1. Policy statement
1.1 This policy outlines Leeds City Council’s approach to the prevention, management and rectification of instances of damp and mould in council owned homes.
1.2 Leeds City Council has adopted a ‘zero tolerance’ approach to damp and mould. The council acknowledges that damp and mould will occur in some homes. This zero tolerance approach reflects the council’s commitment to efficiently and effectively dealing with such instances and taking a positive, pro-active approach to reducing the risk of damp and mould occurring.
1.3 The aim of this policy is to underpin the zero tolerance approach by ensuring that:
1.3.1 Residents are treated in a fair and consistent way.
1.3.2 Housing Leeds staff and partners are aware of Housing Leeds’ approach to the prevention, management and rectification of instances of damp and mould and are trained and suitably competent to deliver this approach.
1.3.3 A safe and healthy internal environment is provided to all residents.
1.3.4 Effective investigation and remedial solutions are efficiently identified and implemented to eradicate damp and mould in homes.
1.3.5 Residents have access to and/or are provided with comprehensive advice and guidance on managing and controlling damp and mould. This includes making residents aware of the health hazards associated with damp and mould and signposting them to professional medical help if they have concerns that their health may be at risk.
1.3.6 Leeds City Council is complying with statutory requirements and best practice.
1.3.7 Available budgets are maximised to effectively deal with issues of damp and mould, including repair works, improvement works, staff training and resident engagement.
1.4 This policy has been developed in consultation with Health and Safety professionals, housing professionals, and in line with the prescribed standard set out within Awaab’s Law, and the recommendations outlined in the 2021 Housing Ombudsman ‘Spotlight on damp and mould…It’s Not Lifestyle’.
1.5 This policy supports Leeds City Council’s Best City Ambition and associated objectives.
2. Scope
2.1 All domestic properties owned by Leeds City Council and managed by Housing Leeds, including homes within designated PFI schemes and homes managed by Belle Isle Tenant Management Organisation (BITMO).
2.2 All communal areas within buildings containing domestic properties owned by Leeds City Council and managed by Housing Leeds.
2.3 Emergency and temporary accommodation appointed directly by Housing Leeds.
2.4 This policy excludes homes in the Private Rented Sector.
3. Responsibilities
3.1 It is the responsibility of all officers to ensure the Damp and Mould Policy is understood and implemented.
3.2 The Chief Officer, Housing has overall responsibility for the policy, ensuring that it is fully implemented across the whole of the council's managed housing portfolio.
3.3 The Head of Property Management, Head of Strategy and Investment and Heads of Housing Management are jointly responsible for the following:
3.3.1 The effective implementation and delivery of the policy.
3.3.2 Monitoring the performance and delivery.
3.3.3 Reviewing this policy.
3.4 The Chief Officer, Housing is responsible for:
3.4.1 Overseeing the processes and procedures that are in line with the policy.
3.4.2 Ensuring that the policy aims and terms are adhered to.
3.5 Managers are responsible for ensuring that their staff and contractors have received damp and mould training appropriate to their role.
4. Types of damp
4.1 Damp and mould is one of the 29 Hazards defined in the Housing Health and Safety Rating System (HHSRS).
4.2 Rising damp
4.2.1 The movement of moisture from the ground rising through the structure of the building through capillary action.
4.3 Penetrating damp (inclusive of internal leaks)
4.3.1 Water penetrating the external structure of the building or internal leaks causing damp, rot and damage to internal surfaces and structure.
4.3.2 This can be a result of a range of structural or service issues, including;
- water ingress due to defective or poor original design / workmanship of the structure
- defective components for example roof coverings, external wall doors and windows
- defective or blocked rainwater gutters and pipes
- defective or leaking internal waste pipes, hot and cold water and heating systems
- flooding due to burst pipes
4.4 Condensation
4.4.1 Condensation occurs when moisture held in warm air meets a cold surface and then condenses producing water droplets.
4.4.2 The two primary causes of condensation related damp are;
- Surface mould arising when the inner surface of the structure is cooler than the room air
- Mould inside the structure (interstitial) where vapour pressure forces water vapour through porous materials (e.g. walls), which then condenses when it reaches colder conditions within the structure
5. Conditions that can lead to mould
5.1 Mould is a natural organic compound that develops in damp conditions and will only grow on damp surfaces. This is often noticeable and present in situations where condensation damp is present.
5.2 A range of environmental conditions can increase the risk of mould in a home. These include:
5.2.1 Insufficient ventilation.
5.2.2 Insufficient heating.
5.2.3 Insufficient thermal insulation.
5.2.4 High humidity.
5.2.5 Poor building design and / or construction.
5.2.6 Property overcrowding.
6. Leeds City Council’s responsibilities
6.1 Leeds City Council recognises the potential health hazards associated with damp and mould in the home and will strive to eliminate damp and mould from all homes under its management via effective, ongoing repairs and maintenance, resident engagement and targeted investment and improvement programmes.
6.2 All staff and commissioned partners are responsible for identifying and referring instances of damp and mould that they identify, following the Damp and Mould referral
6.3 All reports of damp and mould will be fully assessed and responded to appropriately to minimise the risk of these conditions returning.
6.4 Investigate reports of damp and mould to determine the cause and carry out remedial actions in accordance with the tenancy agreement and industry guidance.
6.5 Deliver effective solutions based on the ethos of dealing with the cause of the damp not just the symptoms.
6.6 Ensure that all staff, partners and contractors who visit or regularly engage with residents have adequate damp and mould training relevant to their role and understand the delivery of the services that will meet the aims of this policy.
6.7 Undertake engagement, as defined through the LCC Damp and Mould Communication Strategy, including support and advice to residents on reducing and controlling damp and mould.
