Horsham District Council Tenancy Strategy (2025-2030)

1. Introduction

Horsham District Council (HDC) recognises the importance of a robust and sustainable approach to tenancy management, providing secure, affordable, quality homes for residents. This Tenancy Strategy sets out the Council’s vision for tenancy management from 2025 to 2030. The Strategy focuses on supporting tenants, ensuring social sustainability, promoting housing affordability, and responding to housing needs in a rapidly changing environment.

The Strategy is aligned with the objectives of the Council’s Housing and Homelessness Strategy, Local Plan, and relevant legislation, such as the Housing Act 1985, the Localism Act 2011, and the Homes England Affordable Homes Programme.

2. Vision and Objectives

Horsham District Council’s vision is to ensure high-quality homes, secure tenancies and create vibrant, sustainable communities where all residents feel safe, supported, and empowered.

Objectives:

• Affordable Housing: increase the availability of affordable housing in the District through a mix of tenancy types, including social, affordable and intermediate rented tenancies.
• Sustainability and Support: ensure that tenants are supported in sustaining their tenancies through preventative measures, support services, and early interventions.
• Community Integration: promote integration within the community, with emphasis on creating balanced and sustainable neighbourhoods.
• Fair Access: ensure equitable access to housing, especially for vulnerable groups, through transparent and inclusive allocation policies.
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3. Local context

Horsham District Council transferred its housing stock back in December 2000; therefore, the Council relies upon Registered Providers to deliver affordable housing in the District.

The demand for social housing in the district is greater than the number of available homes. The number of households on the Council’s Housing Register in March 2025 was 724. The average number of properties received for nominations each year is 250. The number of households waiting to be rehoused has stayed relatively consistent over the last five years at an average of 730. This implies that if the Council wishes to target the number of households on the Housing Register, at least double the number of households need to be nominated each year, with a target of 400 nominations on average.

It is important that the Council looks to new build development to increase the supply of affordable housing. Over the last five years the average number of new build affordable homes that have been delivered in the district is around 150 units per year. There has been a stark reduction in numbers of new build homes. This will continue due to water neutrality and other factors that have resulted in Registered Providers either not building new homes or taking units from developers under Section 106 Agreements. In 2019 281 new build affordable homes were delivered compared to 73 units in 2024.

This has a knock-on effect on the Housing Register and will result in households waiting longer than average to be rehoused and produce an increase in the number of households on the Housing Register waiting list.

Where there is no increase in new homes efforts must be made to increase the turnover in current stock to enable households in need to access properties. The Council is currently reviewing its Housing and Homelessness Strategy to set out measures to increase the delivery of affordable housing in the district.

The Council’s Housing and Homelessness Strategy (2026-2030) will propose five objectives:

• 1.Prevent and relieve homelessness
• 2.Prevent and relieve rough sleeping
• 3.Enable the delivery of affordable homes to meet all identified need
• 4.Provide a fair housing register
• 5.Partnership working
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Horsham District Council hopes to publish its Housing and Homelessness Strategy by the end of 2025.

4. Tenancy types and Allocations

As stated, Horsham District Council does not own stock but works with partners to determine how their tenancy policies and this Tenancy Strategy will be complementary and mutually supportive. Some tenancies that Registered Providers may offer are as follows:

Affordable Rent and Social Rent
The Council receives notice from Registered Providers when a property becomes vacant. The council will prioritize affordable rent and social rent properties for those in greatest housing need, as determined by the Housing Register and the Council’s Allocations Policy. Registered Providers can offer two types of tenancies:

Lifetime tenancies: a tenant can live in their home for as long as they wish providing they do not breach the terms of their tenancy, or;

Fixed term tenancies: a shorter tenancy with an end date; the tenancy can last five years or more but cannot be less than two years.

In these tenancy types the Council expects Registered Providers to issue a probationary tenancy for the first year.

Affordable Homeownership Options

The Council will explore affordable homeownership options, such as shared ownership, to enable residents to move from renting to owning their home. These units will be delivered through Registered Providers or other Affordable Housing Providers approved by the Council.

Horsham District Council tenancies

Non-secure tenancies:
Where suitable, the Council may offer non-secure tenancies in specific situations, such as transitional housing or housing for people with temporary housing needs. These tenancies will generally be offered in line with the Housing Act 1996.

4.1 Use of Lifetime Tenancies

Registered Providers are required to grant those who were social housing tenants on the day on which Section 154 of the Localism Act 2011 came into force, and have remained social housing tenants since that date, a tenancy with the same security if they choose to move to another Social Rented home. This applies if the new home is with the same or another landlord. (This requirement does not apply where tenants choose to move to accommodation let at an Affordable Rent).

