new council housing.”

Homes England Affordable Homes Programme (AHP) 2021 to 2026

The AHP is one of the primary vehicles used by government for the delivery of affordable housing in England. It allocates grant funding to local authorities and housing associations to help support the capital costs of developing affordable housing for rent or sale. The AHP 2021 to 2026 provides grant funding to support the capital costs of developing affordable housing in England. 

Housing legislation

Including, but not limited to:

• Housing Act 2004
• Housing Act 1984
• Housing Grants, Construction and Regeneration Act 1996
• Home Energy Conservation Act 1995
• Electrical Safety Standards in the Private Rented Sector (England) Regulations 2020
• Homes (Fitness for Human Habitation) Act 2018
• Environmental Protection Act 1990
• Domestic Minimum Energy Efficiency Standard (MEES) Regulations
• Smoke and Carbon Monoxide Alarm (Amendment) Regulations 2022
• The Management of Houses in Multiple Occupation (England) 2006
• Licensing and Management of Houses in Multiple Occupation and other houses (miscellaneous provisions) (England) Regulations 2006
• Localism Act 2011 (Part 7)
• Homelessness Reduction Act 2017

Rough sleeping in England: local and national government action

Published on 28 January 2025, this briefing document outlines the legal framework that governs local authority homelessness duties. It also provides an overview of initiatives and funding programmes introduced by successive governments since 1990, and the manifesto commitments of the current government and the actions it has taken so far, including:

• a commitment to developing a cross-government homelessness strategy to be published in 2025
• £1 billion of new funding for local authorities in 2025 and 2026 to reduce and prevent homelessness
• a £185.6 million Rough Sleeping Prevention and Recovery Grant for local authorities to help support people experiencing rough sleeping in their area
• over £633 million for the Homelessness Prevention Grant
• £37 million revenue funding for the Rough Sleeping Accomodation Programme

The briefing document also outlines measures still needed:

• preventing rough sleeping - focus on preventative work stopping initial instances of rough sleeping before they occur
• increasing suitable housing supply
• prioritising ending homeless across government

A Bill to change the law about rented homes, including provision abolishing fixed term assured tenancies and assured shorthold tenancies; imposing obligations on landlords and others in relation to rented homes and temporary and supported accommodation.

The Bill will:

• abolish section 21 evictions and move to a simpler tenancy structure where all assured tenancies are periodic
• ensure possession grounds are fair to both parties, giving tenants more security, while ensuring landlords can recover their property when reasonable
• provide stronger protections against backdoor eviction by ensuring tenants are able to appeal excessive above-market rents which are purely designed to force them out
• introduce a new Private Rented Sector Landlord Ombudsman that will provide a quick, fair, impartial and binding resolution for tenants' complaints about their landlord
• create a Private Rented Sector Database to help landlords understand their legal obligations and demonstrate compliance, alongside providing better information to tenants to make informed decisions when entering into a tenancy agreement
• give tenants strengthened rights to request a pet in the property, which the landlord must consider and cannot unreasonably refuse
• apply the Decent Homes Standard to the private rented sector
• apply 'Awaab's Law' to the sector, setting clear legal expectations about the timeframes within which landlords in the private rented sector must take action to make homes safe where they contain serious hazards
• make it illegal for landlords and agents to discriminate against prospective tenants in receipt of benefits or with children
• end the practice of rental bidding by prohibiting landlords and agents from asking for or accepting offers above the advertised rent
• strengthen local authority enforcement by expanding civil penalties, introducing a package of investigatory powers and bringing in a new requirement for local authorities to report on enforcement activity
• strengthen rent repayment orders by extending them to superior landlords, doubling the maximum penalty and ensuring repeat offenders have to repay the maximum amount

Fuel poverty and the decarbonisation of housing stock

Sustainable Warmth is the updated Fuel Poverty Strategy for England and sets out how councils will tackle fuel poverty, while at the same time decarbonising buildings. This will ensure those in fuel poverty are not left behind on the move to net zero, and, where possible, can be some of the earliest to benefit. A review of the Fuel Poverty Strategy is currently ongoing.

In 2024, the government committed to a Warm Homes Plan to upgrade five million homes over the next five years to cut bills for families and deliver warmer homes to slash fuel poverty. This ambition is a key part of the government’s ‘second mission’ to transform Britain into a clean energy superpower, including providing the country with clean energy by 2030, reducing bills, and transitioning homes to clean heat as part of our wider ambition to reach net zero by 2050. 

