Evaluation of Avenues 1 and 2

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Contents

1. Introduction
2. The Avenues - area profile
3. Legislative framework
4. Aim of the evaluation
5. Tenant meetings
6. Investigations and enforcement action for non-compliance
7. Working with licence holders
8. Empty properties
9. Key outcomes and how they were achieved
10. Complaints made to Private Sector Housing team
11. Partnership working - Operation Vienna
12. Proactive waste initiative
13. Household Support Fund
14. Conclusion

1. Introduction

This evaluation report provides the key findings of a five-year selective landlord licensing scheme for the Avenues Phase 1 and 2.

Gateshead Council has been at the forefront of tackling poor standards in the private rented sector for many years, using selective landlord licensing (SLL) schemes to proactively address problems within the sector since 2007. In September 2007, the council introduced one of the country's first SLL schemes, and there have been eight schemes in total. There is still a selective licensing scheme live in the Avenues at the time that this report was being prepared.

The private rented sector in Gateshead plays an important role in the provision of housing within the borough. This sector has grown significantly over the last decade and the sector has continued to grow.

The data collection confirmed that the Avenues and the re-designation of central Bensham would be designated over four phases, starting in 2018. The data confirmed that both areas were experiencing a wide range of issues associated with low housing demand, property values, antisocial behaviour and poor property conditions. It was considered that implementing the scheme would contribute towards the wider regeneration of the area, as well as improved property management standards. The aim was to raise standards within the private rented sector with a view to improving the overall social and economic conditions in the area to create a stable, strong, healthy and vibrant neighbourhood.

1.1 Why selective landlord licensing was considered

Many landlords in Gateshead operate within the law and offer a significant amount of high-quality accommodation, managed effectively at an affordable price. Within the borough there are concentrations of private rented accommodation (up to 65% in some areas), traditionally in areas of deprivation, where the private rented sector is commonly below standard in terms of property condition and tenancy management. The council continues to deal with complaints and demand concerning landlords and properties. In these concentrated areas house and rental prices are lower than average. When properties do come up for sale they may be bought up by landlords because of the low price and lack of demand from owner occupiers. These properties tend to house vulnerable tenants and low-income families who are statistically more likely to be in fuel poverty and are subject to the effects of crime and antisocial behaviour (ASB).

Problems such as fly-tipping and refuse, excessive noise and ASB, poor property conditions and overcrowding are disproportionally linked to private rented accommodation. A wide proportion of tenants are in receipt of housing allowance and their financial circumstances mean that they have a limited choice over the quality of accommodation they can access. For many tenants, there is the perception that there is little control over living conditions, and subsequently, they are less likely to complain to their landlord or local authority.

While many landlords take their responsibility seriously and provide much-needed housing within Gateshead, there are also negligent or criminal landlords who exploit vulnerable tenants by letting out cramped, unsuitable and, in some cases, dangerous properties, and fail to manage these tenancies and properties effectively. With this, and the growth of the sector in mind, there is a need to ensure effective management of these properties in concentrated areas to prevent rogue landlord activity, maintain good standards and ensure a thriving sector and well managed stock.

2. The Avenues - area profile

The Avenues is situated within the Saltwell ward, and this area contains the highest number of properties in the private-rented sector in Gateshead. The designation of The Avenues was implemented over three phases:

• Phase 1 - 30 October 2018 - 29 October 2023
• Phase 2 - 30 October 2019 - 29 October 2024
• Phase 3 - 30 April 2020 - 29 April 2025

The licensing area is defined within the red lined area in the figure below. The Avenues area in its entirety consists of approximately 1300 properties to which nearly 850 were expected to be licensable. Specifically, Avenues 1 and 2 consists of 977 properties of which 570 were licensable. Only a quarter of all properties in Phases 1 and 2 were occupied by owner occupiers. The remaining housing stock was exempt from selective licensing and was a mixture of tenures.

2.1 Property type

The properties are traditional pre-1919 terraced blocks consisting of ground and first floor flats, commonly known as Tyneside flats. The majority contain a rear off-shoot extension to provide the accommodations with a kitchen and bathroom. Generally they have a small rear yard giving access to the rear lanes.

