Bringing empty homes back into use - approaches and interventions: evidence scoping review

1. Introduction

The literature on empty homes acknowledges that short-term vacant properties can form part of a healthy housing market, however, when properties are left empty over the long term, this can have wider social and economic implications for the community . Bringing long term empty homes back into use and minimising their potential negative environmental and social impacts on communities is important for a well-functioning housing system. The deterioration of homes that fall into disuse have the potential to cause problems for neighbours, and have been described as being associated with physical "blight", antisocial behaviour and other social problems that may add to the pressure on public services and negatively impact communities. Wider economic effects and longer term community impacts can stem from these issues, such as reduction in the value of nearby properties, reduced investment in the area and a decline in local amenities (Action on Empty Homes 2019; Wilson et al 2020).

Reducing the 'wasted assets' of empty homes can contribute to regeneration and is an important component of maximising available housing supply (Carnuccio 2014). Where the presence of empty homes restricts the choice of households to live - for example in rural communities - this may adversely affect the viability of schools, shops and other local services and facilities, potentially threatening the sustainability of rural communities (Local Government and Communities Committee 2019). In cities and regions with pressured housing markets, the nature of supply, demand and shortage is complex but bringing empty homes back into use can form part of strategies used to meet housing need. A lack of suitable accommodation drives up house prices and rents (Breach 2021) and increases the incidence and risk of homelessness (Davies 2014; Feantsa 2019). There are many factors that can put pressure on a local housing system. These include demand factors, both within a country, such as domestic demographic trends and internal migration, as well as across countries, such as the arrival of a significant number of internationally displaced populations; supply factors, such as the availability of land through the planning system and cost of construction; as well as wider economic factors, such as the affordability of lending. Accordingly, it is prudent to consider how existing stock is used, as provision of new homes alone may not be sufficient to address need (Dunning and Moore 2020).

Tackling empty homes is a priority for the Scottish Government. Annual statistics published in January 2023 show that in Scotland there were an estimated 42,865 long-term empty properties (defined as property that has been vacant for 6 months or more and is liable for council tax i.e. it does not qualify for an unoccupied exemption as set out in Housing statistics: Empty properties and second homes - gov.scot (www.gov.scot) (Scottish Government 2023). However, as the following section on challenges will detail, it is problematic to definitively determine the number of empty homes due to data quality issues in their identification and classification. Ensuring that empty homes are maintained, improved and put to the best possible use forms part of the Housing to 2040strategy. The strategy sets out a vision for housing in Scotland to 2040 and a route map to get there. It aims to deliver Scottish Government's ambition for everyone to have a safe, good quality and affordable home that meets their needs in the place they want to be (Scottish Government 2021). Within the strategy there are commitments to:

• work with LAs to audit empty homes and determine those that should be brought back into use
• support the work of the SEHP and continue to roll out the approach across Scotland
• give LAs the powers they need to regulate and charge owners appropriately for homes lying empty and ensure they have the mechanisms to bring them back into productive use
• create a support package for homeowners in trouble to help them stay in their home, if that is right for them, and to prevent homes falling into disrepair or becoming empty in the first place

Since 2010, the Scottish Government has funded Shelter Scotland to develop and deliver the SEHP, which gives advice to councils and empty home owners.

This review will aim to explore the literature and present relevant examples to better understand the range of approaches that have been employed to bring empty homes back in to use both locally and internationally.