Guidance

Landlord and agent guide to the Housing Health and Safety Rating System (HHSRS)

Published 23 June 2026

Applies to England

This guidance provides an overview of the responsibilities of landlords and property-related professionals under the Housing Act 2004, Part 1: housing conditions.

1. Summary

1.1 What is the Housing Health and Safety Rating System?

The Housing Health and Safety Rating System (HHSRS) is a tool that is used to identify and assess risks to the health and wellbeing of people in their own home, whether rented or owned. It is based on the notion that all residential premises should provide a safe and healthy environment for any occupier or visitor.

Hazards will always be present in the home environment, but the risk posed by those hazards should be kept as low as possible. HHSRS is a thorough assessment process and uses guided decision-making to arrive at a final hazard score. Assessors will make judgements about levels of risk at a residential property. That level of risk is then used to guide decision making as to whether action is necessary to address hazards.

The HHSRS can be applied to all types of housing. It ensures a proportionate and evidence-based approach to assessment and enforcement which tackles the health impacts of poor housing.

1.2 How do the HHSRS and Awaab’s Law work together?

Awaab’s Law currently applies to social rented housing and requires social landlords to address all emergency hazards and all damp and mould hazards that present a significant risk of harm to tenants to fixed timeframes. Awaab’s Law will ultimately cover all the HHSRS hazards (except overcrowding).

Awaab’s Law is different to the HHSRS, however, as it is focused on the individual circumstances of the actual tenant rather than a notional ‘vulnerable’ occupant or visitor. An HHSRS assessment is not required under Awaab’s Law, but this HHSRS guidance will be useful for landlords to familiarise themselves with the revised list of HHSRS hazards as preparation for the extension of Awaab’s Law to more hazards.

We will consult in the coming months on how to apply Awaab’s Law to private rented housing.

2. Introduction

2.1 What has changed?

The HHSRS was first introduced under Part 1 of the Housing Act 2004 and has been reviewed and updated to make the system more accessible. Leading practitioners from RH Environmental Ltd, academics and legal advisors reviewed aspects of the system, made recommendations to government, and a number of significant changes have been made:

a) The number of hazards has been reduced from 29 to 21, with several hazards amalgamated to simplify the assessment process. For example, falls on level surfaces and falls associated with baths and showers have been combined into a new hazard titled ‘falls on level surfaces.’

b) Suggested baseline indicators have been introduced. They act as a checklist of reasonable standards that can be expected within a home to help identify deficiencies that should be assessed.

c) The assessment process has been simplified by grouping the sixteen numerical likelihood of harm categories into 4 bands, ranging from very likely to very unlikely.

d) Category 1 hazards (those scoring over 1,000) are all high risk, as before. Category 2 hazards (those scoring under 1,000) are now sub-divided into low risk and moderate risk.

e) A refreshed set of case studies (previously called worked examples) has been produced to help illustrate, and benchmark, how HHSRS assessments should be undertaken.

2.2 What guidance is there on the HHSRS?

For further information, landlords and property agents should refer to the statutory guidance that local councils must follow when undertaking assessments and making enforcement decisions. The relevant guidance documents are listed below.

The Housing Health and Safety Rating System operating guidance

The statutory Housing Health and Safety Rating System operating guidance (hereafter referred to as the operating guidance) on how to carry out HHSRS assessments is divided into 3 parts:

• ‘The Housing Health and Safety Rating System operating guidance (part 1): An introductory guide’ which provides introductory information and guidance on the HHSRS inspection and assessment process.
• ‘The Housing Health and Safety Rating System operating guidance (part 2): A technical guide for assessors’ which provides technical information to support the HHSRS inspection and assessment process.
• ‘The Housing Health and Safety Rating System operating guidance (part 3): A supplementary guide for the hazard of fire and explosions’ which provides additional technical information to support the HHSRS specifically in relation to the hazard of Fire and Explosions.

The Housing Health and Safety Rating System enforcement guidance

The statutory Housing Health and Safety Rating System enforcement guidance (hereafter referred to as the enforcement guidance) sets out the key principles and goals of local council enforcement. It also describes each of the enforcement options available to the local council.

The Housing Health and Safety Rating System case studies

A new suite of case studies has been published (previously referred to as worked examples). The case studies demonstrate how the assessment process works. For each scenario, they explain how the likelihood and spread of harm outcomes have been scored, give the overall hazard score, and suggest remedial works to reduce the risk to an acceptable level. They are used by assessors to benchmark their own assessments. They also help landlords and property agents understand the assessment process.

The Housing Health and Safety Rating System tenant guide

This is guidance which is aimed at tenants. It provides a summary of the HHSRS, how it works and how the system is enforced.

The Housing Health and Safety Rating System landlord and agent guidance (this guidance)

This guidance is aimed at landlords and property agents. It provides a brief introduction to the HHSRS, explains how the system works, how hazards are assessed and how the system is enforced.

3. How does HHSRS assessment work?

3.1 How is an HHSRS assessment carried out?

There is no requirement for landlords and property agents to become trained HHSRS assessors, but landlords need to keep their homes free of Category 1 hazards, which will require a degree of familiarity with the HHSRS and what a Category 1 hazard looks like. Having an understanding of the system can help them to manage properties in a way that considers risk reduction, which will help to protect occupant health and wellbeing and improve co-regulation with local councils.

For a trained assessor, carrying out an HHSRS assessment involves a 10-step process, as set out in the operating guidance. Within this guidance document, we have provided a simpler condensed version, which we hope landlords and property agents will find useful.

3.2 How are deficiencies identified?

The assessment starts with a full inspection of the property, including any garden, yard or external structure. The assessor is looking for any design, layout, repair or maintenance issues which may pose a risk to the health and safety of any occupiers or visitors.

During their inspection, the assessor will have regard to the baseline indicators, which are contained in the operating guidance. The baseline indicators are broad in scope, ranging from drainage to fire safety and noise to pest management. While meeting these baseline indicators may not eliminate all risks, they help in addressing common housing deficiencies; anything that does not comply with the baseline indicators is a deficiency that needs to be assessed. A baseline indicators checklist can be found in Appendix A. The complete list of baseline indicators can be found in Appendix 1 of the operating guidance.

3.3 How are hazards determined by an assessor?

(Operating guidance part 2) For each deficiency identified, the assessor must decide which hazards they relate to. The full list of 21 hazards is set out below.

