Home Energy Conservation Report...The Home Energy Conservation Act 1995 (HECA) ‘recognises local...
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Great Yarmouth Borough Council’s HECA Report 2017/18
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HOME ENERGY CONSERVATION ACT (HECA) REPORT 2017/18
Great Yarmouth Borough Council’s HECA Report 2017/18
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HOME ENERGY AND CONSERVATION ACT (HECA) REPORT
INTRODUCTION
The Home Energy Conservation Act 1995 (HECA) ‘recognises local authorities ability to use their position to improve the energy efficiency of all
residential accommodation in their areas. In July 2012 the Department of Energy and Climate Change DECC published a requirement under
HECA for all local authorities in England to report on the measures they propose to achieve this aim.
Local authorities are required to produce a Further Report setting out:
Local efficiency ambitions and priorities
Measures being taken to result in significant energy efficiency improvements in residential accommodation
Proposed measures to cost effectively deliver energy efficiency improvements in residential accommodation by using area based/street
by street roll out
The time frame for delivery and local partners.
From 31st March 2015 subsequent reports known as progress reports must be published at two-year intervals through to 31st March 2027.
This report provides an update and gives the current position of the measures the authority is undertaking.
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ABOUT GREAT YARMOUTH
Great Yarmouth is situated on the east coast of Norfolk covering 67.2 square miles and includes the towns of Great Yarmouth and Gorleston-
on-sea and a rural hinterland consisting of 21 parishes, made up from 61 neighbourhoods, stretching from Winterton in the North to Hopton in
the South.
The Council is a stock owning authority and there are a number of Registered Social Landlords that also have smaller quantities of stock within
the borough.
The Indices of Multiple Deprivation 2015 ranks Great Yarmouth as 20th most deprived lower tier local authority nationally. 16 out of the 61
neighbourhoods (26%) in the borough are ranked amongst the most deprived 10% in the country.
Table 1: Housing Stock Profile by Tenure (2017)
Tenure Number Percentage %
Owner – Occupied 28,259* 62
Private Rented 8,951* 20
Local Authority Rented 5,780* 13
Registered Social
Landlord Rented
2,328* 5
*Calculated using BRE Housing Stock Model 2017 methodology
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Fuel Poverty
Table 2: Fuel Poverty 2015 – Sub-Regional Data1
Local Authority
All
Households
Fuel Poor
Households
Percent Fuel
Poverty
Breckland
56,348 5,367 9.5%
Broadland
55,105
3,619 6.6%
Great Yarmouth
43,496
4,276 9.8%
King's Lynn and West Norfolk
65,018 6,567 10.1%
North Norfolk
47,616 5,357 11.3%
Norwich
62,232 6,146 9.9%
South Norfolk
54,575
5,057 9.3%
In 2011 the number of households living in fuel poverty was 5,210 (12.3%) there has been a year on year decreases to 2015 when the number
of households was 4,276 (9.8%).
1 Source - Dpt. For Business, Energy & Industrial Strategy Report 2017
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The above figures in the table are based on the government’s revised low income high cost (LIHC) definition of Fuel Poverty.
In 2012 the Hills Review, an independent review of fuel poverty conducted by Professor Sir John Hills of the London Scholl of Economics
recommended that Government should adopt a new way of measuring fuel poverty instead of the previous indicator which defined someone as
being in fuel poverty if they spent more than 10% of their household income to heat their home to a satisfactory level (21˚C in their living room
and 18˚C in other occupied rooms). Professor Hills looked at the problem from first principles, setting out the causes and impacts of fuel
poverty and assessing whether the 10% definition and indicator of fuel poverty (set out in the Act and the first fuel poverty strategy, which was
published in 2001) were fit for purpose. In considering the causes and impacts of fuel poverty, Professor Hills showed that fuel poverty was a
distinct issue from income poverty. He also showed that the traditional approach to measuring fuel poverty - where a household was fuel poor if
it needed to spend more than 10% of its income on keeping warm - captured many households that were not ‘fuel poor’ (as described by the
Act – for example, it captured many higher-income households in inefficient homes). He also argued that the 10% indicator had painted a
misleading picture of trends, understating the scale of the problem when prices were low and overstating it when prices were high. Concluding
that the current indicator was not accurately measuring the problem, Professor Hills put forward his own proposal for measuring the problem
that characterises fuel poverty as a problem which is distinct from poverty in general. He proposed that households are fuel poor if;
Their income is below the poverty line (including if meeting its required energy bill would push it below the poverty line); and
Their energy costs are higher than is typical for their household type.
