Housing quality metrics in England: Coherence article
Published 28 May 2025
1. Introduction
The term ‘housing quality’ can refer to many things, ranging from whether the physical fabric of a dwelling meets a technical standard, to the level of enjoyment a household gains from living in a home.
This article aims to present a coherent picture of housing quality metrics and focuses on data from Official Statistics publications that provide information on how many dwellings in England are in poor condition, noting where they differ and the likely reasons for this. This article provides guidance for users when choosing the most suitable metrics for a purpose. We also discuss related sources of data, including those for devolved nations.
This article was developed in response to a growing interest in housing quality. We welcome any feedback on this release to ehs@communities.gov.uk.
Summary Table
Source | Method | Recommended Use |
---|---|---|
EHS | Nationwide representative sample survey | To obtain the total number of non-decent dwellings in England by tenure and region. To understand how housing quality is changing over time. To compare housing quality between tenures. To link observed housing quality data to household demographic data To understand the nature of housing quality in homes. |
LAM | Modelled using EHS and Census data to local authority level | To understand sub-regional trends in housing quality across tenures. |
LAHS | Self-reported by local authorities, in reference to 31 March | To understand how local authorities are assessing and managing housing quality in their stock and local area. To understand how individual local authorities’ housing quality is changing over time. |
PRP SHSR | Self-reported by private registered providers, in reference to 3t March | To understand how private registered providers are assessing and managing housing quality in their stock. To understand how individual private registered providers’ housing quality is changing over time. |
TSMs | Self-reported by private registered providers, in reference to 31 March | To understand the consumer standards performance of large social housing providers. |
2. Definition of housing quality in England
The quality of the physical fabric of a dwelling is assessed in England using the Decent Homes Standard (DHS). This was introduced as a regulatory standard in the social rented sector in 2001 and updated in 2006. In the owner occupied and private rented sector, the DHS is not a regulatory standard, though data collections often report on housing quality in these tenures as a point of comparison.
For a dwelling to be considered ‘decent’ under the Decent Homes Standard it must:
- meet the statutory minimum standard for housing (the Housing Health and Safety System (HHSRS) since April 2006) - homes which contain a Category 1 hazard under the HHSRS are considered non-decent
- be in a reasonable state of repair
- have reasonably modern facilities and services
- provide a reasonable degree of thermal comfort
In addition to presenting statistics on the number of homes which pass or fail the DHS, and what criteria they pass or fail, Official Statistics also often provide information on how many dwellings have damp and mould and how households perceive the quality of their home.
3. Official Statistics sources
There are three Accredited Official Statistics data publications that report statistics on the proportion of dwellings across England that fail the Decent Homes Standard.
- English Housing Survey (MHCLG)
- Local Authority Housing Statistics (MHCLG)
- Private Registered Provider Social Housing Stock and Rents in England (Regulator of Social Housing, RSH)
Additionally, there are two Official Statistics in Development collections covering housing quality.
- Local Authority Stock Condition Modelling (MHCLG)
- Tenant Satisfaction Measures (RSH)
3.1 English Housing Survey (EHS)
Description
The English Housing Survey (EHS) is a national survey of people’s housing circumstances and the condition and energy efficiency of housing in England. It is an Accredited Official Statistic and one of the longest standing surveys in government, with 2017 marking the 50th anniversary since the first survey in 1967.
Headline reports are published annually covering headline statistics, with in depth thematic reports published around six months later.
The EHS consists of two main elements – a household interview, followed by a physical inspection of a random sample of dwellings by trained surveyors.
Statistics related to housing quality and households’ perception of quality are based on both these surveys, with data weighted to represent the dwellings and households across the whole of England. Measures, such as the presence of Category 1 hazards, or passing or failing the Decent Homes Standard, are derived from the data collected. To ensure sample sizes are large enough for analysis, two years of physical survey data are combined for each estimate of physical characteristics.
This data is available at the UK Data Archive.
Quality Assurance
Both surveyors and interviewers receive extensive training and support in administering the survey. Physical surveys are validated by regional managers. Regular exercises take place to explore whether measurement errors are present within the survey, including a surveyor variability study in 2014-15 [footnote 1] and a surveyor quality study in 2019-20[footnote 2].
Response bias, which could occur if the households who consent to the survey differ from those who do not consent, is minimised through weighting of data to represent the whole of England.
