- Introduction
- Scope of policy
- Funding adaptations
- Strategic context
- Assessment of need
- Housing Leeds landlord responsibility
- Aims and objectives
- Request for assistance – children
- Request for assistance – adults
- Cost of adaptation works
- Major works recommendations
- Housing Leeds occupational therapists service
- Minor adaptations
- Major works schemes
- Scope of works
- Eligible scheme
- Communal areas
- Standard schemes
- Non-standard schemes
- Timescales for adaptations
- Hospital discharge pathway
- Weekly adaptations panel
- Panel outcomes
- Feasibility of schemes
- Declining of recommendations
- Review of decision
- Caseworker service
- Medical housing needs assessments
- Independent appeal panel
- Decanting
- Disrepair cases
- Safeguarding
- Contractors
- Warranties
- Servicing, repairs and maintenance and aftercare
- Continual improvement
- Communication plan
- Monitoring and reporting
1. Introduction
Adaptations are often required in the homes of both adults and children with a disability, illness, or vulnerability, to allow them to remain and or live independently within their home.
Housing Leeds as a Social Landlord have a responsibility to assess and carry out adaptations, as outlined in the Housing Grants Construction and Regeneration Act 1996 (The Act) and The Social Housing (Regulation) Act 2023.
Health and Housing is the lead and acts on behalf of the Housing Authority, within the legislation and government guidance (The Guidance).
2. Scope of policy
The content of this policy refers to tenants of Housing Leeds, their children, or dependants.
Although Housing Leeds manage adaptations for our tenants who live in Private Finance Initiative (PFI) areas, there may be some restrictions, where these apply, we will consult with those tenants to arrive at an outcome that meets need.
There is a separate Adaptations Policy for tenants of Belle Isle Tenant Management Organisation (BITMO). Information and how to access this service is available on their website.
Within the private housing sector, there is financial assistance available to homeowners, Housing Association Tenants, and private renters through the governments Disabled Facilities Grant (DFG), which is also outlined within the Act.
Further information on funding required to private homeowners is contained within the Private Housing Assistance Policy, which is a published document required of all Local Authorities.
3. Funding adaptations
The guidance stipulates that when the Local Authority is a landlord, in this instance Housing Leeds, that costs for adaptations with be funded by the Landlord by the Housing Revenue Account (HRA).
The government has provided a guidance document for Local Authorities and within this guidance it encourages the joint working of the Housing Authority, represented by the H and H Service and the Social Care Authority, both Children’s and Families, and Adults and Health, in order to respond to local priorities and provide a necessary framework for adaptations to vulnerable customers.
The service also employs a Housing Occupational Therapist Team that carry out property assessments to customers identified for rehousing who have a housing recommendation. This normally occurs at the point of viewing a property, prior to the sign up of a new tenancy.
4. Strategic context
The council currently has an ambition to be the Best City, for both Children and Ageing Persons. One of its priorities is for improved ‘Health and Wellbeing’ for Leeds citizens, and this is considered within this policy. The principles identified within the Marmot Cities strategy, which references the social determents of health, by recognising the impact of social inequalities on health, are also considered within this policy document.
5. Assessment of need
The need for adaptations can come from a variety of sources. An established pathway has been set up with Health and Housing which receives Major Works Recommendation’s from OT or OTAs, after they have carried out their assessment in Social Care.
The service will be mindful of all requests for adaptations but will need to verify and confirm the need prior to agreeing to carry out any adaptations.
This policy document seeks to detail the process and procedures relating to how decisions are made to install adaptations into Housing Leeds properties.
Housing Leeds is committed to meeting the needs of all customers and ensuring compliance with the Equality Act 2010. An Equality Impact Assessment (EIA) will be undertaken for this policy and reviewed periodically.
Reasonable adjustments will be made for customers from protected groups or those with vulnerabilities. Staff will consider cultural, language, and accessibility needs when delivering services. Where additional support is required, referrals will be made to appropriate agencies.
6. Housing Leeds landlord responsibility
Since the establishment of Housing Leeds as a Landlord, there has been a set procedure in place to install mandatory adaptations both minor (those under £1,000) and major (over £1,000) as per the parent legislation, which is the Housing Grants Construction and Regeneration Act 1996 (The Act) and The Social Housing (Regulation) Act 2023
The government have produced a guidance document for Local Authorities who are Landlords, and consideration to this advice is contained within this document.