Generally it is the most vulnerable in our communities that are most at risk of the effects of fuel poverty.
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Excess Cold & the Impact on Health
There is compelling evidence that directly links cold homes to poor health. In 2015 the National Institute for Care Excellence (NICE) published
its guidance on tackling ‘Excess winter deaths and Morbidity and the health risks associated with cold homes’. Health conditions such as
cardio vascular disease, COPD, strokes and influenza are all exacerbated by the cold. In particular vulnerable groups such as older people and
those with long term conditions and disabilities are more likely to spend longer periods of time in their home.
In England and Wales during the winter months of 2016/17 there were an estimated 34,300 excess winter deaths (EWD) where 20.9% more
deaths occurred in winter months compared to non-winter months.2 Between 2014/2015 and 2016/17 there were annually on average 40 EWD
in the borough.
There are a number of contributory factors to excess winter deaths but with 9% of properties in the Borough having a Category 1 Excess Cold
Hazard and nearly 10% of households living in fuel poverty there is evidence to suggest that cold homes play a significant factor.
2 Source ONS Mortality Data England & Wales 2017
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CURRENT PROJECTS AND INITIATIVES IN GREAT YARMOUTH
Private Sector
The Building Research Establishment BRE was commissioned by the authority earlier in 2017 to undertake a Borough wide Private Sector
Housing Stock Model Survey together with a Housing Health Impact Assessment to provide better data and allow the authority to determine its
future private sector strategy and develop an action plan.
Table 3 overleaf describes the housing stock at ward level, providing estimated percentage and stock totals for the following indicators:
Dwellings with a category 1 Housing Health & Safety Rating System (HHSRS) hazard
Dwellings with a category 1 HHSRS excess cold hazard
Dwellings with a category 1 HHSRS falls hazard
Dwellings in disrepair
Households in fuel poverty (over 10% of income spent to heat home)
Households in fuel poverty (income is below the poverty line and their energy costs are higher than is typical for their household type)
Low income households (in receipt of benefit)
Average simple SAP rating.
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Table 3
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HHSRS Category 1 Hazards Fuel Poverty
Ward Dwellings All Hazards Excess Cold Falls Hazards Disrepair 10% LIHC Low income Households
Average Simple SAP
Bradwell
North
2,973 206
7%
85
3%
120
4%
21
1%
255
9%
206
7%
187 61
Bradwell South & Hopton
3,190 234
7%
113
4%
131
4%
29
1%
286
9%
243
8%
383
12%
61
Caister North 2,206 177
8%
82
4%
89
4%
17
1%
183
8%
121
5%
139
6%
60
Caister South 2,272 377
17%
225
10%
167
7%
50
2%
331
15%
243
11%
271
12%
54
Central &
Nortgate
4,045 685
17%
205
5%
435
11%
251
6%
1,101
27%
1,017
25%
776
19%
57
Claydon
3,701 381
10%
93
3%
257
7%
106
3%
649
18%
526
14%
931
25%
59
East Flegg
2,418 828
34%
742
31%
135
6%
36
1%
565
23%
231
10%
174
7%
41
Fleggburgh
1,117 515
46%
480
43%
89
8%
28
3%
284
25%
119
11%
95
9%
38
Gorleston
2,486 299
12%
76
3%
201
8%
73
3%
349
14%
327
13%
230
9%
58
Lothingland 2,320 467
20%
346
15%
153
7%
34
1%
325
14%
158
7%
173
7%
51
Magdalen 3,133 222
7%
37
1%
165
5%
54
2%
438
14%
370
12%
899
29%
60
3 Source: BRE Housing Stock Models & Options for Further Developing Private Sector Report 2017
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Nelson 4,231 681
16%
226
5%
392
9%
274
6%
1,192
28%
1,008
24%
1,018
24%
58
Ormesby 1,994 710
36%
641
32%
129
6%
37
2%
459
23%
174
9%
118
6%
40
Southtown &
Cobholm
2,457 383
16%
82
3%
267
11%
114
5%
570
23%
568
23%
443
18%
58
St Andrews 2,328 376
16%
86
4%
267
11%
111
5%
498
21%
515
22%
349
15%
55
West Flegg 2,360 786
33%
708
30%
140
6%
36
2%
545
23%
234
10%
194
8%
41
Yarmouth
North
2,087 254
12%
59
3%
182
9%
69
3%
324
16%
315
15%
490
23%
57
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The following headline data has been drawn from the above table and the wider report and informs some of the priorities within the HECA Further Report.