There is a substantial amount of validation that takes place during processing and report preparation steps, which are regularly reviewed. As an Accredited Official Statistic, the series is regularly audited by the Office for Statistics Regulation (OSR).
3.2 Local Authority Stock Condition Modelling
Description
MHCLG regularly publishes modelled data on housing quality at a local authority level, by combining EHS regional level data with more granular dwelling data from other sources. This approach has been used to model the proportion of homes in each local authority which are non-decent and have Category 1 hazards in the Official Statistics in Development Local Authority Stock Condition Modelling series.
This series uses findings on local household and dwelling characteristics, known to be associated with housing quality at a national level, to predict levels of poor housing quality for each local authority in England. The key predictors for poor quality at the dwelling level are dwelling age and energy efficiency, for which data is available at the local authority level.
Actual numbers of homes by local authority, tenure and dwelling type published in this release are indicative and based on the outputs from the modelling methodology. As such, stock totals and the numbers of non-decent homes, whether explicitly stated or inferred, should be viewed as an approximate measure of relative size against other local authorities, but should not be treated as surveyed totals.
The data published is most useful for considering the geographical spread of poor quality housing by tenure. For individual local authorities, the data should be used alongside other local level data to build up a more detailed understanding.
Quality Assurance
Multiple validations are applied during the production process, and all data and subsequent analysis are quality assured by MHCLG. This includes comparisons to other published datasets to identify where modelled values may differ from administrative or observed data.
Advice is provided within the publication as to how the data should and shouldn’t be used, to ensure appropriate interpretation by users.
3.3 Local Authority Housing Statistics (LAHS)
Description
Local Authority Housing Statistics (LAHS) is an Accredited Official Statistic produced from an annual data collection returned by all local authorities in England to MHCLG. It provides a snapshot of local authority housing as of 31 March each year.
As part of LAHS, local authorities are required to report data related to housing quality for dwellings within their Housing Revenue Account (HRA), a ringfenced account for housing income and expenditure that is required for any local authority with 200 or more dwellings. More than 99% of local authority stock (which makes up around 6% of all dwellings in England) is within an HRA.
The reported data covers the number of non-decent dwellings the local authority is aware of, the reasons for dwellings failing the standard, and estimated costs to remediate these dwellings as of 31 March.
Tables containing all data submitted to LAHS are published annually. From 2018-19, following a public consultation, MHCLG discontinued the statistical bulletin associated with this collection, but the dataset and associated tables continue to be published. The data is first released by sections (alongside relevant publications) between November and late January/early February and revised in June the following year to take account of any late or updated data.
Quality Assurance
Detailed guidance is provided to local authorities to support the submission of data.
MHCLG has a detailed quality assurance pipeline to identify potential data quality issues and follows up with local authorities with queries to ensure that published statistics correctly reflect both the local authority’s position and that definitions are used consistently between local authorities. LAHS also has a revisions period shortly after data is published to allow local authorities to make corrections where necessary.
3.4 Private Registered Provider Social Housing Stock in England (PRP SHSR)
Description
Information on the stock owned and managed by private registered providers in England is published by the Regulator of Social Housing (RSH) in its Accredited Official Statistics publication series Private Registered Provider Social Housing Stock and Rents in England (PRP SHSR).
PRP SHSR is an Accredited Official Statistics publication, based on data collected via the Statistical Data Return (SDR) returned by private registered providers (PRPs) in England to RSH. These statistics provide information on social housing owned and managed by PRPs on 31 March each year (around 10% of dwellings in England).
All PRPs are expected to complete the SDR, with larger PRPs (those owning 1,000 or more dwellings of social housing) being required to provide more detailed data.
RSH publishes a report and data tables annually on housing quality data using data from the SDR, with data on the proportion of dwellings failing the Decent Homes Standard on 31 March available in PRP SHSR from 2012 onwards. In recent years, PRP SHSR has published further information in relation to the level of inspection and stock condition changes during the year.
Quality Assurance
Hard and soft validation checks are present in the web-based system through which PRPs submit data. Manual inspections are undertaken on all data submitted, including comparisons to previous years or values being outside of an expected range. RSH engages with providers on data quality issues where present and has a sign-off system to confirm they accept the provider has submitted data they believe to be accurate.