2.2 Tenure

The tenure in the area is a mixture of privately rented properties, owner occupiers, several licensable and un-licensable Houses in Multiple Occupation (HMOs) and a small proportion of registered housing providers and charitable housing providers.

2.3 Levels of deprivation

The Index of Multiple Deprivation ranks every neighbourhood in England grouped into distinct domains including:

• income
• employment
• education
• skills and training
• health and disability
• crime
• barriers to housing and services
• living environment

The Avenues, Shipcote is ranked within the top 30% deprived areas in the country based on the Multiple Index of Deprivation which is a combination of a number of indices (detailed above) that provides an overall score for the relative level of multiple deprivation experienced in every neighbourhood in England. The selective licensing area covering the Avenues in Bensham is ranked 54th out of 317 local authorities.

3. Legislative framework

The Housing Act 2004 (opens new window) (part 3) provides the council with the enforcement powers to introduce selective licensing. The Avenues, along with the redesignation of Central Bensham, were designated under the following criteria:

• low housing demand (or is likely to become such an area) and a significant and persistent problem caused by antisocial behaviour.

Selective licensing requires that any person wishing to rent out a property in a designated licensing area must first obtain a licence from the council (subject to a number of exemptions). In order for a licence to be granted the council must be satisfied that the proposed licence holder is a 'fit and proper person' and that there are satisfactory management arrangements in place and the property meets all the required standards. Selective licensing is intended to be just one tool available to the council and it is not a stand-alone solution for every issue affecting a neighbourhood. Therefore, Housing Act 2004 (opens new window) requires the council to identify how selective landlord licensing will work alongside other measures that form part of an overall strategic approach.

4. Aim of the evaluation

The main aim of the scheme was to reduce low housing demand by raising standards within the private rented sector leading to improvements in the overall social and economic conditions in the area to create a strong, healthy and vibrant neighbourhood. It is also considered that the selective licensing scheme in the Avenues will assist in the reduction of ASB in the area.

In order to achieve these aims, a number of key outcomes over the period of designation have been identified:

• to reduce the turnover of occupants to create stable communities
• to reduce the number of empty properties and the length of time they remain unoccupied
• to reduce levels of ASB linked to tenants in the private rented sector
• to improve private rented property conditions and the number of accredited homes
• to improve the management of properties in the area
• to increase the number of tenants who manage their tenancy well
• to stabilise/increase rental values of private rented properties
• to stabilise/increase the value of residential premises
• to support the private rented sector in its provision of well managed properties and tenancies and assist those seeking to live and currently living in private rented accommodation.

4.1 Licence conditions

The mandatory licence conditions are prescribed by schedule 4 of The Housing Act 2004 (opens new window). The council has discretion to add additional licence conditions, and these have been categorised to ensure effective management of ASB, property and tenancy management, and managing waste and refuse. The licence conditions were monitored throughout the five years of the designation to ensure compliance.

5. Tenant meetings

The team endeavoured to visit every new tenant on change of tenancy throughout the five years of the licensing scheme.

The team carried out 891 tenant meetings throughout the five years of licensing in Phases 1 and 2 of the Avenues. Officers worked alongside the tenants to ensure that their tenancies were set up correctly and that bonds were held in deposit schemes, and the tenants were aware of how to report repairs and antisocial behaviour. Tenants were also given advice on good waste management practices and how to be a good tenant. Additionally, officers worked with tenants to address concerns where appropriate and refer or signpost tenants to the relevant services.

These tenant meetings were carried out at the time of the initial property inspection and any concerns raised by the tenant or identified by the officer were addressed. This included making referrals to the appropriate support agency or service to ensure that all tenants received the correct support or advice. Furthermore, the team attempted to carry out a tenant meeting when the property changed tenancies throughout the length of the scheme so that all tenants received a tenant meeting and were able to receive the relevant support if necessary.

5.1 Findings from tenant meetings

5.2 Inspections to assess property standards

On designation of selective licensing the team worked intensely with the tenants in the private rented sector. Officers within the licensing team carried out in total 1148 property visits in Avenues 1 and 533 in Avenues 2. These were a combination of initial property inspections, including both announced and unannounced property visits.