Number of private sector dwellings 37,210
Number of vulnerable households4 2,763
Properties with a category 1 excess cold hazard 3,980
Households in fuel poverty5 5,718
Average simple SAP6 rating for the Borough is 54
Number of private sector dwellings with an EPC banding below E 5,328
The following maps give a pictorial representation by Ward of where the issues are within the borough in relation to:
1. Percentage of private sector dwellings with category 1 excess cold hazard
2. Percentage of private sector households in fuel poverty
3. Percentage of dwellings with a category 1 excess cold hazard occupied by low income families
4. Percentage of dwellings with an EPC banding below E
4 A vulnerable household is defined as one in receipt of an income related benefit
5 A household is in fuel poverty if their income is below the poverty line and their energy costs are higher than is typical for their household type (LIHC).
6 The Standard Assessment Procedure (SAP) is the Government recommended system for energy rating of dwellings by calculating the SAP rating on a scale from 1 – 120 based on annual energy
costs for space and water heating
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Map 1: Percentage of private sector dwellings with a category 1 excess cold hazard.7
7 Source: BRE Housing Stock Models & Options for Further Developing Private Sector Report
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Map 2: Percentage of households in fuel poverty (LIHC).8
8 Source: BRE Housing Stock Models & Options for Further Developing Private Sector Report
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Map 3: Percentage of dwellings with a category 1 excess cold hazard occupied by low income families9
9 Source: BRE Housing Stock Models & Options for Further Developing Private Sector Report
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Map 4: Percentage of dwellings with an EPC banding below E10
10
Source: BRE Housing Stock Models & Options for Further Developing Private Sector Report
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There are clearly a number of issues within the private sector that can be tackled. To date the Council through the Safe at Home; Home
Improvement Agency has used a number of measures to help assist the most vulnerable residents within the borough.
Between November 2012 and October 2014, the Council through the Safe at Home; Home Improvement Agency were able to assist 44 home
owners in fuel poverty with boiler repairs and insulation measures via Warm and Well funding, which was provided by Health and Social Care.
Through its Private Sector Housing Policy, last updated 2015, the Council also gives emergency loans to provide urgent boiler replacement and
heating measures to vulnerable households. This funding is very limited and is accessed only to deal with the most urgent and extreme of
cases. To date since November 2013 there have been 10 emergency loans given to provide boiler replacement/heating measures. The
majority of enquirers regarding the ‘Green Deal’ were sign posted to the Energy Saving Advice Service (ESAS). All other enquiries have been
sign posted to either the Energy Saving Trust (EST) or one of the energy supply companies offering assistance through the Energy Company
Obligation (ECO). During 2016/17, with funding secured from one of the energy supply companies, Safe at Home joined with Community
Action Norfolk as part of a county wide scheme to deliver home energy improvement measures to 33 households in the borough where the
works were not eligible for ECO. As of September 2016, 2,213 households in the borough have benefited from ECO measures. These
installations have helped to contribute to a borough wide reduction in domestic CO2 emissions from 230.7 Kilo tons CO2 in 2005 to 161.1 Kilo
tons CO2 in 2014.