Where regulatory activity or contact with providers lead to identification of errors in published data, revisions are made to published data [footnote 3].
3.5 Tenant Satisfaction Measures (TSMs)
Description
Since April 2023, all social landlords (i.e. both local authorities and private registered providers) have been required to collect and publish Tenant Satisfaction Measures (TSMs) data, a list of metrics covering housing quality and tenant perceptions.
In 2024, landlords owning 1,000 or more dwellings of social housing were required to submit the first year of TSM data to RSH, who compiled and published these data as Official Statistics in Development.
Quality Assurance
The RSH sets out standards for social landlords to meet in calculating the figures they submit as part of the TSMs. Hard and soft validation checks are present in the system used by social housing providers submit data, and all reporting landlords have their submissions reviewed by RSH, with any concerns about data quality or anomalous results investigated through engagement with the landlord.
A detailed quality and methodology note is available and sets out where data from certain providers was excluded due to data quality concerns.
4. Latest data on housing quality
The below tables show the most up to date statistics from the above sources at point of publication. MHCLG regularly updates Live Table 119, a summarised source of historical data from the EHS, LAHS and PRP SHSR, when new statistics are published.
Table 1. Differences in Overall Reported Levels of Non-Decency (published data as of May 2025)
Owner | Source | Local Authorities | Private Registered Providers | All social housing | Private rented sector | Owner occupied sector |
---|---|---|---|---|---|---|
MHCLG | English Housing Survey (2023) | 12.1% (191,000) | 9.3% (240,000) | 10.3% (431,000) | 21.1% (1,031,000) | 14.3% (2,337,000) |
MHCLG | Local Authority Housing Statistics (31 March 2024) | 9.1% (120,000) | - | - | - | - |
RSH | Private Registered Provider Social Housing Stock and Rents (31 March 2024) | - | 0.5% (13,000) | - | - | - |
RSH | Tenant Satisfaction Measures (31 March 2024) | - | - | 3.0% (no count supplied) | - | - |
Table 2. Differences in Overall Reported Levels of Category 1 Hazards (published data as of May 2025)
Owner | Source | Local Authorities | Private Registered Providers | All social housing | Private rented sector | Owner occupied sector |
---|---|---|---|---|---|---|
MHCLG | English Housing Survey (2023) | 5.8% (91,000) | 3.3% (85,000) | 4.2% (177,000) | 10.2% (496,000) | 8.1% (1,322,000) |
MHCLG | Local Authority Housing Statistics (31 March 2024) | 0.7% (10,000) | - | - | - | - |
RSH | Private Registered Provider Social Housing Stock and Rents (31 March 2024) | - | 0.2% (4,000) | - | - | - |
5. Differences between sources
The published numbers and percentages of non-decent social rented sector dwellings differ between the above sources. There are multiple possible reasons for these differences, which are described below.
5.1 Timing
The EHS collects data through household interviews and dwelling surveys throughout the year, and represents a rolling count, not just a picture on 31 March. Stock condition data in LAHS, PRP SHSR and the TSMs differ as they represent the number of non-decent dwellings the provider is aware of as being non-decent as of 31 March of the reporting year.
A dwelling could be observed to be either decent or non-decent on the day it is inspected, either by the EHS or providers, and then change status following the inspection. For example, a provider may undertake remediation action to make the dwelling decent. If this remediation occurs before 31 March, that dwelling would then be counted as decent in the values published in LAHS, PRP SHSR or TSMs. Regulatory data and engagement by RSH with social housing providers suggests it is common for an identified non-decent unit to be remediated before year-end reporting.
It is also possible that a dwelling could become non-decent following inspection, e.g. a heating system breaks and causes the dwelling to fail Criterion D. These cases would not be identified by the EHS, or by social housing providers unless they received information from tenants. In addition, a component may reach its age threshold after an inspection, causing the dwelling to become non-decent. If this is identified by providers through administrative systems which track component ages, this would be reflected in data as of 31 March.
LAHS and PRP SHSR both provide additional information on changes to non-decent stock during the year, which points to changes within the housing stock (e.g. completion of remedial work, dwellings becoming non-decent or stock demolition) being a key component of the observed differences in national level statistics. In 2024, PRP SHSR reported that 4.2% of dwellings inspected by PRPs were non-decent at point of inspection.