There were 339 properties in Phase 1 and 149 properties in Phase 2 where licence holders had applied for a licence in a timely manner and were operating in accordance with Part 3 of The Housing Act 2004 (opens new window). These were inspected at a pre-arranged appointment, which was arranged at a time and day to suit the tenant. All applications that were submitted prior to the scheme going live received a £200 discount from the application fee and many licence holders benefited from this early application discount.

All properties where a licence application had not been received on commencement of the scheme received an un-announced property inspection, these were mostly carried out in partnership with Northumbria Police. There were 78 unannounced inspections in Avenues 1 and 23 unannounced inspections in Avenues 2. All unannounced property inspections were carried out to determine property standards as these properties were operating outside of the legal framework.

All privately rented properties received an inspection during the course of the licensing scheme, carried out under Part 1 of The Housing Act 2004 (opens new window). This was arranged at the convenience of the tenant. On completion of the inspection a schedule of works was issued was issued to the licence holder to in accordance with the Housing Health and Safety rating System (HHSRS), with an appropriate timescale.

Suitable time frames were allocated to complete remedial works and then there were a further 420 re-inspections carried out in Phase 1 and 179 in Phase 2 to check that works had been completed to a good standard. However, some properties received more than one re-inspection mainly as works were not up to standard on the initial reinspection. The team endeavoured to take an informal approach and work with licence holders to identify and eradicate hazards. Enforcement action was used on those cases where hazards remained outstanding after an informal time scale had lapsed or when the hazard was deemed significant that formal action was necessary.

Disappointingly, there were a further 241 in Phase 1 and 87 in Phase 2 attempted visits where officers failed to gain access. These visits were a combination of both prearranged and unannounced inspections. Such visits were then re-arranged, sometimes using enforcement notices to access properties, which was an additional burden to officers and timescales.

There were 1650 hazards removed from properties collectively from both Phases. Under the Housing Health and Safety Rating System (HHSRS), category 1 hazards are the most serious housing hazards and may result in the immediate risk to a person's health and safety. A significant category 2 hazard, although less serious or less urgent, can still be regarded as placing the occupiers' health, safety and welfare at risk. Most of these hazards would not have been addressed without a licencing scheme and would have been left undetected. The only exception would have been from housing standards complaints and this relies on a tenant complaining about their property if their landlord does not respond to the tenant. Historically, there is a significant number of tenants who would not complain about their landlord not completing repairs for fear of rent increases or eviction. Licensing addresses these concerns as property inspections are carried out under the licensing regime.

6. Investigations and enforcement action for non-compliance

The team pledged a commitment to ensure prompt targeting of the evasive and noncompliant landlords as a priority, and as early on in the scheme's lifespan as possible. The team also pledged to take a lighter touch throughout the scheme when working with consistently compliant landlords. The following provides information on how this was initially achieved at scheme commencement and thereafter.

6.1 Identification of unlicensed properties

During the course of the licensing scheme the turnover of property tenure was continually monitored by colleagues in Council Tax. This was to allow the identification of homes that were required to be licensed and were not. As a result of this auditing 13 properties were found to be operating without a licence in place mid scheme. Consequently, these landlords were subjected to a full investigation to gather evidence in a fair and robust manner. On completion of an investigation enforcement action was taken in-line with the offence.

6.2 Breaches of licence conditions

The licence conditions were separated into two distinct sections - mandatory and discretionary. The mandatory licence conditions are from Schedule 4 of The Housing Act 2004 (opens new window) and must be included in all selective licences. The discretionary licence conditions were created around the objectives of the licensing scheme to improve how ASB, refuse and waste are managed, as well as property and tenancy management.

During the course of the licensing schemes the team carried out monitoring checks to identify breaches from the licensing conditions. There were further breaches identified from different sources, including complaints made by tenants or residents from neighbouring properties. There were also a significant number of licence holders breached through deficient annual review submissions.

In Phase 1 there were 59 licence holders that were breached for non-compliance with discretionary licence conditions, and 30 licence holders in Phase 2. Some licence holders breached multiple conditions and these totalled 244 individual breaches in Phase 1 and 83 in Phase 2. Common conditions being breached included failure to return the licence annual review, no inventory at tenancy start, not carrying out periodic property inspections and failing to test smoke alarms during property inspections.