In 2016 the charity Community Action Norfolk (CAN) bid for capital funding from the British Gas Energy Trust for heating improvements across
the county as part of the ‘Warm and Well’ campaign. Working with each of the seven local authorities across the county CAN provided funding
to raise awareness of the Warm and Well campaign, deliver training to frontline staff and carry out a range of grant aided works. In Great
Yarmouth 33 elderly or vulnerable home owners benefitted from heating system repairs and improvements arranged by Safe at Home.
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A new initiative introduced by the Council in 2017 has been Healthy Homes Assistance; using part of its Better Care Fund (BCF) allocation the
Council will assist vulnerable residents of the borough, with specific health needs, to make improvements to their homes, including heating and
insulation measures, where the housing conditions are having a detrimental effect on their health. In the first three months of operation the
project has received 5 referrals for the installation of full heating systems.
The Council’s Environmental Health team take both informal and formal action under the Housing Act 2004 against private sector landlords to
remedy hazards identified by officers using the Housing Health and Safety Rating System (HHSRS). Excess cold is one of the principal
hazards encountered and Officers try to encourage landlords to upgrade insulation and heating systems, using formal notices and other
enforcement if required. Action is taken in respect of all types of properties; flats, houses in multiple occupation and single family dwellings.
Since 2014/15 officers haven taken action in respect of over 200 properties.
Council Housing Stock.
Great Yarmouth Borough Council is responsible for over 5,900 properties across the Borough. The management of these properties is
coordinated by Great Yarmouth Borough Council; however, a Joint Venture Company was established in late 2014 between the Borough
Council and Norse Commercial services to design and deliver housing repair, maintenance and investment services – this Joint Venture
Company is called Great Yarmouth Norse Asset Management Services (GYN).
From mid-June 2016, an independent assessment of stock condition was commissioned from, and undertaken by Michael Dyson Associates
(MDA). With 95% of all Council properties surveyed by March 2017, the data gathered was checked and has been used to inform immediate
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repair and maintenance demands and the Council medium-to-long term investment requirements. Within the report produced by MDA (July
2017), the average SAP rating for GYNC properties is estimated at 66.9, which is consistent with the national average.
From early 2010, capital replacement activity has been focused on the provision of ‘modern’ facilities, as defined by the Decent Homes
Standard but more latterly included work would seek to address carbon reduction and fuel poverty targets. This list of works included;
Type of work 2013/14 2014/15 2015/16 2016/17
Replacement Boilers 210 263 218 230
Replacement window (double
glazing) programme
440 535 21 0
Replacement external door
programme
785 928 69 2
Top-up of loft insulation 440 270 10 240
Installation of renewable
technology
0 0 5 6
Further recent success has been had with the replacement of an existing, inefficient communal heating systems with air source heat pump
technology and the conversion of inefficient lighting, particularly in communal areas, with efficient LED technologies.
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This work of providing decent and modern facilities is expected to rise following need identified in the Stock Condition Survey report, continuing
through to 2022/23. Specific programmes of work proposed include;
Continued programme of loft-insulation top-up with roof replacements.
Installing external wall insulation to the most challenging, solid-wall properties, and for its consideration in other whole-house
refurbishment programmes, where practicable.
Replacement of first-generation double-glazing with new window units, with a particular focus on addressing reveal details and
eliminating cold-bridging.
Removing storage heaters and upgrade to heating systems with Air Source Heat Pump technology.
Extensive programme of boiler upgrades, replacing with new, highly efficient boilers.
Continue the programme to remove open-flue, solid fuel secondary heating from properties, often in rural locations, and undertaking
essential upgrades to primary system of heat distribution.
For properties off the gas grid, and where the existing oil system is reaching or has passed its expected useful life, heat distribution
systems are replaced and upgraded to use Air Source Heat Pump technology.