The Warm Homes Plan includes an allocation of £500 million for local authorities to deliver a new ‘Warm Homes: Local Grant’ scheme from 2025 to 2028, and further plans to extend the scheme to 2030.

The government published a white paper in December 2024, to set out plans to move power out of Westminster and back to local communities. Devolution will lead to the establishment of a Mayoral Combined Authority, with the first election for a Mayor taking place in May 2026.

The Cumbria Combined Authority will potentially have greater local control over housing, as well as areas such as planning, transport, adult education and skills. 

Areas of housing responsibility would include:

• control of funding to support regeneration and housing delivery
• a strategic place partnership with Homes England
• powers to drive regeneration in their area, for example, powers to establish Mayoral Development Corporations
• work on a Spatial Development Strategy (SPD)
• following the implementation of the SDS, the Mayor would also be given powers to 'call in' planning applications of 'strategic importance'
• the ability to charge new developments with a 'Mayoral Community Infrastructure Levy', the revenue collected is used to help deliver local infrastructure

Local housing authorities are no longer required to carry out a specific separate assessment of the accommodation needs of Gypsies and Travellers in their local area. However, we still have a general duty to use a robust evidence base to establish accommodation needs. Local authorities should still consider how to meet the needs identified in the evidence base, and plan for new Gypsy and Travellers sites where a local need is identified.

When developing strategies for preventing and reducing homelessness, the local housing authority is required to consider the needs of all groups of people in their district who are homeless or likely to become homeless, including Gypsies and Travellers. They should also consider the needs and lifestyles of applicants who are Gypsy and Travellers.

Decision-making for policy concerning Gypsies, Travellers and Travelling Showpeople sits within a complex legislative and national policy framework and this study must be viewed in the context of this legislation and guidance. For example, the following key pieces of legislation and guidance are relevant when developing policies relating to Gypsies, Travellers and Travelling Showpeople:

• The Housing Act, 1985
• Planning Policy for Traveller Sites (PPTS), 2024
• The Housing and Planning Act, 2016
• The National Planning Policy Framework (NPPF), 2024
• Planning Practice Guidance3 (PPG), 2021

The primary guidance for undertaking the assessment of housing needs for Gypsies, Travellers and Travelling Showpeople is set out in the PPTS (2024). It should be read in conjunction with the National Planning Policy Framework (NPPF). In addition, the Housing and Planning Act and NPPF make provision for the assessment of need for those Gypsy, Traveller and Traveller Showpeople households living on site and yards who do not meet the PPTS planning definition - through the assessment of all households living in caravans.

The Armed Forces Covenant is a promise that together we acknowledge and understand that those who serve or have served in the armed forces, and their families, including the bereaved, should be treated with fairness and respect in the communities, economy, and society they serve with their lives.

Its two principles are that, recognising the unique obligations of, and sacrifices made by, the armed forces:

• those who serve in the armed forces, whether Regular or Reserve, those who have served in the past, and their families, should face no disadvantage compared to other citizens in the provision of public and commercial services
• special consideration is appropriate in some cases, especially for those who have given most such as the injured and the bereaved

Cumberland Council is committed to the Armed Forces Covenant. The Cumbria Choice allocations policy and our suite of affordable housing policies ensure that veterans and armed forces families are not disadvantaged by local connection rules.

Housing is a key determinant of health, wellbeing and financial security. The quality of our homes can mean the difference between a good later life or one that is marred with ill-health and poverty.

The connection between inadequate housing and negative health outcomes is well-established. In 2022 to 2023 alone, 5,000 excess winter deaths were attributed to cold homes, highlighting the life-threatening consequences of inadequate heating and insulation.

Falls, exacerbated by hazardous housing conditions, resulted in 234,000 emergency admissions for people aged 65 and over in 2019 to 2020.

These preventable health issues place an unsustainable burden on the NHS, with poor housing costing the healthcare system £1.1 billion annually, of which £595 million is attributable to homes headed by people over 55.

As Lord Darzi stated in his recent review of the NHS:

The role of Disabled Facilities Grant therefore has a direct connection to managing NHS waiting lists, budgets and winter pressures. The grant programme is acknowledge as a key means by which we can 'reduce hospitalisations and prolong independence.'

The Home Improvement Agency model offers a one stop shop with access to DFGs but also a range of services, aids and changes that can be made to the home to keep people safe and warm and living independently.