6.3 Formal action for licence condition breaches

Under The Housing Act 2004 (opens new window) section 249A and Schedule 13A (as amended by the Housing and Planning Act 2016 (opens new window)) provides the regulatory framework for financial penalties that are used as an alternative to a prosecution. 17 financial penalties were issued for mandatory licence conditions breaches.

6.4 Enforcement notices - non-compliance

Officers from the team have used a variety of different notices to enforce compliance using a range of legislation. These notices have been served on both residents and licence holders for non-compliance during the scheme's designation. They include the following:

7. Working with licence holders

7.1 Reduced annual reviews issued for consistent returns

Licence holders that consistently returned their annual reviews in a timely manner have benefited from reduced monitoring after the first year of the licensing scheme. This was because licence holders have demonstrated effective compliance during the licensing scheme. This approach of relaxed monitoring of compliant landlords has reduced administration for both the licence holders and the Private Sector Housing team. This has enabled the team to concentrate on the non-compliant licence holders. This approach was not available to licence holders that have been subject to formal action or investigation by the council.

Annual reviews for landlords with multiple licences have also been requested at the same time to make submitting the information easier.

7.2 Less formal approach used for follow-up property revisits with low Category 2 hazards

This approach was initially implemented after the COVID pandemic when the country was under a national lockdown and was carried on where a few of the licence holders had demonstrated that they had a good track record.

Officers from the team took a lighter approach when signing off works following the issue of a schedule of works. This was where Category 2 hazards were identified during property inspections. Many of these have been followed up without a revisit to the property and on the production of evidence to confirm completion of works (for example, photographs, invoices and virtual property visits via video call). This approach was adopted for lower-level Category 2 hazards, and for those licence holders who demonstrated a good track record for completing schedules of work within the given timescale and effective communication with officers in the team.

7.3 Development and introduction of an online platform for licence annual review submissions

Further to the success and efficiencies of the online application form, the team also developed an online platform for the annual review of a licence. Each year we write out to licence holders at around the anniversary of the licence being issued. We request the completion of the annual review form to demonstrate ongoing compliance with licence conditions. The use of the online annual review has been popular with a significant number of our licence holders. However, it also highlighted non-compliance from a proportion of licence holders, so the team facilitated training sessions on the correct completion of annual reviews into the training schedule to support those licence holders less familiar with online technologies.

7.4 Licence holder training sessions

The licensing team has endeavoured to provide good quality training to all licence holders free of charge and in accordance with all current legislation. Prior to the COVID pandemic all training courses were held in person in the Civic Centre. This enabled the team to meet with landlords, managing agents and licence holders to provide support and guidance. The free training events allowed licence holders to maintain and improve competency in housing management and to assist in licence condition compliance.

In response to the COVID pandemic in 2020, the team started to deliver all training courses online via Microsoft Teams. Since 2024 the team have delivered a combination of training sessions. The team have delivered 42 training sessions between 2019 and 2024 and have presented to 1,117 attendees.

The recent free training courses have covered subjects including licence condition monitoring, adult safeguarding, tenant referencing and vetting service, licence holder support in completing annual reviews, damp and mould training, unlawful eviction and hoarding. The team also facilitated free training sessions by external providers including understanding Universal Credit and identifying bypassed electricity and gas meters This well-attended course was to raise awareness to the danger that this poses to both the tenants and the wider community.

7.5 Provision of a tenant vetting/reference service

The licensing team offer a free tenant vetting service to support licence holders comply with their mandatory licence condition. The vetting service was reintroduced and remained available throughout the five years of the licensing scheme. The vetting service was available to help and support landlords with properties in the selective landlord licensing areas to determine the suitability of future tenants, contributing towards area improvements including the prevention of ASB and crime.

Licence holders were able to undertake their own checks as long as they have robust processes in place, and they are fit for purpose and include details of former housing history as a minimum. Evidence of vetting's checks falls part of the annual review process, so some landlords have taken the opportunity to use the council to fulfil this legal requirement.