GYBC and GYN will continue to pursue opportunities for grant funding in line with the above or other programmes to improve property
performance but recognise these opportunities are limited. As a result, we anticipate moderate improvements in SAP levels for most
properties, with the greatest changes made to heat-to-treat properties and those perceived to be most vulnerable.
New Build properties
Equinox Enterprises Ltd, a Local Authority Trading Company wholly owned by Great Yarmouth Borough Council, was establish in late 2016 to
develop new homes across the Borough, with the first six new homes constructed in 2017 adding to the number of properties owned by GYBC.
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Through late 2017, the first phase of a 287 home development commenced adjacent to the Beacon Park Enterprise Zone, delivering new
housing for sale. For this first phase of development, Equinox Enterprises has selected to comply rather than enhance upon the current
building regulations.
Summary
Great Yarmouth Borough Council will continue to develop and deliver projects and awareness campaigns across all tenures in conjunction with
its partner organisations. For its own property, GYBC through GYN will focus on ensuring measures and interventions undertaken to its stock
of 5,900 can be built-upon in future years and preventing the transfer/creation of new repair and maintenance demands.
The HECA Action Report builds on the work to date and sets out council’s ambitions and proposals for the coming years.
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ACTION DETAILS TIMESCALE
1. LOCAL ENERGY EFFICIENCY AMBITIONS AND PRIORITIES
Strategic Commitments
Great Yarmouth Borough Council ‘s Corporate Plan for 2015 -2020 sets out the following priorities: Promoting economic growth and job creation. Developing an attractive mix of housing that will be fit for purpose
for all and meet both the Borough’s existing and future needs. Creating strong, safe communities that are resilient and work
together. Specific work around these priorities that is linked to the Council’s HECA Report actions include: Ensuring homes across all sectors contribute to good health and
reduce fuel poverty Working with our partners to improve outcomes for children and
young people, older people and vulnerable people Improving the quality of the existing housing stock Supporting communities to help themselves through
neighbourhood based approach Bidding for funding and external investment.
Our geographical location means Great Yarmouth is at the forefront of developments in the energy and renewable energy industries having Centre for Offshore Renewable Energy (CORE) and Assisted Area status the Council is developing plans to create an Energy Park with land for new energy related businesses. The Council’s core planning strategy seeks enhanced energy standards in larger developments of more than 1,000m² of non-residential floorspace, where the density, layout and mix of uses, plus economies
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of scale, generally make enhanced energy requirements more feasible and viable, a reduction of at least 10% of carbon emissions (over the requirements set by Building Regulations) will be sought from enhanced energy efficiency measures or the installation of renewable or low carbon sources.
The Council is working with NHS Great Yarmouth & Waveney Clinical Commissioning Group, East Coast Community Health and Norfolk County Council on a programme to integrate health, social care and district council services for the benefit of residents. One major issue will be improving housing conditions for residents including energy efficiency and fuel poverty.
2. MEASURES WE ARE TAKING TO RESULT IN SIGNIFICANT ENERGY EFFICIENCY IMPROVEMENTS OF OUR RESIDENTIAL ACCOMMODATION
Energy Company Obligation ECO
The Council will promote nationally available schemes through the Council’s Safe at Home Improvement Agency and provide information and links on the Council’s website to ensure that households can access information and advice on the most appropriate schemes to meet their needs. The Council has been in discussion with other Local Authorities to seek agreement on a county wide criteria for ECO ‘Flexible Eligibility’ in Norfolk and the Council will be publishing its ‘Statement of Intent’ on using Flexible Eligibility to target households who are in fuel poverty but don’t fit into the qualifying criteria for the rest of the scheme.
On going January 2018
Council’s Own Housing Stock
GYBC and GYN will continue to work to provide decent and modern facilities through to 2022/23, as identified in the recently completed Stock Condition Survey but in-line with available financial resources.
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Specific programmes of work proposed include;
Continued programme of loft-insulation top-up with roof replacements.
Installing external wall insulation to the most challenging, solid-wall properties, and for its consideration in other whole-house refurbishment programmes, where practicable.