The cost of all adaptations in Housing Leeds properties, both minor and major are met by the Authority as Landlord, via the Housing Revenue Account (HRA).
Any identified tenancy issues such as rent arrears, ASB, right to buy applications, clearance areas, may delay the progress of adaptation work.
Housing Leeds will take proactive steps to reduce delays and prevent issues by; Working closely with hospital discharge teams to avoid delayed transfers of care; Engaging early with Occupational Therapists during property viewings; Providing clear guidance to tenants on the process and expected timescales and identifying alternative housing solutions where adaptations are not feasible.
7. Aims and objectives
The aim of the policy is to provide clarification about the legislation (The Act). In section23 of the Act there is reference to the instances when adaptations are to be considered. They are:
- Facilitating access by the disabled occupant to and from the dwelling or the building in which the dwelling or flat is situated.
- Making the dwelling or building safe for the disabled occupant and other persons residing with them.
- Facilitating access by the disabled occupant to a room used or usable as the principal family room.
- Facilitating access by the disabled occupant to, or providing for the disabled occupant, a room used or usable for sleeping.
- Facilitating access by the disabled occupant to, or providing for the disabled occupant, a room in which there is a lavatory, or facilitating the use by the disabled occupant of such a facility.
- Facilitating access by the disabled occupant to, or providing for the disabled occupant, a room in which there is a bath or shower (or both) or facilitating the use by the disabled occupant of such a facility.
- Facilitating the preparation and cooking of food by the disabled occupant.
- Improving any heating system in the dwelling to meet the needs of the disabled occupant or, if there is no existing heating system in the dwelling or any such system is unsuitable for use by the disabled occupant, providing a heating system suitable to meet his needs.
- Facilitation the use by the disabled occupant of a source of power, light, or heat by altering the position of one or more means of access to or control of that source or by providing additional means of control.
- Facilitation access and movement by the disabled occupant around the dwelling to enable him to care for a person who is normally resident in the dwelling and is in need of such care.
- On 22 May 2008 access to a garden was brought within the scope of a DFG where the work will facilitate access to and from a garden by a disabled occupant or make access to a garden safe for a disabled occupant.
Consideration will be given to the two tests within the Act, which are ‘Necessary and Appropriate’ and ‘Reasonable and Practicable’.
This policy enables tenants with disabilities, illnesses, or vulnerabilities to live safely and independently in their homes. It ensures timely, fair, and consistent decision-making in line with legislation and best practice.
We promote equality of access to services for all tenants, including those from diverse backgrounds and with additional needs. We work collaboratively with partners to deliver high-quality adaptations that improve health and wellbeing.
We aim to continuously improve services through feedback and learning.
8. Request for assistance – children
Within the Act, the Housing Authority, which is led by the Health and Housing Service, has a duty to consult with the Social Care Authority.
In Childrens services, customers will approach the Childrens Health and Disability Service (CHAD) for assistance with adaptions for a child. A child is a young person aged 17 or under.
An initial risk assessment will be undertaken, and customers may be placed on a waiting list.
Any urgent information received during processing will be acted upon, and this may lead to equipment, minor safety works, advice, or signposting.
All assessments for children are carried out by Occupational Therapists, as CHAD do not employ OTAs within the service.
The OT will usually assess the child within their home, and consult with parents, carers, health professionals and schools, or other appropriate agencies, as part of their assessment.
9. Request for assistance – adults
In adult cases, customer will approach Adults and Health Service directly to request assistance.
Any immediate or urgent need will be responded to, and customer may be placed on a waiting list for an assessment. The outcome can vary and may result in a major works recommendation for adaptations.
In both cases, minor and major works are the responsibility of the Health and Housing Service to process and install.
10. Cost of adaptation works
All adaptations costs, both major and minor will be met by Housing Leeds in its capacity as a Social Landlord.
When a property is altered, there may be an increase or reduction in rooms, which may have cost implications such as increase in weekly rent. The service will ensure that relevant notifications will be provided to other services with Housing Leeds, so that any installations or modifications can be accurately recorded on IT systems.
When an extension or property modification has been proposed, the potential impact will be fully explained to the customer before any works commence.