Licence holders were previously provided with what is accepted as a satisfactory reference check in order for them to make an informed decision. There have been 58 vettings checks carried out for Phase 1 and 22 vettings checks carried out for Phase 2 of the Avenues. The outcomes have been as follows:

The vetting service available from the licensing team was unique in that it had access to Police data via the partnership with Northumbria Police and Operation Vienna. This information is not available to any other referencing service and enabled licence holders to ensure any potential tenants were vetted to determine their suitability.

The vetting checks were undertaken in short timescales due to the partnership with Operation Vienna and the direct contact with the police and officers from the council's social-housing service. The average time for a decision on tenant suitability was within one working week. The licensing team carried out regular audits of tenure change to confirm the movement of tenants within the licensing area. Where our tenant vetting service was not being used, the team continued to contact licence holders to ask for evidence of vetting checks and compliance with this licensing condition on change of tenant.

8. Empty properties

It is normally considered that 4% of the housing stock being empty is a healthy sign within the housing market to allow for a changing population and demand within the area. The rate of empty properties in the Avenues area of Central Bensham in 2018 when the scheme was designated was at 8.1% which was over double the Gateshead average of 3.6%.

In 2023 the Gateshead average has very slightly increased to 3.7% but the Avenues has reduced to 4.5% over the five-year period through the duration of the licensing scheme. This would indicate that the housing market has improved and empty properties are being brought back into use regardless of tenure. This trend has supported a healthy market force, and this has reduced the number of empty properties, which in turn has seen a significant rise in rental income and this has been a significant change that has had an effect across the country. However, it is acknowledged that some areas of the country have benefitted from higher rent increases in comparison to Gateshead.

The data above shows that the percentage of rental properties in Phase 1 and 2 of the Avenues (Avenues 3 has been left on for comparison purposes) has reduced throughout the length of the licensing scheme and both phases are down to 16%. This is an improvement in the figures from when licensing started in 2018 when properties were changing hands more than once in a year at a rate of 23%. This reduction could be that residents are happier in their homes and feel more settled. However, this could also be because there is less choice available for tenants in the private rented sector and, with rent increases, some tenants feel their choices are limited.

The data above shows there was a flux in the percentage of properties changing hands two or more times within a year throughout the length of the licensing scheme. In 2018 when licensing started in Avenues 1 properties were changing hands multiple times at a rate of 6%. There was an increase in 2020 halfway through the scheme and this could have been through a number of factors such as unruly tenants being tackled for unacceptable behaviours or good tenants moving due to dissatisfaction with the area. It is noted this was when the national lockdown was first announced so this might have skewed the figures as some younger tenants may have returned home to be with their families. In 2023, the data suggests the numbers have returned to around 6%.

9. Key outcomes and how they were achieved

10. Complaints made to Private Sector Housing team

The Private Sector Housing team respond to complaints made about property standards, noise and ASB across the borough from tenants within the private rented sector. Licensing areas often generate an increase in complaints due to the intense scrutiny that is afforded by licencing. The bar charts below for Avenues 1 and 2 both show there has been an increase in the number of complaints over the period of the licensing scheme.

10.1 Total service requests

Avenues 1 - all complaints

The table above shows the number of complaints responded to by the team for issues including property standards and disrepair, noise and ASB in total throughout the five years of the licensing scheme. It is disappointing to see the number of complaints has stayed consistent throughout the length of the licensing scheme and has not reduced. Complaints received from tenants in the Avenues are significant as they are higher in comparison with other areas across the borough.

Avenues 2 - all complaints

Disappointingly, the number of complaints in Avenues 2 has risen in 2024 over the last year of the licensing scheme.

10.2 Antisocial behaviour complaints

Avenues 1

The graph above includes all antisocial behaviour complaints from the Avenues in Phase 1 for behaviours including shouting and swearing, drunken behaviour, fighting and arguments within properties, drug use, sale of drugs from properties, cannabis farms, properties being used as brothels and fly-tipping. The data shows this trend was noted on previous licensing schemes and that complaints increased in the designated area following property inspections and tenant meetings. This is mainly as the tenants are confident to make complaints after having their tenant meeting and are aware that certain behaviours should not be tolerated within their neighbourhood.