Social housing providers have a duty to act in response to Category 1 hazards, since they pose a serious and immediate risk to health. Therefore, at any given date, a provider may only be aware of a small number of dwellings with Category 1 hazards it has yet to remediate.
5.2 Self-reporting
Data in LAHS and PRP SHSR is reported by social housing providers and therefore is likely to only represent those dwellings the provider is directly aware of, e.g. through households reporting faults and/or inspections. Providers are unlikely to be aware of every non-decent dwelling as some elements of non-decency can emerge spontaneously, e.g. a heating system failing, possibly leading to a Category 1 hazard of excess cold.
In LAHS, some providers do not report a value for the number of non-decent dwellings and are able to submit an ‘unknown’ value. Within the SDR (for PRP SHSR) and TSMs, a value is required to be entered by providers, which can be zero.
By contrast, the EHS uses a systematic random sample design, sampling addresses from the Postcode Address File. After collecting data from dwellings, it weights the observed data to accurately represent all stock in England. The sample size of the EHS does not allow for statistically robust figures for individual local authorities but is robust at the regional and national level. Modelled data at the local authority level is available within the Local Authority Stock Condition Modelling publication.
Extensive and very regular surveying of dwelling stock is costly for social housing providers, who will generally only survey a fraction of their stock each year. Because of this, the self-reported annual data is expected to be lower than that reported by the EHS.
5.3 Data collection method
The EHS uses a standardised assessment approach to determine whether a dwelling is non-decent. This was developed alongside the Decent Homes Standard in 2001 and its update in 2006. Based on observations of physical data collected by surveyors, the decency status of a dwelling is derived. Detailed information on the data points used to derive this are set out in the Technical Report.
During the COVID-19 pandemic, additional modelling steps were required as surveyors could not safely enter homes. This involved external inspections supplemented by information collected at the doorstep while socially distanced. Vacant dwellings were not visited during the pandemic.
Social housing providers must meet the Safety and Quality standards set by RSH, which includes required outcomes around data they hold.
“Registered providers must have an accurate record at an individual property level of the condition of their homes, based on a physical assessment of all homes and keep this up to date.”[footnote 4]
Providers will vary in their approach to calculating the number of non-decent dwellings on 31 March, which may include a combination of stock condition surveys and extrapolation from data held on housing management systems. This variation in approaches means that when sources which collect self-reported data sum up individually submitted values, the figure created is not necessarily representative of the nationwide total, in contrast to the EHS.
Stock Condition Surveys
Providers will not typically survey all their stock during a given year. In 2023-24, some local authorities answered a voluntary question in LAHS on the extent of stock condition surveys they had carried out, while PRPs answered a mandatory question in the SDR. The collected data suggested that 40% of local authority stock and 68% of private registered provider stock had been inspected in the preceding five years.
The representativeness of the stock included in the stock condition surveys by social housing providers is not known. Some providers may focus surveys on a particular type of unit/ geographic area or prioritise surveys on units where other intelligence has highlighted issues, while others may take a random sample approach. RSH has no evidence that private registered providers choose to focus on inspecting dwellings they believe more likely to be decent
Other Methods
Outside of stock condition surveys, other extrapolation methods may be used.
RSH reports that PRPs generally assume units pass DHS unless they have evidence otherwise, though some PRPs adopt a positive confirmation approach that assumes stock fails the DHS unless they have confirmed it passes [footnote 5]. However, it should be noted that comprehensive engagement with PRPs by RSH indicates that assuming units fail unless confirmed otherwise is rare. Evidence is less clear for local authorities.
For social housing providers, often only a sample of the entire housing stock has been surveyed within recent years. For example, many local authorities target inspections of properties which have been flagged within their asset management systems as passing a certain age threshold.
In the past, the findings of partial stock condition surveys have sometimes been extrapolated to apply to the entire stock owned by the local authority. For the 2024-25 LAHS return, MHCLG has clarified in the guidance for local authorities that figures should not be extrapolated in this way. Instead, they should report only those dwellings they are directly aware of as non-decent.
New questions were introduced in the 2023-24 LAHS form to align with the SDR, asking local authorities which methods of assessment they used as the basis for the reported number of dwellings failing each criterion of the Decent Homes Standard. It is hoped that this information can be used in future to improve understanding of the comparability of the non-decency rates submitted through LAHS against other data sources.