A recent report by The Centre for Ageing Better identified clear benefits to service users:

• significant benefits including enhanced independence, improved safety, and better wellbeing - testimonials highlight how small adaptations such as grab rails, restore confidence and reduce anxiety
• adaptations also support improvement in mobility and helps top the decline in physical health - big changes such as stair lifts, ramps and wet rooms were life changing for those with mobility challenges
• the 'one-stop-shop' model has also been praised due to how easy it is for service users to access and use the range of services available

Benefits to the health and social care system include:

• adaptations to the home that aim to prevent falls have significant potential to reduce demand on local health services - with an estimated saving for the NHS of £1.10 for every £1 spent, and a saving for society of £4.56 for every £1 spent
• home adaptations installed by home improvement agencies as part of a hospital discharge service reduced the need for formal caregiving and enabled faster hospital discharge, saving £2,690 per discharge and reducing average bed days from 15 to 9

The Cumberland HIA will deliver physical changes to home and realise the impacts set out above. Our ambition is to go beyond this by forging a strong interconnecting relationship with the new Cumberland Council Prevention Service on pre front door activity by linking people into social prescribing services as well as household and welfare related support, and vice verse, from the preventative service into the CHIA service offer.

Cumberland Council is committed to putting health and wellbeing at the heart of its business, including ensuring that local housing supports residents’ wellbeing. A home is not just a place to live, but should be a place of comfort, shelter, safety and warmth; a place to raise family and welcome friends; and a basis for all our other daily activities. It is the main setting for our health throughout our lives.

Poor housing conditions can have significant impacts on health and wellbeing. Evidence shows that exposure to damp, cold, mould and overcrowding all have negative effects on physical and mental wellbeing, leading to poorer health outcomes and shorter life expectancy.

Physical health impacts include breathing problems from damp and mould, including conditions like asthma and allergies. Cold temperatures and poor housing conditions can contribute to heart-related health problems. Overcrowding can help spread infectious diseases. Whilst poor housing conditions – like faulty wiring or trip hazards – can increase the risk of accidents and injuries.

Mental health impacts include stress and anxiety, depression and specific effects on children of overcrowding, poorer physical health and behavioural problems.

According to the Chartered Institute of Environmental Health’s toolkit ‘Good Housing Leads to Good Health’, stress is a health issue that can be linked to bullying, school refusal, under performance at school as well as unemployment or absence from work.

Housing is a key social determinant of health, as a factor that influences health outcomes beyond medical care. Access to safe, affordable and decent housing is crucial for overall health and wellbeing.

Ongoing efforts to promote healthy housing, including improving housing quality and affordability are essential for health and wellbeing.

The definition of Affordable Housing is taken from the National Planning Policy framework released in 2024.

Affordable housing: housing for sale or rent, for those whose needs are not met by the market (including housing that provides a subsidised route to home ownership and/or is for the essential local workers); and which complies with one or more of the following definitions:

Social rent: meets all of the following conditions: (a) the rent is set in accordance with the government's rent policy for social rent; (b) the landlord is a registered provider; and (c) it includes provisions to remain at an affordable price for future eligible households, or for the subsidy to be recycled for alternative affordable housing provision.

Other affordable housing for rent: meets all of the following conditions: (a) the rent is set in accordance with the government's rent policy for affordable rent, or is at least 20% below local market rents (including service charges where applicable); (b) the landlord is a registered provider, except where it is included as part of a Build to Rent scheme (in which case the landlord need not be a registered provider); and (c) it includes provisions to remain at an affordable price for future eligible households, or for the subsidy to be recycled for alternative housing provision. For Build to Rent schemes affordable housing for rent is expected to be the normal form of affordable housing provision (and, in this context, is known as affordable private rent).

Discounted market sales housing: is that sold at a discount of at least 20% below local market value. Eligibility is determined with regard to local incomes and local house prices. Provisions should be in place to ensure housing remains at a discount for future eligible households.

Other affordable routes to home ownership: is housing provided for sale that provides a route to ownership for those who could not achieve home ownership through the market. It includes shared ownership, relevant equity loans, other low cost homes for sale (at a price equivalent to at least 20% below local market value) and rent to buy (which includes a period of intermediate rent). Where public grant funding is provided, there should be provisions for the homes to remain at an affordable price for future eligible households, or for any receipts to be recycled for alternative affordable housing provision, or refunded to government or the relevant authority specified in the funding agreement.