Following the lifting of COVID restrictions there was over a 50% increase in complaints to pre-pandemic numbers. During this period the team were responding to residents that were now mainly working from their homes and their tolerance levels were being tested.

Unfortunately, after five years of intense work in the area the data shows there is still a demand on the team to respond to ASB and the numbers are relatively proportionate to the numbers at the start of the scheme.

Avenues 2

The data shows there was an increase in complaints regarding ASB on designation of the licensing scheme in Phase 2. This trend has been noted in other licensing schemes due to the intense work being carried out in the area.

Tenants are provided with information about expectations of acceptable behaviour. Consequently, tenants are informed how they can report ASB including shouting, swearing, drunken behaviour and fighting. There was a delay in the inspection regime in Phase 2 due to the COVID pandemic and the majority of the inspections were carried out the latter part of 2021 and throughout 2022. Unlike Phase 1 there has been a downward trend in complaints, albeit there is still a slight increase on pre-scheme figures.

10.3 Noise complaints

Excessive noise in residential areas can come from a wide range of sources including radio, TV, pets, alarms, parties, doing housework, people noise and DIY. During tenant meetings, officers from the team discuss noise and provide practical advice on how to try and resolve noise issues amicably with their neighbours. However, some residents don't feel able to discuss problems directly with their neighbours in the first instance.

The team do respond to service requests to investigate noise and are able to support tenants and residents to make noise recordings and keep accurate recording of the occurrence of the noise, date, time, duration and noise source, this enables the team to determine a suitable course of action.

Avenues 1

The graph above includes noise complaints received from house alarms, barking dogs, people noise, music/television, and parties. The data shows that there has been a significant number of noise complaints throughout the five years of the licensing scheme and that noise from property to property has remained significant.

The main causes of noise complaint are due to poor soundproofing between properties allowing noise to transfer between Tyneside flats. In particular there tends to be families in the upper flats as they provide a larger unit of accommodation as opposed to ground floor flats. Some complaints are about footstep noise and this is difficult to enforce as this is not intentional noise disturbance.

There is a higher proportion of privately rented properties in Phase 1 and also the greatest proportion of turnover, so it is expected that there will be more complaints from Avenues 1 than other phases of the licensing scheme.

Avenues 2

The table above shows that noise complaints again have been persistent throughout the five years of the licensing scheme in Phase 2. Although not as significant as the data collated for Avenues 1, the number of complaints received are significant in comparison with noise complaints from across the borough. Interestingly, there was a sharp increase in complaints in 2023 and this trend falls in line with when the properties were inspected and tenants were advised during tenant meetings of unacceptable noise levels and other tenant-like responsibilities.

10.4 Property standards complaints

Landlords are required to maintain their properties to a reasonable standard and at least meet the minimum housing standard in accordance with The Housing Act 2004 (opens new window), regardless of whether the properties are situated within a selective licensing area. Landlords should make sure there are effective management practices in place, such as carrying out a detailed inventory at the start of any tenancy to demonstrate the quality of the property when the tenancy commenced. This should include pictures of the fixtures and fittings and declarations that certain safety features are in their correct locations such as smoke detectors and Carbon Monoxide detectors. This could extend to show waste and recycling bins were present at the start of the tenancy.

Furthermore, effective management should also include periodic property inspections to ensure the property is being maintained and kept to a good standard of repair. Having both the inventory and the mid-term inspections signed and validated from the landlord and tenant shows good practices are being followed.

Avenues 1

The graph above shows the number of complaints received to the licensing team regarding disrepair and property standards throughout the five years of the licensing scheme. As expected, throughout 2019, the number of complaints received by the team reduced significantly by 48% as property standards were being improved through the programmed inspection regime.

Significantly, in 2022 the complaints regarding property standards increased and this trend was replicated in other areas, mainly due to the lack of maintenance carried out during the periods of national lockdown.

Avenues 2

The table above shows there was an increase in the number of complaints made regarding property standards in the first year of licensing in Phase 2. During this period the team were not inspecting properties due to COVID restrictions. However, there was an increased number of complaints made by tenants about property standards during this period. Generally, complaints have remained steady throughout the licensing scheme which is disappointing considering there is a greater level of scrutiny in licensing areas.