A house without a properly installed heating system in good working order would be classed as a deficiency associated with several hazards. For example, the difficulty of keeping the property warm contributes to the hazard excess cold. Inadequate heating will also contribute to damp and mould.

3.4 How is the likelihood of harm assessed?

Once the assessor has identified any deficiencies and selected the relevant hazard, they must now assess the likelihood of harm requiring medical intervention over the next 12 months. This requires something more serious than a minor scratch or bruise.

The assessor must consider the likelihood of harm for someone in the most vulnerable age group rather than the actual occupant. The vulnerable group refers to an age group of individuals who are most susceptible to the harm outcomes from the hazard in question. For example, someone aged 65 or over is more likely to fall down the stairs. This is because assessing a house with the most vulnerable persons in mind ensures that the space is made safe not just for the current tenants, but for all potential occupants or visitors. The only exception to this is the assessment of “overcrowding and lack of living space” which determines whether the house is suitable for the current household.

Part 2 of the operating guidance contains a detailed profile for each hazard. It includes an average likelihood of harm for different property ages and types and lists factors that influence the likelihood of harm.

The assessor will use their professional judgement combined with the operating guidance to decide whether the likelihood of harm is higher or lower than the national average.

To ensure consistency, assessors are encouraged to benchmark their assessment against a set of HHSRS worked examples that show how different scenarios are scored. Landlords and property agents can also look at the case studies to see how different scenarios are scored.

3.5 How is the severity of harm assessed?

If the assessor has identified a deficiency, decided which hazard(s) it relates to and assessed the likelihood of harm over the next 12 months, the next part of the process is to assess how serious the harm is likely to be when an incident occurs. For this purpose, there are four classes of harm:

• Moderate harm – e.g. broken finger, slight concussion, or regular serious coughs or colds.
• Serious harm – e.g. sleep disturbance, chronic severe stress or mild heart attack
• Severe harm – e.g. asthma, mild stroke or serious fracture.
• Extreme harm – e.g. lung cancer, paralysis below the neck or death.

There could be a range of different outcomes from a hazardous incident across these classes, referred to as the spread of harms. For every type of hazard part 2 of the operating guidance gives national average spread-of-harm outcomes based on statistical modelling of hospital admissions and other data.

The assessor will decide whether to use the national average spread of harm outcomes or change them to reflect the situation being assessed. For many hazards such as excess cold, the spread of harm will often remain unchanged.

Assessors must use information relevant to the scenario being assessed to change the spread of harm outcomes when justified. For example, for the hazard Falls Between Levels the national average for extreme harm is between 0 and 0.5%. If the deficiency is a large, unsecured window with a low sill height in a fifteenth-floor flat, the risk of extreme harm for a young child falling from the window will be considerably higher than the national average. In this scenario, it would be important to increase the extreme harm percentage and decrease the moderate harm percentage to accurately reflect this.

3.6 How is the hazard score calculated?

In this final part of the assessment process, the likelihood and spread-of-harm scores are put into a mathematical formula to calculate the hazard score. A separate score is produced for each hazard.

The size of the score indicates the level of risk associated with each hazard. Scores of between 0 and 999 (low and moderate risk) are classified as Category 2 hazards. Scores of 1,000 or more (high risk) are classified as Category 1 hazards.

As each hazard is scored separately, it is possible for a property to have a mixture of Category 1 and 2 hazards at the same time.

Worked example – the lack of a properly installed heating system in a single-family house constructed between 1920 and 1945. The national average likelihood of harm for the excess cold hazard in all properties of this age is 1 in 500. Without a fixed heating system, this property will be considerably worse than the national average for the property age and type.

In this case, the assessor has determined that the likelihood of harm over the next 12 months in this scenario is far higher than the national average. They determine that the likelihood is 1 in 10, which falls into the ‘likely’ band. The assessor decides not to change the average national spread-of-harm outcomes. Based on this information, the mathematical formula produces a score of 31,145. This score represents a high risk, it is a Category 1 hazard, and the local council has a duty to take action. Information about HHSRS enforcement options and how the local council assesses the most appropriate course of action is given in Part 5.

4. How should a property be managed?

The HHSRS seeks to identify and address the health impacts of poor housing so that homes provide a safe and healthy environment that is free from hazards. The HHSRS assessment methodology might seem daunting but managing property effectively doesn’t have to be.

It is important that rented homes are well managed and that any repair and maintenance work is promptly addressed. This should improve tenant satisfaction and reduce the need for local council enforcement intervention and the number cases that are brought before the Housing Ombudsman. Furthermore, the overall costs incurred maintaining properties should be reduced as disrepair would be remedied swiftly before more costly work is required.

Private landlords should consult the government’s How to let guidance for more information on managing their rented property as well as other guidance at Rented housing sector.

Social landlords should consult the government guidance at Council housing and housing association.

5. How do local councils take enforcement action?

The HHSRS is used by local councils when they take enforcement action under part 1 of the Housing Act 2004. They will employ environmental health officers (EHOs) or other appropriately trained officers to do this.

Local councils can inspect any property being used for residential purposes to determine whether action should be taken. Inspections are often arranged following a complaint about a health and safety risk within a home from the tenant or a neighbour. Referrals can also be made by other agencies such as children’s services, adult social care, the police or GP surgery. Some local councils carry out proactive inspection programmes, which could be part of an area improvement initiative or linked to a property licensing scheme.

Local councils have powers to inspect all rented properties but cannot take statutory enforcement action against themselves in relation to their own housing. Instead, a council tenant can lodge a formal complaint, contact their ward councillor, or contact the Housing Ombudsman to get the matter resolved. Local councils must carry out inspections of their own properties as a result of a complaint or their review of housing conditions. Local councils will also still be expected to use the HHSRS to assess the condition of their housing and to ensure that it meets the Decent Homes Standard which requires that homes are free of any Category 1 hazards.

5.1 Can the local council inspect my property?

Yes. The Renters’ Rights Act 2025 amends section 239 of the Housing Act 2004. It removes the requirement to give 24 hours’ prior notice to the owner of qualifying residential premises within the meaning of section 2B and replaces it with a duty to notify the owner within a reasonable period of time after entry takes place. The act also inserts an option for an occupier to waive their right to 24 hours’ prior notice of entry under section 239 Housing Act 2004.