5.4 Exemptions
The Decent Homes Standard allows for exemptions, where landlords are unable to meet the standard due to factors beyond their control, e.g. it is impossible to make improvements for physical or planning reasons, or where it is deemed acceptable for a landlord not to meet the standard, e.g. remediation against the wishes of tenants, or remedial works clearly show poor value for money.
The SDR asks providers to provide data on non-decent dwellings that fit any of the below criteria. These dwellings are excluded by PRPs from the overall non-decent count.
- the tenant has refused remediation work
- if it is impossible to make required improvement for physical/planning reasons
- practical steps to remediate hazards cannot be taken without disproportionate expense
- if the dwelling is scheduled for demolition
PRP SHSR, using data from the SDR, reports that 0.4% of all PRP stock in 2024 were excluded from the Decent Homes Standard, the vast majority of which (86%) were due to tenant refusal, with dwellings being scheduled for demolition making up a further 10%.
LAHS also collects data on where reduction in the number of non-decent dwellings has occurred due to tenant refusals, demolitions, or partial transfers or other sales including Right to Buy. These reductions are relatively small in comparison to the overall number of non-decent dwellings on 31 March each year.
For example, there were 120,412 non-decent dwellings within local authority HRAs on 31 March 2024. In the year leading up to this, a further 5,944 dwellings would otherwise have been counted as non-decent in addition to the total but were instead excluded due to the tenants refusing repairs. Similarly, there were 466 demolitions and 1,078 sales and partial transfers of non-decent dwellings which would otherwise have been counted in the total number of non-decent dwellings at year end.
The EHS does not consider exemptions when assessing whether a surveyed dwelling meets the Decent Homes Standard and will therefore include these dwellings in its figures.
5.5 Scope
There are subtle differences in whether housing stock is in scope of being counted, though these are small and unlikely to generate large differences in the overall prevalence of non-decency.
The EHS samples from the Postcode Address File, and counts dwellings where someone is ordinarily resident, leading to exclusion of some dwellings such as those used for temporary accommodation. Housing tenure is collected during the household interview, with subsequent data cleaning to resolve discrepancies from the physical survey, e.g. ensuring social housing tenures are accurately recorded where tenants may not be certain who owns their dwelling.
LAHS data on housing quality only refers to local authority dwellings within a Housing Revenue Account (over 99% of local authority housing). Data from the TSMs is analysed for registered landlords with 1,000 or more dwellings, so for local authority housing providers, this will always refer to HRA stock.
LAHS data includes shared ownership dwellings in its total, though these dwellings are exempt from the Decent Homes Standard. In contrast, PRP SHSR and TSMs exclude shared ownership dwellings, only including dwellings for rent below the market rate. Similarly, the EHS does not report shared ownership as social housing, but as owner occupied housing.
5.6 Calculation methodology
In defining a national level rate of non-decency, LAHS and PRP SHSR differ in their approach to the inclusion of nil returns.
In LAHS, MHCLG excludes local authorities who report zero non-decent dwellings in their HRA stock from the overall calculation, as it is often unclear whether a submitted zero represents a true zero or a scenario in which the local authority is unable to accurately report a figure.
In PRP SHSR, RSH does not take this approach since the reporting of non-decent dwellings in the SDR is mandatory, and PRPs would have to manually enter a zero to submit this value[footnote 5].
All survey estimates, including the EHS, are subject to sampling error since they are derived from a sample of a population rather than from the whole population. Any reported comparisons from analysis of EHS data are tested for statistical significance using a calculated design factor (the ratio of the standard error of an estimate from a complex sample to the standard error that would have resulted had the survey design been a simple random sample of the same size).
6. What non-decency data to use, and when
- For time series analysis at the national or regional level, or to review analysis that links physical dwelling data to household data, users are recommended to use English Housing Survey data.
- To understand the level of non-decency for the social rented sector in each local authority area, users are recommended to review Local Authority Stock Condition Modelling data, but to also cross-compare this data against self-reported data in LAHS, PRP SHSR, and TSMs
- To understand the level of non-decency for the owner occupied or private rented sector, users are recommended to use English Housing Survey data. For data at a local authority level, users are recommended to review the Local Authority Stock Condition Modelling Data.