11. Partnership working - Operation Vienna

During designation of licensing in the Avenues the team have worked closely in partnership with Operation Vienna. The effectiveness of the partnership was improved as Northumbria Police were co-located with the Private Sector Housing team and this increases the effectiveness of the partnership from scheme implementation but mainly responding to criminality and antisocial behaviour.

During this time there has been a vast amount of partnership working to address ASB and reduce criminality within the area.

• the service of over 1500 Community Protection Warnings to tenants and residents in the Avenues for different behaviours associated with ASB
• the service of 24 Community Protection Warning Notices on tenants for different behaviours all associated with ASB
• an increase by the police in the use of enforcement powers in place available to deal with ASB and criminality
• accompanying licence holders to property visits to communicate with difficult tenants or situations resulting in behaviour moderation
• a number of joint meetings with licence holders, residents and tenants in relation to specific issues
• joint interviewing of offenders under the Police and Criminal Evidence Act 1984
• identification of cannabis cultivation, arrests made and dealt with through the criminal justice system
• three properties raided for the sale of illicit substances, arrests made and dealt with through the criminal justice system
• an injunction served to stop an individual entering a property after serious levels of ASB and disturbance
• more than 1200 police checks carried out on applicants, residents, and tenants to ensure conformance with scheme requirements
• the regular presence of licensing officers and police officers working in tandem has increased community confidence
• investigations and action taken in a more timely and robust manner to reduce the impact of ASB on the community
• increased number and regular multi-agency meetings between the team, housing providers and external partners
• closer monitoring of known offenders living in the area
• joint working with trading standards and Op Vienna to target other criminal behaviour affecting the Avenues in Bensham, including illegal motorbikes and illegal tobacco sales

12. Proactive waste initiative

Disappointingly, after six years of licensing over Phases 1 and 2, the most dissatisfaction about the area has always been around the state of the back lanes, bins being left out after bin collections, the amount of fly tipping, bin fires and rat complaints due to putrescible waste being present from overfilled bins, bags of side waste and bins that have been tipped over. This dissatisfaction is felt from landlords, residents and tenants alike.

The Private Sector Housing team know that waste, fly-tipping, noise and antisocial behaviour are the main causes of resident dissatisfaction in the Avenues. These are deep rooted, historical problems within Central Gateshead, and are not just prevalent in the licensing areas. The team have carried out a lot of intense work in the area over the duration of the licensing scheme to try and tackle waste and fly-tipping. This includes:

• Licence holder meeting - prior to a licence being granted, licence holders had a meeting with a licensing officer to discuss the conditions of their licence in detail. The prime purpose of this is to instil further understanding of the responsibilities of being a licence holder, but this also provides an opportunity to discuss the waste conditions in more detail and officers provide further advice and support if required to ensure future compliance.
• Every rented home was visited and inspected. During this visit, in addition to checking that housing conditions meet the minimum legal standard, yards and gardens are also inspected for any accumulations and the tenant/landlord requested to undertake any necessary action to remove/dispose of these legally. Occupiers and landlords have also been encouraged to utilise council services to dispose of their waste legally, with arrangements being made for this by officers using their tablets and assisting residents at the time of the visit.
• The tenant of every rented home has been advised of their waste responsibilities. This makes up approximately 65% of the tenure in the area. The 'tenant meeting' provides an opportunity for the team to build up relationships with tenants and information such as tenancy and community responsibilities are discussed. Tenants are advised of the correct use of recycling and household waste bins, bin days, council services available for bulky/special collections and the penalties for fly-tipping. Tenants are advised that it is an offence to place any items in the lane and they are asked to take items back into their yards if they are found out on the lane outside their back doors. The licensing team have provided valuable information to all tenants on good waste management practices as this is vital in controlling vermin and reducing litter within the area. The tenant meeting also provided an opportunity for officers to recognise or establish if there are any social, economic or other root causes in the household that may be contributing towards certain issues likely to lead to a future waste problem at the property, for example substance misuse, low income, unemployment, domestic violence, and so on. The team are regularly checking Council Tax records for changes in tenants and the tenant meeting will be repeated for new tenancies. This ensures that the information and advice does not get lost as soon as a new tenancy is granted.
• During the licensing scheme all bins were marked up with address stickers by officers during a tenant meeting to try and reduce bin theft.
• Stolen bins that have been found to be in the incorrect yards during property visits were returned to their rightful owner.
• Any accumulations of waste, fly-tips, contaminated bins were reported to the appropriate department for investigation/collection.
• If bins are missing from the household and were not provided at the start of the tenancy, landlords were asked to provide bins, and this was requested with the schedule of works. If they had gone missing mid-tenancy, tenants were encouraged to replace them. The team were also able to repurpose some abandoned/unclaimed bins that were left on the back lanes.
• There was a refuse fact sheet (PDF, 52 KB) produced for licence holders available on our webpages for landlords to provide to their tenants at the start of every tenancy. This fact sheet reinforces tenant responsibilities, bin days, correct use of bins and the services available for waste disposal. 