If access to the property has been refused or the property is unoccupied, the local council can apply for a warrant from the magistrates’ court. A court warrant includes the power to enter by force (if necessary). Police officers will often accompany council officers in executing a warrant, to ensure there is no breach of the peace.

5.2 Can the local council ask me to produce documents?

The local council can serve a legal notice under section 235 of the Housing Act 2004 requiring a ‘relevant person’ to provide specified documents that they have in their possession which the local council may need to undertake their functions under Parts 1 to 4 of the Housing Act 2004 and to investigate an offence committed under those Parts in relation to any premises. A relevant person includes (but is not limited to) a landlord and property agent.

The local council can ask for any document reasonably required for exercising their functions under the HHSRS (and other housing powers), for example, the tenancy agreement and relevant safety certification. Documents must be provided to the local council at a specified time and place contained within the notice.

Failing to produce documents without a reasonable excuse is a criminal offence. For example, anyone failing to produce documents is liable to a fine not exceeding level 5 on the statutory scale, and anyone who deliberately destroys or alters a requested document can be subject to an unlimited fine if tried in the Crown Court. Landlords and property agents should ensure they have systems in place to respond promptly to any such formal requests. If a document is not in the landlord’s possession or does not exist, it is important to explain to the local council why it has not been provided.

5.3 What will the local council do after an HHSRS assessment?

Once an HHSRS assessment has been completed, the local council will decide whether to take enforcement action. For Category 2 hazards (low or moderate risk), the local council has discretion whether or not to take action. Alternatively, they may decide no action is required. For Category 1 hazards (high risk), the local council must take action.

When deciding the most appropriate course of action, the local council must have regard to the statutory operating guidance and enforcement guidance. They will also consider their own housing, homelessness and other relevant strategies, and may take into account the views of any occupants.

Once a decision has been made, the local council must prepare a statement of reasons explaining their decision to take a particular course of action. A copy must accompany each notice or order that is served.

Each enforcement option is summarised below:

• Hazard awareness notice – An advisory notice to advise of the existence of either a Category 1 or 2 hazard that does not legally require any action to be taken (given that it is not a local land charge). It merely details the local council’s reason for serving the notice, the nature of the hazards, identifies deficiencies giving rise to hazards and recommends practical and appropriate remedial action to be taken. This option is more commonly used for less serious hazards where the local council is confident that the owner or landlord will complete the appropriate remedial action within a reasonable timescale. This option might also be appropriate for empty properties, dependant on the local council’s empty homes strategy.

• Improvement notice – A formal notice that requires the recipient to undertake remedial action to reduce or eliminate one or more identified hazards. It must allow at least 28 days for the work to start and state the date by which the work must be completed. This option might be appropriate to address an excess cold hazard caused by the lack of a properly installed heating system in good and safe working order. At a minimum, any remedial work must ensure that the hazard ceases to be a Category 1 hazard. It is an offence not to comply with an improvement notice without reasonable excuse.

• Prohibition order – An order that prohibits use of part or all of the property or restricts occupation by particular numbers or descriptions of people. The order comes into force 28 days after it is made under section 24 of the Housing Act 2004. This option might be appropriate where the conditions present a serious threat to the health and safety of the occupants and remedial work is impractical or cannot be carried out whilst the tenant is living there.

• Demolition order – This option remains available under Part 9 of the Housing Act 1985 but only in relation to Category 1 hazards where demolition is the most appropriate course of action. For example, a demolition order might be considered appropriate where the property is at high risk of structural collapse and/or the site is due to be redeveloped.

• Clearance area – Under section 289 of the Housing Act 1985, if the local authority is satisfied in relation to any area, that each residential property contains a Category 1 hazard, and that other buildings (if any) in the area are dangerous or harmful to the health and safety of inhabitants of the area, they can declare that area a clearance area, as a course of action, in relation to the hazard or hazards for the purposes of section 5 of the Housing Act 2004. This option might be considered appropriate if the area is in a very poor condition or has low demand for housing, and redevelopment of the area is considered the most appropriate course of action.

There are 2 other enforcement options that can only be used to deal with Category 1 hazards that present an imminent risk of serious harm to the health or safety to any of the occupiers of the property or any other residential property:

• Emergency remedial action – The local council can take emergency remedial action where there is an imminent risk of serious harm to the health or safety to any of the occupiers, and it is necessary to carry out immediate work to make the property safe provided there is no management order in force. This would apply, for example, if the landlord is unable or unwilling to carry out tasks such as urgent electrical work to make safe exposed cables in a child’s bedroom or repairs to a defective gas boiler flue causing products of combustion to discharge back into the property.

• Emergency prohibition order – The local council can make an emergency prohibition order only where there is an imminent risk of serious harm to the health or safety to any of the occupiers and it is necessary to prohibit use of part or all of the property, or restrict occupation by particular numbers or descriptions of people provided there is no management order in force. For example, an order could prohibit use of a bedroom in the loft where the only access is via a rickety ladder with loose and missing rungs. An emergency prohibition order comes into force on the day it is made.

In addition to the emergency options set out above, Awaab’s Law came into force in the social rented sector on 27 October 2025. This means all social landlords must repair all emergency hazards within 24 hours and fix dangerous damp and mould within fixed timescales.

Whenever enforcement action is taken and a legal notice or order served, it is important for the landlord and property agent (if any) to study the document carefully and understand what action is required and by when. A legal notice should never be ignored: non-compliance is a criminal offence.

Prohibition orders and improvement notices can be suspended in appropriate cases. Where a suspended notice or order is made, it must specify the event or time that triggers the end of the suspension. For example, if the occupants are not members of a vulnerable group, they refuse to have work carried out and they are not considered to be at imminent risk, the action could be suspended until they vacate the property. If a notice or order is suspended, the local council must review the suspension at least every 12 months to decide if the suspension should be lifted or replaced by a different form of enforcement action.

When an improvement notice, or prohibition order has been served and is operative, it is registered as a local land charge until it has been revoked. Improvement notices or prohibition orders which are suspended where there is no outstanding appeal are also local land charges (section 37 Housing Act 2004).