Cumberland Council is not a housing developer and the housing team work with planning officers and local developers to make sure that affordable housing of all tenures is provided on new developments. During the first year of the new council (2023 to 2024) 98 affordable homes were built in Cumberland:

Over the last five years, Cumberland Council and its former district councils have delivered many of the Local Authority Delivery schemes established by the Department of Energy Security and Net Zero (formerly the Department for Business, Energy and Industrial Strategy). Typically, these have been delivered as a Cumbrian Consortium together with Westmorland & Furness Council and its former district councils.

Our aims for these schemes have been to increase Energy Performance Certificate (EPC) ratings and the thermal comfort of housing stock, tackle fuel poverty for low-income households and those in deprived areas, improve the sustainability of existing housing stock, and make progress towards the UK’s 2050 Net Zero targets by reducing carbon emissions and energy use.

The schemes have provided installation of energy efficiency measures and low-carbon heating systems. Common measures have included: cavity and solid wall insulation, loft insulation, solar photovoltaic panels, air source heat pumps and high retention storage heaters.

Beginning in January 2021 to September 2022, the consortium led by the former Eden District Council delivered the £5 million Local Authority Delivery 2 (LAD2), also known as the Green Homes Grant, which seen 402 measures installed in 273 private sector homes in Cumbria; of these there were 254 measures installed in 180 homes in the Cumberland area.

From April 2022 to November 2023, the consortium led by the former Carlisle City Council delivered the £7.6 million Sustainable Warmth Scheme (which combined Local Authority Delivery - LAD3 and Home Upgrade Grant - HUG1). The scheme seen installation of 801 measures in 475 private sector homes across Cumbria; of which there were 438 measures installed in 227 homes in the Cumberland area.

From April 2023, the consortium led by Westmorland & Furness Council delivered the £6 million Home Upgrade Grant 2 (HUG2) scheme, for which delivery ended in March 2025 after installing 240 measures in 131 off-gas grid private sector homes across Cumbria, of which there were 118 measures installed in 66 homes in Cumberland.

In addition to these consortia delivered schemes, from January 2022 to February 2024 the former Allerdale Borough Council delivered the £5.2 million Social Housing Decarbonisation Fund Wave 1 scheme in partnership with housing association Home Group. The funding included £1.2 million awarded to Allerdale Borough Council and £4 million co-funding from Home Group, which delivered 628 measures in 90 socially rented homes.

Since August 2024, Cumberland Council has also been participating in the Ofgem Energy Company Obligation Flex (ECO4 Flex) scheme. During the first 8 months, as of March 2025, this has seen £2.5 million of funding spent on delivering measures to 113 private sector homes across Cumberland. The scheme running until March 2026.

From Q2 2025, a new consortium scheme led by Westmorland & Furness Council will be launched, the Warm Homes Local Grant. This is initially a 3-year scheme, with an allocation of £11.8 million for Cumbria. We aim to deliver measures in 820 private sector homes in Cumbria from 2025 to 2028, split equally between Cumberland and Westmorland & Furness. The Department of Energy Security and Net Zero expect to extend the scheme for a further 2 years until 2030.

Homelessness in Cumberland has increased by 53% over the last four years; with a 16% increase in the number of statutory homeless duties owed in the last 12 months alone compared to 9.2% nationally.

Demand for emergency temporary accommodation due to homelessness has doubled in Cumberland in the past 12 months, compared to a 12% increase in England. Families with dependent children being accommodated in emergency temporary accommodation has also increased by 5% for the same period.

Unfortunately, this is not a trend that is likely to decrease without direct action to drive forward change.

Aligned to the national picture, the main reason for homelessness in Cumberland is due to family no longer able or willing to accommodate, with relationship breakdowns with friends or partners, loss of work and poor health (mental health) as secondary contributing factors. People owed a full homeless duty in Cumberland with recorded mental health needs increased by 22% over the review period.

These challenges often combine with a housing market that is not working for local vulnerable people, where there is an undersupply and lack of affordable options with limited security (particularly within the private rented sector {PRS}). The data review tells us that in the last 12 months, there has been a 26% increase in the number of applicants in Cumberland presenting as threatened with homelessness within 56 days due to the service of a valid section 21 notice within the PRS; 91% of all cases were no fault evictions resulting from landlords wishing to sell or re-let their properties and asking their tenants to leave as a result – this is 27% higher than the national average.