4.2 Use of Fixed Term Tenancies

Where fixed term tenancies are used the Council expects that Registered Providers will:

• make it clear to housing applicants the type of tenancy they will be offered.
• provide clear information on the nature of the tenancy; and
• issue tenancies that will be no shorter than 5 years.

If a Registered Provider uses shorter tenancies, they will need to demonstrate to the Council that there are exceptional circumstances to justify that approach.

4.3 Affordable Rent Tenancies

Registered Providers with development programmes funded by Homes England offer most of their new build properties and a percentage of vacancies in their existing stock at Affordable Rents.

Affordable Rents are set at up to 80% of market rent levels, inclusive of service charges. Rents at this level are intended to minimise the capital subsidy necessary to support the continued delivery of new affordable housing. Charging rent at this level can put rents outside established affordability thresholds, particularly at the point where housing benefit/ Universal Credit Housing element is withdrawn from a household - for example when moving into employment. A balance must be struck between Registered Providers generating sufficient funds to maintain the building of new homes and safeguarding the affordability of rents.

The Council considers that the Local Housing Allowance, the level at which housing costs are paid through Universal Credit or Housing Benefit, should be the maximum Affordable Rent level that Registered Providers charge.  However, in practice, Registered Providers will charge an Affordable rent at 80% market level, or LHA rate, whichever is lower. In setting Affordable Rents Registered Providers should have regard to the genuine affordability of rents to tenants/prospective tenants in the long term. This may require Affordable Rent levels to be set below Local Housing Allowance levels.

5. Succession

If a Registered Provider intends to allow succession to a tenant who is not a spouse or civil partner, it should be set out clearly in their policy.

Given the level of housing need in the district the Council would not support significant extension to the right to succeed. However, following the death of a tenant if someone is residing in the home as their principal home, but who is not entitled to succeed, the association should:

• - Provide housing options and advice to that person
• - Refer the household to the Council for housing advice and assistance using the Duty to Refer form on the Council’s website.
• - Make sure that their polices protect the interests of vulnerable people; and
• - Where appropriate offer alternative accommodation of a size that meets that person’s needs

6. Disposal

Social housing in the district is a valuable resource. It is recognised that from time to time it may be necessary for a Registered Provider to dispose of properties. There is a requirement in some agreements between the Council and Registered Providers to consult on potential disposals. The Council encourages all Registered Providers, regardless of any legal requirements, to consult with the Council as early as possible where disposal is being considered in order to explore alternatives to losing valuable affordable homes.

7. Tenancy Management and Support

The Council is committed to supporting tenants to help them maintain their tenancies and avoid homelessness. The following approaches will be central to tenancy management in the Council’s temporary accommodation, but we also work with households that are in accommodation provided by Registered Providers to give households housing assistance and advice if required.

• Proactive Tenancy Sustainment
  The Council will offer comprehensive tenancy support services, including financial advice, tenancy sustainment support, and access to local services.
• Preventative Measures
  The Council will implement early intervention strategies for tenants at risk of tenancy breakdown, such as financial hardship, mental health issues, or family disruption. Access to mediation services and referrals to external support services will be readily available.
• Management of Rent Arrears
  The Council will maintain a proactive and compassionate approach to rent arrears, focusing on early identification of issues and working with tenants to develop repayment plans. In cases where tenants face challenges due to the benefit system, the Council will collaborate with other organizations to help resolve these issues.
• Regular Reviews and Inspections
  The Council will conduct regular tenancy reviews in homes it manages, or private landlords who accommodate households placed there by the Council. This should ensure that properties are in good condition and tenants have the support they need. Inspections will be carried out with tenants’ participation, and repairs will be addressed promptly.
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8. Guidance for Providers

Registered Providers are required to publish policies setting out their approach to tenancy management, including how their tenancies will operate. Specifically, these policies will cover:

• the method by which a tenant or prospective tenant may appeal or complain about the length of fixed term tenancy offered and the type of tenancy offered, and against a decision not to grant another tenancy on expiry of the fixed term.
• how the provider will consider the needs of those who are vulnerable by reason of age, disability or illness, and households with children, including by means of tenancies which provide a reasonable degree of stability
• the advice and assistance providers will give to tenants on finding alternative accommodation in the event the provider decides not to grant another tenancy.
• the policy of the provider on granting discretionary succession rights, taking account of the needs of vulnerable household members

Providers should also have regard to:

Affordability

Rents must be at levels which are accessible to those on low incomes, if necessary, with support from Housing Benefit, and an appropriate range of housing options should continue to be offered.

Providing homes for larger families

It is recognised that the benefits cap of £500 per week for families and £350 per week for single applicants means that rents for such properties at 80% of market rents are frequently not affordable. Providers should have due regard to this both in their rental policies and in their policies for converting relets from social to affordable rents. Retaining existing three and four bedroom rented housing at target (social) rents and setting rents for larger properties within Local Housing Allowance rates and benefit cap levels helps to alleviate this problem.