Where a prohibition order is served preventing occupation of a dwelling, the tenants will need to be rehoused. Whilst the landlord might be able to offer suitable alternative accommodation, they have no legal responsibility to re-house their tenants as a result of a prohibition order being served. The local council does have a duty to assist displaced occupants in certain circumstances, and if suitable alternative reasonable accommodation is unavailable to those displaced occupants, under section 39 of the Land Compensation Act 1973 and various homelessness duties under Part 7 of the Housing Act 1996. The displaced occupants may also be eligible for a home loss payment in certain circumstances, under section 29 of the Land Compensation Act 1973. For example, a compulsory purchase of the property.  

There is no requirement to take just one enforcement option in relation to a property. Different hazards might require different solutions. So, for example, it might be appropriate to carry out emergency remedial action to resolve a serious electrical hazard, make a prohibition order to restrict use of a very small bedroom and serve an improvement notice to require home security to be improved. However, only one course of action can be taken in respect of each hazard. The local council cannot carry out emergency remedial action due to electrical safety hazards and serve an improvement notice for the same hazard.

A notice does not simply disappear if a property is sold. If someone purchases a property where an improvement notice is in force, the notice will remain in effect. On the date that ownership changes, the person liable for compliance with the improvement notice will change automatically from the old to the new owner. This highlights the importance of carrying out local land searches to identify any outstanding notices. Similar arrangements apply if a landlord or property agent becomes the licence holder of a property where an improvement notice was served on someone else and has not yet been revoked (section 19, Housing Act 2004).

When the hazards giving rise to an improvement notice or prohibition order have been resolved, the recipient of the notice or order can contact the local council and request that it is revoked. Likewise, an application can be submitted to the local council to vary the contents of a notice or order. If the local council refuse to vary or revoke a notice or order, they will serve a notice giving the reasons for their decision and explaining the right of appeal.

5.4 Does enforcement action have a financial consequence?

When an enforcement notice is served, the local council can charge a fee to recover costs reasonably incurred in taking enforcement action. The charge can include costs associated with inspection, deciding what action to take, and the preparation and service of enforcement notices.

The usual approach taken by local councils is to charge a flat fee. However, local councils have discretion to charge no fee or to calculate the fee according to the amount of time spent. The only stipulation is that any charge must be reasonable.

A local council can also recover expenses reasonably incurred when carrying out emergency remedial action under section 49 of the Housing Act 2004. In such a scenario, the local council would serve a formal demand for expenses.

5.5 Can I appeal against enforcement action?

When a local council serves a legal notice or order, the recipient must be told they have the right of appeal to the First-tier Tribunal (Property Chamber). The only exception is for a hazard awareness notice, which has no right of appeal as it requires no action to be taken.

Before lodging an appeal, it is worth exploring whether the matter can be resolved through negotiation. It is far quicker, simpler and more cost-effective to reach agreement through negotiation rather than by pursuing an appeal.

For example, if the landlord wants to propose alternative remedial work, or extend the time period for compliance to accommodate the tenant’s wishes, the legislation enables the local council to vary an improvement notice.

Informal negotiations can be undertaken by contacting the case officer whose contact details will be on the notice or covering letter. Provided negotiations are concluded before the deadline to appeal expires, the landlord retains their right of appeal.

There are strict time limits on submitting appeals. For example, an appeal must be lodged within 28 calendar days of an improvement notice being served and appeals to most other types of enforcement action must be lodged within 28 days. When taking enforcement action, the local council will explain the deadline for lodging an appeal. Whilst the tribunal has discretion to allow late appeals, they will only do so if they are satisfied there was a good reason for the delay.

If an appeal is lodged against an improvement notice or prohibition order, the notice or order is suspended until the outcome of the appeal, or until the appeal is withdrawn. If an appeal is made against an emergency prohibition order, the order remains in force pending the outcome of the appeal.

Whilst there is no right of appeal against the financial charge for taking enforcement action, the tribunal can make an order reducing, quashing or requiring repayment of the charge if they allow an appeal against the underlying notice or order.

An appeal can also be made against the decision to impose a financial penalty, or the amount of the penalty, if a penalty is imposed for failing to comply with an improvement notice.

An appeal is made by completing a prescribed application form, providing specified supporting documents and sending them to the tribunal, which operates from five regional offices. There is no charge for launching an appeal.

During the appeal process, both parties can engage constructively and seek to negotiate a settlement. This could result in a decision to withdraw the appeal or settling the matter via a consent order. Subject to agreement by both parties, the tribunal can also facilitate a mediation hearing.

Generally, each party is responsible for paying their own costs. The tribunal can only make a costs award for wasted costs, or situations where a person or their representative has acted unreasonably in bringing, defending or conducting the proceedings. For example, by causing unnecessary delay. The tribunal may order one party to reimburse the fee for the application to appeal to another party.

Further guidance on the appeal process along with the forms needed to lodge an appeal are available from the tribunal website.

Landlords and property agents unfamiliar with the tribunal appeals process may wish to seek independent legal and/or professional advice.

5.6 What might happen if I don’t comply?

Prosecution or financial penalty

Non-compliance with a legal notice or order is a criminal offence that can result in various enforcement sanctions. Offences include failing to comply with the start and completion dates on an improvement notice or permitting a property to be used in contravention of a prohibition order or emergency prohibition order.

The local council will undertake an investigation to determine beyond reasonable doubt that an offence has occurred. The investigation process could involve inspecting the property, taking witness statements from tenants and inviting the landlord and/or property agent to a PACE^{[footnote 1]} interview.

If a summons is issued and the case proceeds to a magistrates’ court, the court can impose an unlimited fine plus court costs and a victim surcharge if someone is found guilty.

Alternatively, the local council can impose a civil financial penalty of up to £40,000 for failure to comply with an improvement notice. Before issuing a financial penalty, the local council will issue a notice of intent to impose the penalty and allow 28 days, beginning with the day after that on which the notice was given, for the person to make any written representation before finalising their decision.

Whilst there is a defence of ‘reasonable excuse’, the onus is on the person to demonstrate to the local council, the court or tribunal how they took reasonable steps to comply. For example, if the occupier refuses access for the work to be done, the person served with an improvement notice could apply for the timescale on the notice to be varied, or request that the notice is suspended until the current tenancy ends (section 16, Housing Act 2004). Alternatively, an application can be made to the magistrates’ court for a court order requiring the occupier (or owner) to permit access for the work to be done (section 35, Housing Act 2004).