Applicants with dependent children has been the primary reason for priority need over the review period accounting for 39% of all main duty acceptances in 2023 to 2024.

The General Needs Housing Study highlights issues with affordability across all tenures. Overall, Cumberland has seen a 17.6% increase in the prices of homes priced in the lower quartile and median ranges. This figure masks very differing figures within Cumberland, with house prices in the Lake District National Park – West Lakes increasing by 53.6% and house prices in Carlisle City rising by a comparatively low 10.36%.

The cost of a privately rented home has also increased across Cumberland. Since 2010, the cost of renting a home in the lower quartile price range has increased by 29.0%, and by 34.1% to rent a home in the median price range. Only the cost of renting shared accommodation in the West Cumbria Broad Rental Market Area is covered by Local Housing Allowance. 

Rising costs in the private rented sector increases pressure on registered providers to provide genuinely affordable housing.

There is a clear connectivity between a lack of affordable housing and an increase in homelessness and for longer periods. The statutory timeframe to make a decision about a person's housing situation is 56 days and the average waiting times in band A on Cumbria Choice are much higher. The lack of affordable housing options for those receiving a service through the homelessness and prevention route is a challenge, particularly for low income families.

Table 8: household income required for renting to be affordable

Table 9: household income required for home ownership to be affordable (based on 3.5 x income) by sub-area

New homes are important for the broader sustainability of rural communities. However, people living in rural areas can face challenges in terms of housing supply and affordability. Cumberland’s rural, diverse landscape poses challenges for the housing market. Transport and other infrastructure issues are prevalent in rural areas.

The General Needs Housing Study identified that:

The study further noted that “Cumberland is a rural county with limited alternative modes of transport and a high dependency on road trave, and there is an evidenced need for affordable housing in rural parishes in all sub-areas”.

Second homes and holiday lets are prevalent in rural areas, which adds further pressure to the rural housing market.

Since 2019 to 2020, no homes have been provided on rural exception site in Cumberland, and affordable provision in smaller settlements has been limited, with only 91 new-build affordable homes across Cumberland.

Table 10: affordable new homes in settlements with a population of less than 3,000 people

Cumberland has an older age structure compared to regional and national data. In the 2021 Census, 23% of our residents were aged 65 years and over. Population growth is projected to be concentrated in the older age groups (those aged 65). To meet this growth in older households, the General Needs Housing Study recommends that 15-20% of new homes should be level access.

It is important to provide housing suitable for older persons to allow them access to a range of homes to suit their needs. This will have a positive effect on available housing stock, and improved health and well-being will lessen the impact of inappropriate housing on health and social care services.

The need and priorities for supported housing will be detailed in the Supported Housing strategy. However, it must be remembered that not all older persons will require supported accommodation. Many older people will be able to live independently in suitable general needs accommodation.

Table 11: change in population 2022 to 2039 by age group

It has long been established that poor quality housing conditions adversely affects health, and the longer the exposure to poor conditions, the greater the impact on physical and mental health. It has been estimated that poor housing in England costs the NHS £4.1 billion per year.

The Stock Condition Study advises that the best predictor for the overall condition of housing stock is the age of the properties. The age of a dwelling also affects energy efficiency as building techniques and regulations have changed over time, as well as additional wear and tear to the property.

Table 12: number of households in Cumberland by property age

Excess cold

Households living in poorly heated homes are at greater risk of cardiovascular and respiratory diseases. England has an average of 1.9% of properties with excess cold. The average in Cumberland is 6.4% for owner-occupied properties, and 5.4% for privately rented properties. This accounts for approximately 7,400 homes in Cumberland.

Table 13: percentage of households with excess cold by age of property

Damp and mould

The effects of damp and mould can cause serious illness and, in the most severe cases, death. The presence of damp and mould can also affect tenants' mental health. England has an average of 4% of properties experiencing damp. Cumberland's figures are 5.4% for owner-occupied properties, and 8% for privately rented properties. This accounts for approximately 6,500 homes in Cumberland.

Energy inefficiency is closely linked to fuel poverty, and those living in inefficient homes tend to be those who can least afford to pay higher heating costs. The Stock Condition Study states that government data indicates that in 2022, 14.4% of households in Cumberland lived in fuel poverty. This is above the average figure for both England and the North-West.