11. Major works recommendations
Recommendations for adaptations are made by Occupational Therapists (OT) or Occupational Therapist Assistants (OTA) or other trusted assessors. This is following an approach from a customer, who is having difficulty within their home, or is in need of suitable accommodation, in order to live independently within their home.
The assessment can take place over the telephone or in person.
As part of their assessment, OTs may consider or seek supporting information about a customer’s condition.
Recommendations are then made to the service for adaptations.
12. Housing Leeds occupational therapists service
Where customers on the housing register have a housing recommendation, when topping a Choiced Based Lettings shortlist, a referral to the Housing Leeds OT service will be triggered by the Lettings Service.
A member of the Housing OT team will be present at the viewing and carry out an assessment of need.
Recommendations will be made to the service for adaptations.
Housing OTs will hold customer cases open for a period of 3 months following the viewing, should any further assistance be required. Any requests for additional actions from a new tenant, after this period, should be directed to Adults and Health or Children and Families Services.
Where the property is not suitable for the incoming tenant to reside in, due to the needs for the adaptations, the property will remain in void until the works are completed.
13. Minor adaptations
These are works under £1,000 and usually (but not exclusively) consist of small fixtures and fittings that assist customers in functioning safely around the home. They often include items like:
- lever taps
- grab rails
- bannister rails
- window locks
- door fasteners
- toilet plinths
This list is an example, and not exhaustive.
Tenants may request lever taps, grab and bannister rails directly via the tenant’s portal, through the contact centre or housing office.
Such items can be included alongside other adaptation schemes and will be actioned when received by the service.
14. Major works schemes
Any scheme which costs over £1,000 is considered major works.
These can include minor adjustments to the existing footprint or layout of a property such as door widenings.
They may include major adjustments to a property layout such as internal configurations of rooms to allow wheelchair access as an example.
It may include adding additional rooms such as an extension.
They can include the installation of mechanical and electrical equipment such as a stair or through floor lift, or specialist bath as examples.
15. Scope of works
Only works recommended by the OT will be considered in any adaptation scheme, following an assessment of customer need.
The service has categorised work to deal with the number of referrals that are received each year on a timely basis, into standard and non- standard schemes.
Where kitchen white goods are deemed necessary as part of the works, the council will provide these appliances. Once the work is complete and the appliances have been installed, they become the property of the customer. This means that any future repair, maintenance, or replacement of these items is the sole responsibility of the customer. To ensure full understanding, a form will be provided for the customer to acknowledge and confirm this arrangement.
16. Eligible scheme
In drafting an eligible scheme, a surveyor will consider the OTs recommendation and interpret into a scheme that will meet the needs of the customer.
The surveyor employed by the Service will look at the available space within the existing footprint of a property whenever possible and how that can be best utilised, prior to any changes. A scheme to provide ground floor facilities can often incorporate the conversion of second reception rooms, storage areas, circulation areas or subdividing existing rooms where possible.
A decision to provide an extension is only made when it is not possible to provide the required facilities within the existing dwelling.
Consultation will take place with the customer to agree the scheme prior to commencement of works. This will include the agreement of the referring OT to any proposed scheme.
It is very important that Health and Housing follows approved policies and guidelines in every case to ensure that all clients are treated equitably.
Any disputes relating to eligible schemes should be dealt with through the review/appeal process through the panel system. (see panel section 22).
17. Communal areas
Adaptation works will not be considered in communal areas such as in flats or Retirement Life Schemes, due to the needs or impact of other customers being unassessed.
Where there is a situation that impacts many customers such as heavy communal door, the Scheme or Housing Manager should seek to explore potential solutions, rather than making a referral via the adaptations process, which addresses the needs to individual customers.
18. Standard schemes
A high number of referrals are received every year for the following:
- access into the property (ramps) and
- bathing (wet floor showers)
- access to another floor (stairlifts)
These jobs are considered as ‘standard works,’ and the service has set timescales, in line with the Act to ensure these adaptations are installed in a timely manner.
Standard schemes are installed by our in-house service provider, Leeds Building Services (LBS); however, the contractor may vary if adaptations are required within the PFI areas.
19. Non-standard schemes
Every scheme which is not standard or minor falls within this category.