6.8 Seek out ‘silent sufferers’ by using the data from stock condition surveys and annual tenancy contacts and home visits.
6.9 Ensure robust, accurate data relating to property condition is gathered in line with the Stock Condition Strategy to inform investment planning.
6.10 Ensure that only competent contractors will be employed to carry out any works and that the resident’s possessions are protected during the works.
6.11 Undertake reasonable improvement works required to assist in the management and control of condensation damp, for example installation of mechanical extract fans, fresh air vents, repairing existing insulation, additional energy efficiency measures, etc.
6.12 As defined by the Decent Homes Standards and Awaab’s Law, from October 2025 improvement works will be carried out where it is reasonable and practical to do so.
6.13 Make good internal surfaces following any remedial work carried out ensuring that surfaces are prepared to a condition ready for the tenant to redecorate.
6.14 In some cases remedial work may not be necessary, instead requiring additional support and advice to be given to the resident on managing and controlling the occurrences of mould and damp to remove hazards.
6.15 Where internal conditions within a home are influencing health and wellbeing of the occupants or are preventing inspections or remedial works being carried out (for example, excessive hoarding of personal belongs), Leeds City Council will provide support and assistance to review the tenant’s options.
6.16 If Category 1 damp and mould hazards are identified (as defined by the Housing Health and Safety Rating System) or it is deemed unreasonable for the occupants to remain in the property while the works are carried out, alternative accommodation arrangements will be offered. The tenant will be supported throughout this process.
6.17 From October 2025, LCC are accountable for meeting the prescribed standards and timescales set out in Awaab’s Law. When we become aware of damp and mould hazards that are potentially a significant risk to health, we will:
6.17.1 Investigate within 10 working days of being made aware if there is a potential ‘significant hazard’.
6.17.2 Give the tenant a written summary of what we have found within 3 working days of our investigation concluding.
6.17.3 Begin, or take steps to begin, any further required works within 5 working days of the investigation concluding, if the investigation identifies a significant hazard.
6.17.4 If steps cannot be taken to begin work in 5 working days, then this must be done as soon as possible, and work must be physically started within 12 weeks.
6.17.5 If we cannot make the home safe within the time required, we must offer suitable alternative accommodation, which we will pay for, while the hazard is being addressed.
6.17.6 Ensure accurate records are retained pertaining to all investigations, communications with the tenant, access attempts and work done.
6.18 LCC have defined a ‘significant hazard’ in relation to damp and mould, in line with the Housing Health and Rating System (HHSRS) as;
6.18.1 where there is visible mould growth on the ceiling or walls of a kitchen, bathroom, bedroom or a living room, in a home where one or more of the residents is in one of the groups of people most at risk from damp and mould (based on the UK government's guidance, Understanding and addressing the health risks of damp and mould in the home):
- people with a pre-existing health condition (for example, allergies, asthma, COPD, cystic fibrosis, other lung diseases and cardiovascular disease)
- people who have a weakened immune system, such as people who have cancer or are undergoing chemotherapy, people who have had a transplant, or other people who are taking medications that suppress their immune system
- pregnant women, their unborn babies, and women who have recently given birth, who may have weakened immune systems
- people who are bedbound, housebound or have mobility problems making it more difficult for them to get out of a home with damp and mould and into fresh air
- children and young people whose organs are still developing and are therefore more likely to suffer from physical conditions such as respiratory problems
- older people
6.18.2 Officers will consider reasonable adjustments to these criteria where appropriate.
6.19 Repairs that do not meet the criteria of a significant hazard will be completed within normal published timescales, appropriate to the urgency of the repair.
7. Tenant’s responsibilities
7.1 Report signs of damp and mould to the council as soon as possible.
7.1.1 Reports concerning damp and mould can be reported via the Leeds City Council’s contact centre and the council website or via referral to the Damp and Mould Team: D&Mteam@leeds.gov.uk.
7.2 Report repairs that will hamper the management and control of damp and mould (for example, faulty extract fan, unable to open windows).
7.3 Allow access for inspections, or for repairs to be carried out, where reasonable notice is given. 'Reasonable' will ordinarily be at least 24 hours, unless an emergency.
7.4 Tenants are asked to carry out practical measures to reduce cases of damp and mould by:
- keeping temperatures within the home between 18 and 21°
- closing internal doors, opening windows, using clothes dryers when drying clothes indoors
- wiping down condensation from windows and other surfaces
- using lids on pans when cooking and trying to ventilate the kitchen
- not putting furniture directly against outside walls without an air gap to allow air flow
- closing internal doors and opening windows whilst cooking
- using an extractor fan where installed in the property
- wiping down any moisture from the bathroom after use
- opening windows or trickle vents during the day – especially in the bathroom after washing
- making sure tumble dryers are properly vented
- wiping down early signs of mould growth, with an appropriate solution before it spreads and becomes a bigger problem
- cleaning mould from clothes, fabrics, carpets and furnishings, etc., to prevent damage and prevent the spread of mould to other parts of the home
7.5 For tenants who are worried about keeping their home warm, we provide guidance to our tenants via Affordable warmth page.
7.6 Where residents are considering converting or using non–habitable buildings and spaces or rooms they must seek advice and permission from the council in accordance with the tenancy agreement conditions.
8. Leaseholder responsibilities
8.1 Leaseholders are responsible for managing and maintaining their properties in accordance with their lease agreement Leaseholders rights and responsibilities.
8.2 It is the responsibility of Leeds City Council to undertake any remedial works to the external parts, or structure of a building for which the council are responsible, where this is identified as the cause of any damp or mould.
9. Review
9.1 This policy has been reviewed in October 2025. A full policy review will take place in response to changes in legislation, the Housing Strategy, and the Asset Management Strategy or at periods not exceeding 2 years.