Due to ongoing dissatisfaction about the state of the rear lanes, in June 2023, the licensing team served a Community Protection Notice Warning (CPNW) to 660 properties in Phase 1 of the Avenues. Phase 1 was chosen for the waste intervention pilot as this area was suffering from the most waste management complaints. The CPNW included positive steps that all residents were expected to comply with to manage their waste effectively and take ownership of their bins. The team ensured they communicated effectively with residents and provided advice, support and plenty of opportunities to change any adverse behaviour that was detrimental to the area.

Approximately six months later, following a significant improvement to the area, a questionnaire was sent to all properties to determine the views of the residents on the improvements to the back lanes. The team received positive feedback from the questionnaires, with an agreement that the lanes were better and to continue the work. The feedback did suggest that the area would benefit from closed circuit television cameras (CCTV) to monitor fly tipping and tackle the issue of who was responsible.

The waste intervention was rolled out in Phases 2 and 3 of the Avenues so that there was consistency throughout the area. The team were recently successful in a funding bid and have managed to secure three CCTV cameras in the Avenues. These are allowing the team to monitor incidences of fly tipping and poor waste management. The team remain committed to tackling non-compliance with the CPNW, complaints of fly-tipping and poor waste management practices.

13. Household Support Fund

The Household Support Fund Scheme is a government scheme funded by the Department of Work and Pensions (DWP). Each local council decides how to use the fund in their local area. The fund consisted of a one-off payment to help residents who were struggling to afford household essentials including energy bills, food, and wider essentials. Officers in Private Sector Housing secured a housing support fund for 37 individual households in the Avenues area.

14. Conclusion

Gateshead Council have used selective licensing schemes as an effective policy tool to address specific criteria since 2007. The housing stock report that was completed in 2024 confirms that the private rented sector is growing year on year and the private rented sector now represents 17% of the housing tenure here in Gateshead.

At the time of designation in Avenues 1, the data collection confirmed that the area was experiencing a wide range of issues associated with low housing demand, property values, ASB and poor property conditions. It was considered that the implementation of the scheme could contribute towards the wider regeneration of the area, as well as improved property management standards. The aim was to raise standards within the private rented sector with a view to improving the overall social and economic conditions in the area to create a stable, strong, healthy and vibrant neighbourhood.

The Avenues provides the largest number of privately rented properties in a concentrated area than any other area across the borough. After five years of licensing the Avenues still suffers from persistent ASB, and complaints received are still higher than any other part of the borough. The properties have been improved in terms of disrepair, but the area is still transient, with landlords frequently selling and buying properties. The Avenues has experienced some positive outcomes, and the number of empty properties has reduced significantly over the term of the licensing schemes to 4% and it is now only slightly higher than the Gateshead average of 3.7%.

In terms of improving property standards through the inspection regime that is afforded through selective licensing, this level of monitoring and intense working arrangement cannot be maintained without a designated licensing scheme. Improving the economic and social issues in a neighbourhood cannot be achieved by short term actions and requires sustained interventions to improve all aspects of the Avenues. Interventions such as selective licensing require time to develop, time for improvements to filter through to the wider neighbourhood, and time to become self-sustaining. Even though there has been a substantial amount of intervention carried out over the past five years, the area is still suffering, and further work is required to ensure that improvements that have been made do not decline.