For certain offences such as failing to comply with a prohibition order, obstructing an authorised council officer, or providing the local council with false or misleading information, no civil financial penalty can be issued. The only sanction is prosecution in the magistrates’ court.

Other sanctions associated with non-compliance

• Works in default: If an improvement notice is not complied with, the local council can undertake the work themselves with or without agreement from the person on whom the notice was served. The local council can also recover expenses reasonably incurred in undertaking the work (section 31 of Schedule 3 to the Housing Act 2004.

• Rent repayment orders: If the landlord has committed an offence of failing to comply with an improvement notice (section 30 of the Housing Act 2004) or prohibition order (section 32 of the Housing Act 2004), either the tenant or the local council can apply to the First-tier Tribunal (Property Chamber) for a rent repayment order within 12 months of the offence being committed as provided for by section 40(3) of the Housing and Planning Act 2016. A tenant can apply if they have paid the rent themselves. The local council can apply if the rent, or part of the rent, has been paid by housing benefit or Universal Credit. The maximum award is equivalent to 12 months’ rent, limited to the period during which the landlord contravened the improvement notice or prohibition order.

• Property licensing: If a landlord or property agent contravenes an improvement notice or prohibition order, this would be taken into account by the local council when deciding whether they are a fit and proper person to be the licence holder or manager of a licensed property. Failure to meet the fit and proper person test could lead to a licence application being refused, a shorter licence being issued, or an existing licence being revoked.

• Database of rogue landlords and property agents: If a landlord or property agent is convicted of failing to comply with an improvement notice or prohibition order, or receives two or more civil financial penalties within 12 months, the local council can take steps to add them to the national database of rogue landlords and property agents. Before a person is added to the database, the local council must inform them, and they have the right of appeal to the First-tier Tribunal.

• Redress via the Private Rented Sector Landlord Ombudsman: Private tenants will be able to escalate their complaints to the Ombudsman if the tenant believes that their landlord has failed to resolve the issue themselves. This may relate to property standards, repairs, maintenance, or unacceptable landlord behaviour. The Ombudsman will have strong powers to ‘put things right’ for tenants, including being able to compel a landlord to take or cease taking an action, issue an apology or explanation and award compensation. Local councils will continue to take enforcement action to address regulatory breaches. Complementing this, the Ombudsman will make sure complaints are resolved fairly, and tenants receive a remedy for any harm, inconvenience or distress caused by the landlord’s failure to address issues adequately when asked to do so.

• Banning Order: In the most serious cases, a landlord or property agent who has been convicted of certain offences can be banned from letting or managing properties in the private rented sector. A local council can apply to the First-tier Tribunal for a ban which must be for at least 12 months. There is no maximum length of ban.

5.7 Power to impose a civil penalty for Category 1 hazards

In addition to taking one of the enforcement actions listed above, where the premises in question are qualifying residential premises (as defined by section 2B of the Housing Act 2004) other than the common parts of a building containing one or more flats, section 6A of the Housing Act 2004 gives local councils the option, when first taking action, of imposing a maximum penalty of £7,000 on the ‘responsible person’ if, in their opinion, it would have been reasonably practicable for that person to secure the removal of the hazard. This is set out in the enforcement guidance.

6. How does the HHSRS fit alongside other housing legislation?

6.1 What are my obligations?

The HHSRS is intrinsically linked to other legal requirements relating to the condition and management of homes of all tenure and should be considered alongside these.

Section 11 of the Landlord and Tenant Act 1985 places an obligation on landlords to ensure the exterior and structure of the property is kept in good repair and that installations for supplying water, gas, electricity, heating and hot water are in good working order and in good repair.

Section 9A of the Landlord and Tenant Act 1985 places a further obligation on landlords by implying a covenant into certain types of tenancy agreements for the property to ensure it is fit for human habitation at the time the tenancy is granted and throughout the duration of the tenancy. Section 9A applies to tenancies where the term of the tenancy is less than 7 years, or if it is a secure, assured or introductory tenancy for a fixed term of 7 years or more. When determining if a property is unfit, it takes into account the repair, stability, freedom from damp, internal arrangement, ventilation, water supply, drainage and sanitary conveniences, facilities for the preparation and cooking of food and the disposal of wastewater and any prescribed hazards under the HHSRS.

As this demonstrates, the presence of hazards can put landlords in breach of this requirement. If the courts find a property is not fit for human habitation, they can order the landlord to carry out improvements to the property and pay compensation to the tenant. For more information see the Guide for landlords: Homes (Fitness for Human Habitation) Act 2018.

There are prescriptive requirements relating to the condition, management and safety of rented homes. Some examples have been listed below:

• Gas – All gas appliances and installations must have an annual gas safety check by a suitably qualified Gas Safe Registered engineer. This is a legal requirement under the Gas Safety (Installation and Use) Regulations 1998. A copy of the Landlord Gas Safety Record must be given to your tenants within 28 days of the annual gas safety check. A copy of the latest gas safety check should also be provided to tenants when they move into the property. This is enforced by the Health and Safety Executive. Regular gas safety checks help to minimise risks associated with fire and explosions, and chemical and combustion related air pollution.
• Electricity – The electrical installation must be checked by a competent electrician once at least every 5 years. A copy of the EICR must be given to your tenants within 4 weeks of each electrical safety check. If the test certificate is unsatisfactory, remedial work must be completed within 28 days. Regular electrical safety checks help to minimise risks associated with electrical hazards.
• Smoke and carbon monoxide alarms – All rented properties must have a working smoke alarm fitted on each storey containing living accommodation. Carbon monoxide (CO) alarms must also be installed in rooms containing a fixed combustion appliance (excluding gas cookers). Providing and maintaining smoke and CO alarms helps to minimise risks associated with fire and explosions, and chemical and combustion related air pollutants.
• Energy – All private rented homes require an energy performance certificate, except where individual tenants in shared accommodation have separate tenancy agreements. Landlords are not allowed to rent out the most energy inefficient properties with an EPC rating of F or G unless they have an exemption and have registered the property as exempt (this applies to both new and existing tenancies). Upgrading the energy efficiency of private rented homes helps to minimise risks associated with excess cold, and damp and mould.
• Licensing – In some cases, landlords need a mandatory HMO, additional or selective licence for their property. Licence conditions relate to the use, management and occupancy of the property. HMO licence conditions can also relate to property condition and contents, which provides some overlap with the HHSRS. Licensing private rented homes can help to minimise risks associated with poor housing conditions.
• Awaab’s law – Awaab’s Law came into force in the social rented sector on 27 October 2025. This means all social landlords must repair all emergency hazards within 24 hours and fix dangerous damp and mould within fixed timescales.