We have seen many challenges in prior schemes for retrofitting homes, particularly in Cumberland where we have a high proportion of ‘difficult-to-treat’ homes. In Cumberland, 25% of housing stock was built before 1900 and over 50% was built before 1939. These older properties are challenging due to their construction being unsuitable for some types of measures or would require a higher cost to remedy than the schemes can allow, and other factors such as damp, asbestos, electrics and roof condition can add further difficulty to installations.

Properties that are in conservation areas or areas of outstanding natural beaty, or that are listed buildings or park homes can also mean the types of measures available is reduced due to planning restrictions, or not viable under the funding and cost caps. Additionally, for private sector homes, the owners may not always want the measures offered for a variety of reasons.

Table 14: percentage of dwellings by age and SAP score

Including, but not limited to:

The Renters Rights Bill is currently going through the legislative process, but in its latest form it will have a significant impact on the private rented sector and the wider work of the council. The council's role in the implementation of this bill includes the following:

• the creation of a private rented sector database to be used by local authorities to identify poor quality and non-compliant properties, and who owns them
• a private rented sector ombudsman service will be established - local authorities can take action against landlords who do not join, or anyone marketing a property owned by an unregistered landlord
• the bill will commit the government to consulting on plans for reformed Decent Homes standard which will be expanded to apply to private rented properties
• strengthened local authority enforcement powers, and a requirement for local authorities to report on enforcement activity
• impact on the work of the housing options team and a potential increase in households registering for social housing

The Support Housing (Regulatory Oversight) Act 2023 came into force in August 2023. Changes affecting local authorities are:

• a requirement to review supported housing in their areas and develop strategies
• powers to create local licensing schemes for exempt accommodation

The impact of the Supported Housing (Regulatory Oversight) Act 2023 will be examined in detail in the Supported Housing Strategy.

A legislative framework will be introduced as progress is made towards devolved local powers for Cumbria. The council will have to react to each piece of legislation and ensure that key areas, such as housing, are ready to function on day one of the Strategic Authority.

Some of the housing stock in Cumberland is unavailable for use as a permanent home. Primarily these properties are being used as holiday lets or second homes, and many potential homes are standing empty. 

Holiday lets are common in tourist hotspots, such as the Lake District National Park. In October 2024, 1,679 properties in Cumberland were listed on booking websites as available for holiday lets.

Second homes are scattered throughout the National Park and tend to be clustered around urban areas on the coast and in Carlisle. Council Tax figures for 2024 to 2025 show there are 3,162 second homes registered in Cumberland, equivalent to 2.3% of the properties in Cumberland. 

Only three parishes in Cumberland have no second homes registered – Bewaldeth & Snittlegarth, Denton Upper and Kirklinton. The parishes which have the highest percentage of housing stock used as second homes are all in the National Park:

Table 15: parishes in Cumberland with the highest percentage of second homes

Empty homes play a part in a rolling housing market, but properties that are habitually empty don't contribute to housing Cumberland's population and can lead to community breakdown. This breakdown may be caused by the property becoming a target for anti-social behaviour and crime or empty homes becoming so prevalent that they affect the infrastructure of a community.

There are currently 1,808 empty homes in Cumberland. Over 50% of these homes have been empty for between one and four years, with a further 5% empty for more than 10 years.

Table 16: parishes in Cumberland with the highest percentage of empty properties

In 2022, the legacy district Council’s in partnership with the Lake District National Park and Yorkshire Dales National Park, carried out a GTAA.  The main consideration of this study was to provide evidence to support the provision and pitches and plots to meet the current and future accommodation needs of Gypsies, Travellers and Travelling Showpeople.

The table provides a summary of the need identified in Cumberland during the last GTAA.

Table 17: total amount of provision in Cumberland 2024 to 2040

Cumberland Council recognises that a strong relationship with our stakeholders is key to achieving our priorities and building long-term success into our communities. Since LGR, and the resulting changes to council structure, it has been necessary to re-build existing relationships with many key stakeholders. Pre-LGR, each council had its own relationship with stakeholders, often with different contacts. These relationships must now be streamlined to remain functional.

LGR has also resulted in the need for the housing team to create new, innovative relationships to ensure that the council meets its wider remit. For example, we now collaborate with local NHS Integrated Care Boards to ensure services meet the needs of residents. 

The results of the GNHS indicate a need for building relationships with rural housing enablers, and small and medium enterprise builders. The Stock Condition Study shows a need to develop relationships with sustainable warmth providers. 