Examples of non-standard works are:
- through floor lift
- step lift
- platform Lifts
- internal room configurations
- adapted kitchens
- wash/dry toilets
- specialist baths
- extensions
- fencing
- making gardens safe
This list is not exhaustive, and some schemes consist of major and minor works.
A senior surveyor employed by the service will usually draft an eligible scheme, which is then used as a basis of design by the contractor.
Non-standard schemes are usually installed by our in-house provider, Leeds Building Services (LBS), and some bespoke contractors may be sub-contracted to provide specialist adaptations or equipment; however, the contractor may vary if adaptations are required within the PFI areas.
20. Timescales for adaptations
The service works in line with government guidelines for the installation of adaptations.
A complete application should be determined within 6 months and following approval of the works, should be completed within 12 months.
Whilst the service strives to adhere to these timelines, some works such as extensions are likely to fall outside of this, for example, due to the necessary tendering and building permissions required.
21. Hospital discharge pathway
Hospital Caseworkers are specialist rehousing staff, who provide a link between the NHS and the council to enable pro-active discharge for hospital in patients. The aim of this service is to reduce delayed discharges where patients may be medically fit for discharge but require adaptations or additional support on being discharged.
The Hospital Caseworkers work closely with the ward, patients, Health and Housing and Housing Leeds Lettings Teams to assist getting the person back in their own home or assisting with rehousing if their existing home cannot be adapted.
When the service receives a referral from the hospital or care facility for adaptations, the case will be treated as urgent, to facilitate an early discharge.
Hospital OT’s can also make direct recommendations to the service, for standard works.
22. Weekly adaptations panel
Health and Housing host a weekly adaptations panel, which consists of multi-disciplinary staff within the service.
On receiving a major works recommendation, relevant tenancy checks are carried out to ensure the viability of the scheme, prior to any commencement of works.
When assessing requests for adaptation works, we will also consider any relevant tenancy-related factors that may impact the feasibility or appropriateness of proceeding. These include, but are not limited to, tenancy checks for rent arrears, active or pending Right to Buy applications, ongoing tenancy enforcement actions, or reports of anti-social behaviour (ASB).
Where such issues are identified, the proposed adaptation work may be delayed, alternative solutions may be explored, or, in some cases, the request may be declined. Each case will be assessed on its individual circumstances, with a focus on ensuring fair and appropriate outcomes for all parties involved. All cases, both Adults and Childrens, include the above tenancy checks.
The service will also assess if there are any alternatives to carrying out the adaptations proposed – for example considering alternative housing stock, moving to already adapted properties that are better suited to customer needs or if the existing property is feasible to be adapted.
Recommendations for all garden work, fencing, off street parking and extensions, will be referred to the weekly adaptations panel for a decision.
BITMO and PFI tenants can utilise the Leeds City Council Adaptations Panel, offering an additional route for advice and support.
23. Panel outcomes
Possible outcomes from the panel are:
Proceed
Customers will be advised in writing.
Split Outcome
Part of the OT’s recommendations will be agreed but some will be declined A letter will be sent to the customer to advise of the decision and will await customer agreement prior to commencing any works. A customer can request a review of a partial decline decision.
Proceed Pending Agreement
An alternative solution that will still meet need following further discussion with the OT will be agreed, and a letter will be sent to the customer. The scheme will only progress, once customer affirms their agreement in response to the letter.
Decline
Panel discuss the recommendation submitted by the OT and find that the property is not suitable to be adapted. Alternative options are considered, and the recommendation will be declined. A letter is sent to the customer explaining our reasons for declining the request, and assistance to rehouse or support is offered via a caseworker.
The service will always seek to offer an alternative of some sort, to meet any unmet needs identified by an OT.
24. Feasibility of schemes
If further clarification is required about the likelihood or possibility of a scheme being achievable, a senior surveyor will carry out a feasibility assessment, often with an OT from Adults, Childrens or Housing present at the property.
Outcomes of feasibility visits are then brought back to the panel for a further discussion for a decision outcome to be made.
25. Declining of recommendations
Adaptations may be declined where they do not meet the statutory tests of being necessary and appropriate or reasonable and practicable.
Where other housing stock is outlined within a reasonable area that could meet customer needs, adaptations may also be declined in favour of rehousing.