Replacement of first-generation double-glazing with new window units, with a particular focus on addressing reveal details and eliminating cold-bridging.
Removing storage heaters and upgrade to heating systems using Air Source Heat Pump technology.
Extensive programme of boiler upgrades, replacing with new, highly efficient boilers.
Continue the programme to remove open-flue, solid fuel secondary heating from properties, often in rural locations, and undertaking essential upgrades to primary system of heat distribution.
For properties off the gas grid, and where the existing oil system is reaching or has passed its expected useful life, heat distribution systems are replaced and upgraded to use Air Source Heat Pump technology.
Advice Measures Through range of Councils services such as Tenancy Support, Safe at Home (the Home Improvement Agency) and through the Neighbourhoods That Work programme. We will provide a range of non-financial services and assistance to promote and enable the take-up of energy efficiency measures that tackle fuel poverty and cold homes. We will do this by:
Continue to trainee key staff and ensure they have access to the
On-going
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most up-to-date information.
Providing impartial advice based on an individual household circumstances and needs to enable the householder to make an informed decision
Provide support/signposting to any available initiatives as appropriate
Working with partners to ensure a wide coverage in terms of access to benefit take up and income maximisation advice
Affordable Warmth The Council currently does not promote a collective switching scheme. It has been researching other options including joining the county wide scheme ‘Norfolk Big Switch and Save’. Currently support and information for residents about switching energy suppliers as an individual is offered to through Safe at Home. The charity Community Action Norfolk operates a domestic heating oil collective purchasing scheme that covers Great Yarmouth borough and the remainder of Norfolk. We will ensure key staff have information relating to this scheme and provide information on how access the scheme on our website.
On-going
Domestic Renewable Heat Incentive
We will provide general information on the existing Domestic Renewable Heat Incentive scheme for residents on our website, and in response to enquiries.
As appropriate
New homes from 2015
The Council’s core planning strategy (2015) encourages developers to look at ways to incorporate renewable and low carbon energy into all new developments, however small, through the use efficient site layouts and good building design.
Minimum energy efficiency standards in the private rental
The Domestic Private Rented Sector Minimum Energy Efficiency Regulations come into force in April 2018 where by properties with new tenancies must meet a minimum energy efficiency rating of band E.
On-going
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sector from 2018 In order to prepare for this we are and will continue to:
Make information and advice available to landlords and prospective tenants
Highlight the benefits of energy efficiency works
Where necessary take enforcement action against private landlords to remove Category 1 Excess Cold Hazards from their properties.
Smart Meters by 2020 Working with partners we will make available appropriate information and respond to queries regarding the national roll out of Smart Meters by the Utility Companies. With partners we will develop information and advice on how manage energy consumption following the installation of Smart Meters. With partners we will support those vulnerable groups who are more likely to be experiencing fuel poverty to understand how they use energy and if necessary help make changes to reduce their energy consumption.
As information becomes available
Norfolk Cold Homes Partnership
We will continue to work with partners to raise awareness of the importance of keeping warm and the impact cold can have on health and wellbeing. We will use Safe at Home the Council’s Home Improvement Agency to ensure that practical help and advice is available and targeted at those most at risk.
On-going
3. MEASURES WE PROPOSE TO COST EFFECTIVELY DELIVER ENERGY EFFICIENCY IMPROVEMENTS IN RESIDENTIAL ACCOMMODATION BY USING AREA BASED/STREET BY STREET ROLL OUT
We will use data from our 2017 Private Sector Housing Stock Model and Health Impact Assessment together with data we hold as a landlord and cross reference with national data sets to inform future campaigns.
On-going
4. TIMEFRAME FOR DELIVERY AND NATIONAL AND LOCAL PARTNERS
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NHS Great Yarmouth & Waveney Clinical Commissioning Group East Coast Community Health Norfolk County Council Public Health England Registered Providers Health & Wellbeing Board ECO Providers Voluntary Organisations
Older People’s Network
Children & Families Network
Community Action Norfolk
DIAL
British Red Cross
Age Uk