- To understand the level of non-decency for an individual social housing provider, whether a local authority or private registered provider, users are recommended to review LAHS, PRP SHSR and TSMs. Local Authority Stock Condition Modelling Data is not suitable for this purpose as it does not model data for individual providers.
7. Damp measures within the EHS
The main indicator of housing quality is whether a dwelling passes or fails the Decent Homes Standard. The presence of damp in a dwelling does not automatically lead to a failure on the Decent Homes Standard and only counts towards non-decency where it is present at a Category 1 level (hence failing Criterion A) or is associated with disrepair (Criterion B) or lack of thermal comfort (Criterion D).
LAHS, PRP SHSR and TSMs do not report data on damp in dwellings.
The EHS reports on dwellings that have a problem with damp. Dwellings are counted as having a problem with damp or mould where is there is enough damp present for a surveyor to undergo a full HHSRS assessment, which will classify the dwelling as either having or not having a Category 1 level of damp.
Additionally, households can perceive there to be a problem with condensation, damp or mould, which may or may not correlate with the dwelling having a problem with damp or a Category 1 level of damp.
Levels of self-reported damp are substantially higher than levels of damp recorded by surveyors. In 2023, 29% of households reported their home had problems with condensation, damp or mould, whereas surveyors found that 5% of dwelling had a problem with damp [footnote 6].
This difference is likely to be for several reasons. Households may have reported problems with condensation, damp or mould during the EHS interview where these issues were present at lower levels (they were not significant enough to be taken into consideration in a HHSRS assessment), or in rooms rarely or never used by the household.
Additionally, damp, condensation and mould can be seasonal and transient in causing problems for households, and the EHS surveyor may not be able to observe damp if issues were not present on the day the surveyor visited. Finally, the self-reported damp measure is a subjective rather than objective measure, and there will inevitably be differences in the level or type of damp that households consider problematic.
The Local Authority Stock Condition Modelling for 2023 included, for the first time, sub-regional estimates of the prevalence of damp by tenure and dwelling type.
In 2023, RSH published a report based on self-reported data from social housing providers on the presence of damp and mould. They found that less than 0.2% of social homes have the most serious damp and mould problems, 1-2% have serious damp and mould problems and a further 3-4% have notable damp and mould. These self-reported proportions are similar to those published by the EHS.
8. Additional sources
- Historical data from EHS, LAHS and the SDR is summarised in a live table (Live Table 119), which is updated regularly by MHCLG.
- The EHS also publishes information in its headline reports on how many households are overcrowded. Overcrowding is a possible Category 1 hazard.
- The Building Research Establishment regularly publishes independent analysis based on data collected during the EHS, most recently on the energy efficiency of homes and a cost-benefit analysis of dwellings with Category 1 hazards.
- The Housing Ombudsman regularly reports on the number of complaints and determinations in social housing, some of which are related to property condition, in its Annual Complaints Review.
- The English Private Landlord Survey is an Accredited Official Statistics collection which provides data on private landlords who let in England. In 2024, it included questions about identifying and tackling damp and mould.
9. Devolved nations
Northern Ireland uses the same Decent Homes Standard as England. The Northern Ireland House Condition Survey is an Accredited Official Statistical publication that has been carried out multiple times in the last decade. Data was last collected in 2023, and the most recently published data refers to 2016.
Scotland and Wales have different housing quality standards to England. Data on the proportion of homes which do not meet these standards are published by the respective devolved nations.
The Scottish Housing Quality Standard was introduced in February 2004, and the number of dwellings failing this standard is published as part of the Accredited Official Statistics Scottish House Condition Survey. Data is collected annually, though was paused in 2020 and 2021 due to the COVID-19 pandemic. Scotland also measures dwellings against the Tolerable standard, a standard introduced initially in 1969 and updated in later years, most recently in 2022.
The Welsh Housing Quality Standard was updated in 2023, but there have yet to be published statistics on the proportion of homes which pass this standard. Data is available on the number of dwellings which failed the older standard from the Welsh Housing Conditions Survey.
10. Future developments
- In 2024, the government committed to introducing a new Decent Homes Standard in the rented sectors. MHCLG and RSH are committed to measuring compliance with this new standard, where possible, through existing data collections.
- As Official Statistics, the sources specified above continually review their quality assurance and publication processes
This article was published on 28th May 2025. We welcome any feedback or questions at ehs@communities.gov.uk.