The number of young people under 35 years experiencing homelessness has increased significantly in Cumberland over the past five years. Particularly for young people who have additional tenancy sustainment needs including care experienced, young pregnant females, young families, and young people working on a low wage. 

This rise is attributed to a lack of affordable and sufficient accommodation supply of 1-bedroom properties (both within the private and social housing sector) across Cumberland to fully meet the increase in demand; increase in local rent levels; low earnings and low hours employment contracts; as well as a lack of suitable supported accommodation provision and rehousing pathways for young people to access to meet their specific accommodation and support needs. 

In relation to care experienced young people experiencing homelessness, Cumberland has seen a 195% increase in statutory homelessness cases over the review period, specifically in Carlisle which has seen a 300% increase in statutory prevention and relief cases. This is an annual average increase in Cumberland across the period of 32% year on year; with an average year on year increase in Carlisle of 43%.

From 2020 to 2021 and 2023 to 2024, Cumberland has seen a 70.6% increase in the number of homelessness presentations for those aged 16 to 17years; with an average increase across the period of 20% year on year. 

Key aspects to note include:

• 48% of all 16 to 17 year-old cases were within the Carlisle locality area
• 59% of all 16 to 17 year-old cases were female

This strategy sets out the vision and priorities to shape how the council responds to homelessness over the next five years. It has been designed to work with other council key strategy documents that focus on improving health and wellbeing and addressing inequalities.

The Homelessness Prevention and Rough Sleeping Strategy identifies the following five strategic priority objectives, which are set within the fundamental principles of the Homelessness Reduction Act 2017.

The key priorities are:

1. Prioritise early intervention and prevention of homelessness.
2. Work to end rough sleeping.
3. Develop and improve access to a suitable range of affordable settled, supported and temporary accommodation solutions.
4. Deliver an efficient, effective and accessible homelessness prevention and housing support service tailored to meet diverse needs.
5. Tackle systematic housing insecurity.

The Homelessness Prevention and Rough Sleeping Strategy evidences the need for supported housing for vulnerable client groups. One of the priorities of this Housing Strategy outlines how we will work towards providing a sufficient supply of affordable general needs housing and a range of specialist supported housing pathways to allow the Council to discharge its statutory duties around homelessness prevention and relief.

Details of how the Homelessness Prevention and Rough Sleeper Strategy meets the strategic aims of Cumberland Council are in that strategy. The strategy is available at The Homeless Prevention and Rough Sleeper Strategy.

The Supported Housing (Regulatory Oversight) Act 2023 places a requirement on local authorities to develop strategic supported housing plans which take account of existing supply and local need . The council has completed a Supported Housing Needs Study, and the outcome of this work will support the development of Cumberland’s Supported Housing Strategy, due to be complete by December 2025. In addition, the Cumbria Housing Market Position Statement will complement the Needs Study to enable to council to strategically plan and deliver supported housing in the future. The findings from the Homelessness Prevention and Rough Sleeping Strategy provides an additional evidence base of the need for supported accommodation, particularly for those experiencing mental health issues, young people and those on a criminal justice pathway.

The Supported Housing Needs Study 2025 to 2040 identifies the following points, which will form the basis of the strategic priorities.

Housing and accommodation for older people

• extra care housing development programme over 15 to 20 years
• focus on under-served key service centres
• encourage market sector providers where this is viable
• ensure that the council controls the mix of care needs so that people with high or complex care needs can be accommodated
• consider co-location of extra care housing with new care home provision
• in smaller towns or communities, consider lowering the age threshold for extra care housing to meet wider range of needs
• work with registered providers and market housing developers to encourage development of new generation of contemporary 'retirement housing' that is aspirational and supports ageing in place
• work with registered providers to upgrade existing sheltered housing
• work with the care home sector to encourage and reshape the market towards nursing care provision and provision for people living with dementia and other complex care needs

Housing for people with learning disabilities or autistic people or people with mental health needs

• supported housing development programme over 15 years
• encourage a mix of 'mainstream' and specialist not for profit registered providers
• review the needs of people currently in care home placements to assess their suitability for a move to a supported housing alternative
• review the purpose and suitability of existing shared supported housing
• there is a need for people to have better access to mainstream general needs housing with support
• some older people with learning disabilities or autistic people or mental health needs will benefit from access to age designated supported accommodation, such as retirement or sheltered housing and extra care housing