It may also be possible that a scheme is not viable in that particular property for example a ramp where there are more than 4 steps, and the correct gradient would not be easily achievable. Or the property does not lend itself to be extended due to the lay of the land, proximity to neighbours, or poor lighting.
All decisions will be communicated in writing, with clear reasons and information on the review process. When an adaptation scheme is declined, the customer is given a 21-day period to request a review of the decision. They are invited to write in and provide further information on why they feel the decision is incorrect and should be reviewed, with supporting evidence where possible.
26. Review of decision
All reviews will be heard at the weekly panel meeting. Any new information is considered, and customers again will receive an outcome in writing and BITMO customers can access this also.
Following a review the outcomes will be the same as before – Proceed, Split Outcome, Proceed Pending Agreement or Upheld Review.
If the decision is Upheld Review, the customer can then request for their case to be heard at the Independent Appeal Panel, and all the supporting information is on the letter that is sent to them.
27. Caseworker service
When an adaptation scheme is declined in favour of rehousing, part of our offer is assistance to help find a customer an alternative property which is more suitable and meets their long-term needs. This assistance is through the Adaptation Caseworkers.
Caseworkers are tasked with pro-actively working to assist a customer or family in rehousing into more suitable accommodation. They will assist with housing applications and bidding where necessary and act as an advocate until the customer is successfully rehoused. The service is also able to offer some incentives to enable a customer to relocate for example meeting the costs of removals or the reconnection of appliances (such as gas cooker).
All cases of declined adaptations can take up an offer of this service should they wish to do so.
28. Medical housing needs assessments
When a customer needs to move properties for medical reasons, they must first apply for rehousing via the Leeds Homes website.
If a medical needs assessment is needed this is in line with part 7 of The Housing Act 1996 and is completed by the Independent Living Team in Health and Housing.
The Independent Living Team assess people for medical priority who are on the Leeds Housing Register who need to move because their home is no longer suitable to meet their health needs and cannot be reasonably adapted to do so (for example difficulties negotiating stairs/access steps/bathing facilities). Medical priority is not awarded according to severity of health issues, but difficulties managing physically (such as accessing facilities) within that property or negotiating the access to it.
Health and Housing also assess for mental health if a customer has had an emotional experience within the property and feel they can no longer live there.
Health and Housing also assess the need for an extra bedroom requested for medical reasons, such as for overnight carer support/child with a diagnosed behavioural condition who cannot share with siblings.
Retirement Life (sheltered housing) is available in Housing Association properties for people over 55 and in LCC for people over 60. We assess anyone (in some cases even under these ages) if it is felt that there is a specific need, or they would benefit from rehousing to this accommodation type where these needs cannot reasonably be met in other types of accommodation.
Health and Housing provide housing recommendations, normally where someone has already had an assessment for other reasons (such as homelessness) and they require a recommendation for adapted properties, so they are not bypassed when bidding.
Referrals to the Independent Living Team are made via self-referral direct, Adults and Health, CHAD, Support Workers acting on a customer’s behalf, Customer Services, Leeds Housing Options or Housing Leeds.
29. Independent appeal panel
Where the decision to uphold declined cases from review panel occur, customers will be given the option for their case to be heard by an Independent Appeal Panel.
The panel will be Chaired by the Head of Service of Health and Housing, with a representative from the Third Sector and Senior Managers from Adults and Childrens Social Care.
Documentation will be sent out for completion ahead of the appeal hearing, and customers may be represented by an Advocate, Solicitor, or friend.
Customers and their advocates will be given the opportunity to present their case, and or ask questions of the panel.
Customers will be notified of the outcome, within 10 days of the hearing, unless further information is required.
The outcome will be to either proceed with adaptations or uphold decision. If a customer is dissatisfied with the outcome, they can appeal to the Ombudsman. Contact information for the Ombudsman’s office is provided.
BITMO customers can also utilise the Leeds City Council Adaptations Panel, offering an additional route for advice and support.
30. Decanting
On occasion there may be reasons to relocate customers due to the scope of the work required, and the impact this may have on a customer of their household, whilst works are in progress.
A discussion should take place prior to works starting, with the customer, OT, and any other persons providing support such as a family member or advocate. This is to ensure that all parties are aware of disruption caused during the works, and the need for alternative provision during the period of major disruption.