More information about landlord obligations can be found in the government guide How to let.

Appendix A: Baseline indicators self-assessment

Baseline indicators are a list of key building measures that help to ensure the protection of the health, safety, and wellbeing of occupiers. While meeting these baseline indicators may not eliminate all risks, they help to address common housing deficiencies. It may not always be feasible to meet all, or part, of those baseline indicators, or they may not reasonably apply to the property being assessed. In these circumstances, alternative or additional works may be necessary.

The baseline indicators are designed in such a way that they can be applied to most property types and ages. There may, however, be exceptions to this; for example, where a baseline indicator cannot be met due to a lack of listed building consent or when a non-traditional building is being assessed.

To improve accessibility, the baseline indicators have been abbreviated into a self-assessment checklist for landlords and property agents in this appendix. Anything regarded as less than the baseline is generally considered to be a deficiency and a standard below which a rented property may be deemed to be unsuitable.

There is no obligation to conduct a baseline indicator self-assessment on your property. However, such a self-assessment does provide a useful mechanism for landlords and agents to assess property conditions and give tenants confidence in the standard of rented accommodation being provided.

The complete list of baseline indicators can be found in Appendix 1 of the Operating Guidance: Part 2.

Baseline indicators checklist

Address of property
Date of inspection
Inspector
Persons present

1	Structural condition	Minimum standard met? (yes, no, not applicable)	Comments and observations
1.1	External and internal components of the dwelling structure in a proper state of structural repair, and safe to use.	Yes No	Comments:
1.2	Asbestos-containing material free from defects and maintained to prevent release of fibres. Asbestos register maintained.	Yes No	Comments:

2	Drainage	Minimum standard met? (yes, no, not applicable)	Comments and observations
2.1	Drainage systems properly installed and maintained in good condition, with access points provided to clear blockages.	Yes No	Comments:
2.2	Waste pipes properly connected to an approved sewage disposal system. No toilet waste pipe connected to a greywater system.	Yes No	Comments:
2.3	Adequate provision and capacity for the drainage of surface and foul water. All drains and gullies covered by a suitable grille.	Yes No	Comments:
2.4	All rainwater pipes connect and drain effectively into the drainage system with access points to clear blockages.	Yes No	Comments:
2.5	Access covers to drainage and other services flush-mounted and marked to indicate purpose.	Yes No	Comments:

3	Plumbing System	Minimum standard met? (yes, no, not applicable)	Comments and observations
3.1	A water supply safe to drink, controllable by the household, and of adequate flow provided to all fixtures.	Yes No	Comments:
3.2	An adequate supply of heated running water to sinks, baths and showers with a maximum temperature 45° C at point of delivery.	Yes No	Comments:
3.3	The WC cistern overflow discharges externally, unless designed by the manufacturer to discharge internally.	Yes No	Comments:

4	Sanitary Facilities – Bathroom 4.1 A private bathroom equipped and provided for the sole use of that dwelling with the following:	Minimum standard met? (yes, no, not applicable)	Comments and observations
4.2	A suitably located toilet in good working condition, sealed to the waste pipe, secure, and properly connected to the dwelling’s water supply and sewage system.	Yes No	Comments:
4.3	A dedicated wash-hand basin, suitably located, in good working condition, secure, and properly connected to the heated and unheated water supply and waste pipe.	Yes No	Comments:
4.4	A fixed bath or shower in good working condition, properly connected to the heated and unheated water supply and waste pipe.	Yes No	Comments:
4.5	Where a shower is fitted, the step into the shower tray not greater than 150 mm, and all waste outlets and connections sealed and free from defects.	Yes No	Comments:
4.6	Constant supplies of heated and unheated water to all wash-hand basins, baths and shower facilities, connected to the sewage system with waste trap, and in good working order.	Yes No	Comments:
4.7	Bathroom floors, and walls above the bath (300 mm) or shower (1800 mm) with cleanable, non-absorbent, and water-resistant surfaces, and showers fitted with a screen or curtain.	Yes No	Comments:
4.8	Ventilation provided by mechanical extraction ducted to the outside of the building.	Yes No	Comments:

5	Sanitary Facilities - Kitchen 5.1 A kitchen or dedicated adequate space for the storage, preparation and cooking of food which includes the following:	Minimum standard met? (yes, no, not applicable)	Comments and observations
5.2	A kitchen sink with draining area, in good working condition, properly sealed, and properly connected to heated and unheated water supplies and waste outlet. Any provided dishwasher and components of the sink in good working condition and properly connected.	Yes No	Comments:
5.3	Sufficient work surface for food preparation, and storage space for food and equipment, of sound construction with surfaces impervious to water, smooth, and cleanable.	Yes No	Comments:
5.4	A 4-ring hob (or 2-ring in bedsits) with oven and grill, properly installed with all necessary connections for safe and efficient operation, and maintained in good working condition.	Yes No	Comments:
5.5	Where an oven or hob is not provided, a dedicated space with connection to gas or electric compliant with relevant regulations.	Yes No	Comments:
5.6	Effective and safe removal of cooking fumes and moisture laden air to the external air by means of a cooker hood or extractor fan.	Yes No	Comments:
5.7	If provided, a fridge and freezer or fridge-freezer in good working condition, of sufficient size to store occupants’ food, and able to maintain refrigeration of 1o C to 5o C and freezer below -18o C.	Yes No	Comments:
5.8	If refrigerator not provided, adequate space and connections for installation and operation provided.	Yes No	Comments:
5.9	The kitchen floor in good condition, with a sealed, water-resistant, non-absorbent, and cleanable surface.	Yes No	Comments:

6	Clothes drying facilities	Minimum standard met? (yes, no, not applicable)	Comments and observations
6.1	Where no external clothes drying space, a dryer or dedicated space to install a dryer, or access to a communal dryer facility provided.	Yes No	Comments:

7	Space	Minimum standard met? (yes, no, not applicable)	Comments and observations
7.1	A bedroom is not the only passageway to the only bathroom in a dwelling unit with more than one bedroom.	Yes No	Comments:
7.2	A bathroom or toilet room is not the only passageway to any habitable room, hall, basement, or the exterior of the dwelling.	Yes No	Comments:
7.3	Sleeping accommodation Occupancy; Min floor area of room One person under 10; 4.64m2 One person aged 10 years or over; 6.51m2 Two persons; 10.22m2 Max occupancy; Min bedroom number Two persons; 1 Four persons; 2 Six persons; 3 Eight persons; 4	Yes No	Comments:
7.4	Habitable rooms have a ceiling height of at least 2100mm, and for rooms with sloping ceilings at least one-half of the floor area must meet this. If any part of a room has a ceiling height lower than 1500mm, its floor area shall be excluded when calculating the floor area. Basement and subfloor rooms are excluded.	Yes No	Comments:

8	Internal doors	Minimum standard met? (yes, no, not applicable)	Comments and observations
8.1	Internal doors are functional, in good repair, provide a sufficient barrier to smoke and fire, and glazing performs safely to collision. Bathroom and WC doors have locks and do not contain clear glass.	Yes No	Comments:

9	External space	Minimum standard met? (yes, no, not applicable)	Comments and observations
9.1	External space and surrounds in good repair, even and well drained. Accessways have adequate lighting, and do not present a falls risk. Guarding necessary where drops of more than 300mm and high risks of falling.	Yes No	Comments:

10	Noise	Minimum standard met? (yes, no, not applicable)	Comments and observations
10.1	All new flats/flat conversions must, and older conversions should, comply fully, with current building regulations in respect of sound insulation.	Yes No	Comments:
10.2	The noise level inside the dwelling caused by steady external noise sources must not exceed: 1. 07:00 to 23:00 - 40dB LAeq, 16hr in the living room and bedroom area, and 45dB LAeq, 16hr in the dining room / area; and 2. 23:00 to 07:00.- 35dBLAeq, 8hr in the bedroom	Yes No	Comments:

11	Security	Minimum standard met? (yes, no, not applicable)	Comments and observations
11.1	Adequate external lighting provided to all means of access providing good visibility when there is no daylight.	Yes No	Comments:
11.2	Access doors of external grade with adequate locks, openable from the inside without a key. There is a means for occupiers to view visitors without opening the door.	Yes No	Comments:
11.3	Windows in accessible locations provided with suitable window locks.	Yes No	Comments:
11.4	Dwellings with a common entrance door have a door entry system allowing a visitor to hold a two-way conversation with occupant.	Yes No	Comments:
11.5	All door and window frames and furniture operate properly and are in a good state of repair.	Yes No	Comments:

12	Walking Surfaces	Minimum standard met? (yes, no, not applicable)	Comments and observations
12.1	Every interior and exterior stairway, ramp, deck, porch, balcony walkway, terrace, landing and hall structurally sound, secure and in good repair.	Yes No	Comments:
12.2	Internal and external stairs safe, secure, in good condition, free from defects and projections, with external steps designed to drain water away.	Yes No	Comments:
12.3	Stair coverings securely and safely fastened. Treads on exterior stairways have non-slip surfaces covering at least 75% of each tread.	Yes No	Comments:
12.4	Interior and exterior stairways with four or more risers have handrails between 900 mm and 1000 mm high in good condition.	Yes No	Comments:
12.5	Minimum headroom on a staircase is 1900 mm.	Yes No	Comments:
12.6	All internal and external flights of stairs have landings at the top and bottom, with a minimum width of 750 mm and length of 500 mm.	Yes No	Comments:

13	Guards	Minimum standard met? (yes, no, not applicable)	Comments and observations
13.1	Every stairway, porch, patio, landing, balcony walkaway, terrace, landing and hall located more than 600 mm above an adjacent area have a guard, between 900 mm and 1100 mm high, measured vertically from the floor.	Yes No	Comments:
13.2	All windows through which a person may fall a single storey or more, have a device that restricts opening to less than 100 mm, which can be easily overcome if escape window.	Yes No	Comments:
13.3	Adequate guarding to heat sources with open fires/flames or surfaces that heat to over 43°C where there is a risk of prolonged contact.	Yes No	Comments:

14	Lighting and Services	Minimum standard met? (yes, no, not applicable)	Comments and observations
14.1	Every habitable room has adequate natural lighting.	Yes No	Comments:
14.2	Suitable, adequate, controllable and accessible artificial lighting throughout dwelling, two-way activated to internal staircase.	Yes No	Comments:
14.3	Light switches located conveniently in each room for safe use.	Yes No	Comments:
14.4	All electrical installations, including fixtures and fittings, maintained in good repair.	Yes No	Comments:
14.5	Gas appliances and flues are safe for continued use.	Yes No	Comments:
14.6	Every habitable room has at least 2, and kitchens at least 4, separate suitably located and remote double electric sockets.	Yes No	Comments:

15	Heating and Insulation	Minimum standard met? (yes, no, not applicable)	Comments and observations
15.1	Where there is a loft space, a minimum 250 mm of loft insulation (assumed to be mineral wool or similar) provided.	Yes No	Comments:
15.2	Hot water cylinder, if present, insulated with a minimum 50 mm jacket if not pre-insulated, and a tank thermostat present.	Yes No	Comments:
15.3	If cavity wall construction, the cavity insulated unless professional examination confirms technically unfeasible.	Yes No	Comments:
15.4	Heating system in good and safe working condition capable of heating all habitable rooms, bathrooms, and toilet rooms, heating main living room to 21o C, and the remaining habitable rooms to a temperature of 18o C when the external temperature is minus 1o C. The system should not allow the temperature to exceed 25o C in any room during the heating season.	Yes No	Comments:
15.5	Heating and hot water capable of being controlled effectively and timed to operate by the occupiers.	Yes No	Comments:
15.6	Combustion-burning fuel devices vented to the outside of the structure in an approved manner that meets the manufacturer specification and in compliance with applicable standards. The chimney maintained in accordance with manufacturer requirements.	Yes No	Comments:
15.7	A hard-wired CO detector with battery back-up must be installed in rooms containing fossil fuel burning appliances.	Yes No	Comments:

16	Ventilation	Minimum standard met? (yes, no, not applicable)	Comments and observations
16.1	Air exhausted from a bathroom, toilet room, kitchen, clothes dryer, or basement not vented to habitable space or attic, but discharged directly to the outdoors away from intakes on the building exterior.	Yes No	Comments:
16.2	All habitable rooms have at least one window, door or skylight which opens to the outside and can be fixed open in a secure manner.	Yes No	Comments:
16.3	In each habitable room, the total size of the openable windows, doors and skylights exceeds 5% of the floor area of that room.	Yes No	Comments:
16.4	All means of ventilation maintained in good repair and working order.	Yes No	Comments:

17	Moisture and Contaminant Control	Minimum standard met? (yes, no, not applicable)	Comments and observations
17.1	External elements of the dwelling are watertight, weathertight, free of persistent dampness or moisture, and in good condition.	Yes No	Comments:
17.2	The building’s drainage system directs water away from the structure.	Yes No	Comments:
17.3	No room has observable damp or mould growth or deterioration of internal finishes exceeding 5% of the wall or ceiling surface.	Yes No	Comments:
17.4	Dwellings must not have radon concentrations greater than 200 Bq per cubic metre.	Yes No	Comments:
17.5	Only approved biocidal products may be used within the dwelling and in accordance with the approved manufacturer’s instructions.	Yes No	Comments:

18	Pest Management	Minimum standard met? (yes, no, not applicable)	Comments and observations
18.1	The property and structures and areas within the curtilage of the property is free of pest infestation.	Yes No	Comments:

19	Fire Safety	Minimum standard met? (yes, no, not applicable)	Comments and observations
19.1	Furniture or soft furnishings provided by the landlord complies with the Furniture and Furnishings (Fire) (Safety) Regulations 1988, inclusive of being correctly labelled for fire resistance.	Yes No	Comments:
19.2	Electrical equipment supplied by landlords is safe and compliant with current UK requirements for safety of domestic electrical products; all electrical appliances supplied by the landlord are subject to testing in line with the IET Code of Practice for In-service Inspection and Testing of Electrical Equipment (Fifth Edition) (unless they are under one year old and display a UKCA/CE marking).	Yes No	Comments:
19.3	An annual gas safety check undertaken within the last 12 months. LPG heating inspected annually by a suitably qualified engineer.	Yes No	Comments:
19.4	Electrical installation inspected and tested within the last 5 years.	Yes No	Comments:
19.5	Sufficient properly designed and appropriately sited smoke and heat detectors with alarms. These should be properly maintained and regularly tested (Additional guidance provided).	Yes No	Comments:
19.6	The escape route from bedrooms through habitable rooms should either be avoided, or mitigated, by other provisions. (The continued use of escape windows will create inclusivity issues and should not be a preferred solution.)	Yes No	Comments:
19.7	Egress through doors/windows that are required for means of escape should not require the use of a key or a code.	Yes No	Comments:
19.8	Management of premises. Buildings with common parts: - Has a fire risk assessment been undertaken? - Is person who has undertaken the risk assessment competent? - Have any action plan items been completed within the indicated timescales? It is recommended that the most practicable method for the assessment of competence of fire risk assessors that undertake this task in higher risk premises (such as high-rise residential buildings), would be to ensure that any such person is named on the National Listing of Fire Risk Assessors, hosted by the Fire Sector Federation.	Yes No	Comments:

Glossary: What does the terminology mean?

This guidance minimises the use of jargon where possible, but it is important for landlords and property agents to understand how some key words or phrases are interpreted. The most important of these terms are described below, with more detail in the HHSRS Operating Guidance.

Baseline indicators: A list of guideline measures that help ensure the protection of the health, safety and wellbeing of occupiers by helping to address common housing deficiencies. Whilst not mandatory standards, anything regarded as less than the baseline indicator will not generally be considered acceptable.

Breach: Where a landlord fails to observe the legal requirements places on them. For example, breach of property licensing conditions would mean failure to observe the conditions of their property license. 

Category 1: When hazards in a dwelling are scored at 1,000 or above, they are called Category 1 hazards classed as high risk. Local councils have a duty to take enforcement action if they find a Category 1 hazard. 

Category 2: When hazards in a dwelling are scored below 1,000, they are referred to as Category 2 hazards, which are divided into moderate and low risk. Local councils have a discretionary  power to take enforcement action if they find a Category 2 hazard.

Deficiencies: Individual properties have deficiencies. These are aspects of the property which are less than ideal either because they were poorly designed or constructed or because they have not been maintained adequately. 

Disrepair: A general term that is taken to refer to deficiencies caused by inadequate maintenance. 

Enforcement action: Formal action that the local council can take.

Enforcement policy: A local council policy that sets out their procedures and approach to enforcement action, which helps to ensure fairness and consistency between cases. 

First-tier Tribunal (property chamber): the relevant tribunal service that handles disputes related to enforcement action taken under the Housing Act 2004 .

Harm outcomes: An assessment is then made of the harm that might arise from the hazard and how serious it is. This means any form of physical or mental effect on the health of a person. These harms are placed into four classes based on how serious they are: Extreme, Severe, Serious or Moderate. The HHSRS is not concerned with lesser harms that do not require medical intervention.

Hazards: Deficiencies give rise to hazards from one of the 21 descriptions of hazards. . Some of those hazards are closely associated with one another, and so one deficiency may give rise to several hazards.

Hazard Score: The likelihood of harm and severity of harm outcomes are fed into a formula which generates a hazard score. 

House in Multiple Occupation (HMO): a building or flat in which 2 or more households share a bathroom, toilet or cooking facilities. There are other categories in which a building, or part of a building, can fall into and be defined as an HMO (see section 254 of the Housing Act 2004).

Likelihood: Once hazards are identified, an assessment is made of the likelihood of a harmful occurrence happening from that hazard over a period of 12 months following the inspection. 

Property licensing: Some privately rented homes legally require a property license. Property licensing helps councils to crack down on rogue landlords. It can protect the health and safety of tenants and improve the quality of privately rented homes.

Statement of reasons: A statement made by the local council under section 8 of the Housing Act 2004 to accompany any formal enforcement action (such as a notice or an order served), that sets out their reasons for taking that course of action. 

Vulnerable group: the group of individuals who are most susceptible to the harm outcomes from the hazard in question

1. A PACE interview is formal evidence gathering exercise by a regulator. The interview is conducted under caution by the local authority in line with the Police and Criminal Evidence Act 1984 and associated codes of practice. ↩