Length of Tenancies

The length of tenancy granted should support living and working communities and enable households to put down roots. It should also reflect the needs of different household types. Tenancies should be a minimum of five years and, where tenant circumstances are not likely to change, landlords should consider granting longer or even lifetime tenancies. However, it is acknowledged that the use of introductory tenancies, if accompanied by appropriate support, can enable new tenants to settle into their homes and meet their responsibilities. It is particularly important that such support is provided to more vulnerable tenants.

Adapted or supported housing

Providers should consider the use of longer tenancy agreements for households where household members will remain dependent on carers within that household.

Local letting policies

Horsham District Council has designed its Allocations Policy to ensure that priority for social and affordable rented housing is given to working households in housing need. It also includes disqualification criteria to prevent applicants who would not make suitable tenants from being nominated for a property. As a Registered Provider’s local lettings policy may not accurately reflect the rules or priorities as expressed through the Council’s Allocations Policy, Horsham District Council will not sign up to individual or scheme specific lettings policies.

Ending or renewing tenancies

Creating high turnover in the housing stock is not desirable. Keeping people in established communities helps to create living and working communities; it helps tenants achieve stability and avoids costly moves and enables providers to keep void costs down. It is therefore expected that unless there has been a significant change in circumstances following a review, the tenancy will be renewed.

Instances where a tenancy may not be renewed are:

• Under occupation

It is suggested that where a tenant is under occupying a property by two bedrooms or more the Registered Provider should be able to give notice of intention to end the tenancy and the tenant should be moved into Band A so that that tenant has priority for vacancies in properties of a more suitable size.

As with the Council’s existing allocation scheme, it is suggested that a tenant downsizing should, if the tenant wishes and can afford to do so, be allowed to retain a spare bedroom in his or her new home. This will balance the need to make best use of the stock available, and to help ensure that tenants can afford their rent, while granting tenants some flexibility.

It is recognised that some tenants will not be able to afford to under occupy their homes and that there may not be appropriate properties for them to move to. It is recommended that Providers advise tenants of their ability to take in lodgers to assist.

• Non-use of adaptations

The property has been subject to significant adaptations and no person in the household requires those adaptations.

• Overcrowding

The property is overcrowded according to the definition in the Registered Provider’s lettings policy.

Change of economic circumstances

• The tenant’s economic circumstances have changed so that other housing options are more appropriate, such as home ownership, shared ownership, renting at full market value and/or other tenures.

Advice and assistance to be provided at the end of a fixed term tenancy

It is expected that tenancy reviews will be carried out 6 months prior to the end of a tenancy. In most cases, except where the tenant’s income is high enough to afford market housing, the recommendation will be to find more suitable accommodation within the landlord’s stock. Registered Providers are expected to provide advice and assistance to tenants at the review about their housing options. Where a landlord ends a fixed-term tenancy without providing alternative accommodation then landlord should, in partnership with the Council, provide the advice and assistance needed to enable residents to find suitable alternative accommodation. It will not be sufficient simply to refer tenants to the Council or for a Registered Provider to end a tenancy where the expiry leads to a duty on the Council to provide accommodation.

9. Addressing Local Housing Need

Horsham District faces a range of housing challenges, including a growing population, increasing housing demand, and a limited supply of affordable homes. Addressing these challenges involves:

• Affordable Housing Delivery
  The Council will work with developers, Registered Providers, and the private sector to increase the supply of affordable housing in the district. The Council will collaborate with partners to unlock new affordable housing developments.
• Specialist Housing Needs
  In response to local demographic changes, such as an aging population, The Council will prioritize the delivery of specialist housing for older people, including extra care and supported housing options.
• Homelessness Prevention and Temporary Accommodation
  HDC will continue to invest in homelessness prevention strategies, including the provision of temporary accommodation for those facing housing crises. The focus will be on reducing the reliance on bed-and-breakfast accommodation by increasing the availability of suitable temporary housing.

10. Equality and Diversity

The Council is committed to promoting equality, diversity, and inclusion in its housing policies. The Council will:

• Ensure that all tenants, regardless of age, ethnicity, gender, disability, or other characteristics, are treated fairly and equitably.
• Provide accessible housing for people with disabilities and those with specific needs.
• Monitor the impact of its tenancy policies on different groups and ensure that equality considerations are integrated into all tenancy management practices.

11. Conclusion

This Tenancy Strategy reflects Horsham District Council’s commitment to providing quality, affordable housing while ensuring that tenants are supported to maintain their tenancies and thrive within their communities. Over the next five years, HDC will prioritize tenancy sustainment, the creation of balanced communities, and the delivery of affordable housing to meet local needs.

Through continued partnership working, tenant engagement, and a focus on sustainability and support, the Council will work towards an inclusive, resilient housing system that meets the needs of its diverse population.