Due to the sheer number of schemes undertaken by the service, consideration for decanting will not usually occur for standard schemes.
Staying with family or friends should be explored as an option initially.
Where this is not possible, suitable alternative accommodation needs to be sourced. The service will work with the customer on finding suitable accommodation and potentially making an offer to the customer.
Any details around a decant and the length of stay should be agreed between Health and Housing and the customer and confirmed in notes by the officer.
If there is no agreement regarding the offer of a decant, and customer requests the need for one, this will be referred to panel for decision. Customer will be notified of any outcome in writing.
31. Disrepair cases
Where adaptations are identified and there is an existing disrepair claim, the service will work collaboratively with both the customer and the disrepair team to ensure that necessary adaptations can be completed without hindering or compromising the progress of the claim. This coordinated approach aims to support the customer’s needs while maintaining the integrity of the disrepair process.
Where there is an outstanding disrepair claim at a property, the service will work in partnership with the disrepair team, to co-ordinate the installation of adaptations.
32. Safeguarding
In situations where a safeguarding concern is identified during the adaptations process, staff will follow Leeds City Council’s Safeguarding Policy and report the concern through the appropriate channels. Ensuring the safety and wellbeing of individuals is a priority, and all staff are expected to act promptly and responsibly in line with safeguarding procedures.
Any concerns with regards to the safeguarding of vulnerable adults or children, either prior to or whilst works are in progress, will be reported by the Service in line with LCC procedures.
33. Contractors
Leeds Building Services will be the primary service provider for carrying out works. For more specialist equipment and adaptations, Health and Housing will work closely with the Occupational Therapist who made the initial recommendations.
Contractors are provided with guidance with regards to the installation of adaptations.
Given the specialised nature of these works, there may be lead times for the manufacture and installation of specific equipment, which may impact on overall timescales of works.
34. Warranties
The following warranty time periods are to apply and in the event of failure during the warranty period the contractor shall return under the standard times of responding to repairs and correct the fault; all costs to be carried by the Contractor.
The minimum workmanship and warranty periods are as follows: 1 year for new installations.
Warranty starts from the date of financial completion of the adaptation.
35. Servicing, repairs and maintenance and aftercare
After installation, the service will ensure that customer is shown how to safely use newly installed adaptations. This includes providing the customer with any manuals and instructions about the product.
The service will also ensure quality assurance, by checking that one in ten of all adaptations installed is inspected by a senior surveyor from Health and Housing.
A questionnaire will be sent out to customers to provide feedback on the process to installing adaptations, approximately one month after scheme completion.
The service will ensure that all relevant information about the adaptations installed are shared with other services within Housing Leeds, and that the relevant information is recorded on appropriate IT systems.
Housing Leeds will be responsible for the maintenance and repairs of all adaptations outside of the warranty period.
The only exception to the warranty period is where a latent defect has been identified with regards to a historic adaptation scheme. In this case, Health and Housing would seek to remedy this with the original contractor who provided the installation.
36. Continual improvement
This policy has been informed by feedback from tenants, complaints analysis, and consultation with partner agencies. The service is committed to continually improving its services.
Ongoing engagement will include:
- post-adaptation satisfaction surveys.
- opportunities for tenants to share feedback via Tenant Voice Panels and digital platforms.
- regular review of complaints and compliments to identify improvements.
- feedback will be used to monitor outcomes and shape future policy updates.
- review policy periodically
37. Communication plan
Due to the timescales often involved in carrying out adaptations, the service will seek to ensure customers have an accessible point of contact throughout the process.
An acknowledgement letter will outline the original plan for the scheme and have information regarding how a customer may contact the service or a senior surveyor.
The service will have regular contact with colleagues within the Social Care Authority, so that best practice can be shared, and any new trends or lines of enquiry be responded to in a joined up manner.
This policy will be published on the Leeds City Council website and made available in accessible formats upon request.
Tenants will be informed of the policy through housing offices, contact centres, and digital channels.
Staff will receive training to ensure consistent application of the policy.
38. Monitoring and reporting
The Health and Housing Service will monitor:
- number and type of adaptations completed
- average timescales for delivery
- customer satisfaction scores
- complaints and appeals outcomes
Performance will be reported monthly used to inform service improvements.