Housing for people with physical disabilities or long term conditions

• use the evidence of need for fully wheelchair adapted homes and accessible homes to influence social and market housing developers
• anticipate increased demand for financial support from lower income households, in the owner-occupied sector in particular for Disabled Facilities Grant funding for home adaptations
• make use of the delivery of additional supported or specialist housing for older people, particularly additional extra care housing, to meet some of this need
• develop specialist housing for smaller number of working age adults with complex physical and related health and care needs and people who may have an acquired brain injury, which means that their housing and care needs cannot be appropriately met in their existing homes

Supported housing for young people

• develop an additional 70 units of supported housing over next 5 years
• Workington is a key geographic 'gap'
• secure an additional 35 move on housing places per annum

It is important to remember that not all residents with additional support needs require specialist supported accommodation. Many of those with identified needs will be capable of living in general needs housing with an appropriate care or support package. 

The Supported Housing Needs Study evidences the need for supported housing for vulnerable client groups, and this will be reflected in the Supported Housing Strategy. One of the priorities of this Housing Strategy outlines how we will work towards providing a sufficient supply of affordable general needs housing to allow those with additional support needs to live as independently as possible.

Improve the experience of accessing social and affordable housing through the common housing register to address housing and health inequalities

This priority aims to allocate housing to those most in need through a review of the Cumbria Choice allocations policy and making access to the website easier to navigate, as well as developing a nominations process to allow the council to find housing for households they are working with.

Have a sufficient and improved supply of housing to meet need and demand

This priority aims to ensure that a variety of housing options are available for all, whether that is on the open market or affordable housing.

Support people to stay at home

This priority aims to allow people to live independently through providing information, implementing a range of policies and grant funding opportunities as well as introducing technology in to homes where it is needed and delivered by Cumberland's new Home Improvement Agency.

Improve the council's information platform

This priority aims to make the right information accessible to help people to navigate to the services they require to meet their needs.

Meet the annual affordable housing supply need

This priority aims to build thriving communities by utilising various approaches to provide a range of housing wherever it is needed.

Develop policies that allow housing to support mixed and balanced communities

This priority aims to ensure that the council can develop Cumberland-wide policies to ensure a range of accessible affordable housing for local households and support other council policies.

Seek opportunities to intervene in the housing market to facilitate affordable and suitable housing

This priority aims to identify ways the council can become pro-active, innovative and collaborative in the housing market.

Investigate ways to mitigate the effects of second homes and holiday lets 

This priority aims to enable internal and external partners to provide solutions to the issues of second homes and holiday lets.

Maintain and improve standards across Cumberland's Housing Stock

This priority aims to provide information to residents and landlords, build upon the council's understanding of the private rented sector, and take enforcement action against landlords where necessary.

Damp and mould

This priority aims to increase awareness of the issues around damp and mould for front-line council officers, tenants and landlords and develop a process to respond to complaints of damp and mould.

Raise the profile of housing enforcement

This priority aims to enable the council to understand and monitor legislative changes that affect the work of housing enforcement officers and build them into Cumberland policies and processes.

Improve housing standards to increase sustainable warmth, EPC ratings and contribute to Net Zero targets

This priority aims to improve the health and wellbeing of residents by working with partners to facilitate better housing conditions, providing grant funding to retrofit homes to improve thermal comfort, help reduce bills for low-income households.

Address empty homes to improve communities

This priority aims to allow communities to prosper, and aides the council to take action against property owners and have procedures in place to drive forward empty homes with options to work with partners to develop funding opportunities for owners. 

Understand the role of the council in making higher risk buildings in our communities safe

This priority aims to increase council and resident awareness of the measures available to them to increase the safety of higher risk buildings and be clear about the role and responsibilities of the lead regulator.

Develop policies and strategies in collaboration with key stakeholders

This priority aims to facilitate working with internal and external partners to provide a joined-up approach to housing across a range of functions and sectors.

Developers

This priority aims to build relationships with all house builders to increase the supply of housing in Cumberland, and to facilitate early collaboration on all developments.

Communities and businesses

This priority aims to raise community involvement with housing issues across Cumberland and allow communities to identify their own solutions and build relationships with businesses in communities where housing development or growth is being considered.

Funding partners

This priority aims to increase the council’s understanding of funding available to provide housing in Cumberland, and the issues and challenges faced by funding providers.

Lobbying groups

This priority aims to enable the council to work collaboratively with national and local consortiums to ensure that the views of Cumberland Council are heard, to influence national policy making.