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7.0 The Right Infrastructure - Housing, Planning and Transport
Housing, transport, and the planning of the places we live in are important to us all, and as Scotland's population ages it is important that we get them right for all ages. Services can adapt, but buildings, once constructed, are usually permanent and hard to change or redesign. Buildings - whether homes, shops, health centres or businesses - are physical expressions of a community, and the way people travel within, relate to and use that built environment is critical. Design, accessibility and user-friendliness can have an impact on public health and mental well-being, on the need for transport services, and on crime and community safety. Buildings that are designed to limit emissions of carbon dioxide will limit energy costs, making homes more affordable and businesses cheaper to run. We want to see a Scotland where communities, environments, buildings, homes and transport systems are designed for, and useable by, people of all ages and life stages in safety and confidence.
Very often, getting the built environment right for older people, or for people with impaired mobility, means getting it right for other people too. Dropped kerbs are useful for wheelchair users, and useful too for parents with children in buggies. For people who are on low incomes, and for people for whom transport is difficult, easy access to local facilities brings great advantages. Built environments where people find it easy and pleasant to get out and about can improve health - by encouraging people to walk more - and minimise social isolation. They can also help with public safety - well-populated public spaces are less frightening and less prone to crime. We want to see a Scotland that has communities where people of all ages can mix, and feel safe and secure.
The links that help us interact with our built environment are critical too. Technology is advancing rapidly and has great potential to improve quality of life, particularly for people who are socially isolated or physically impaired. We want to see a Scotland where technology supports and enables older people to live independently for as long as they want to. Transport too links us to our environment and enables personal mobility. As well as planning communities that minimise the need for unnecessary transport, we want to see a Scotland with a transport system that benefits all groups in society.
To get this right, it is important that we move from the tradition of thinking about housing, planning and transport separately, and look at how they relate to each other and how together they can adapt to the needs of an ageing population and enhance the lives not just of older Scots but of all our people.
What we heard from the consultation
- Well-designed houses built to high standards, and that are safe and secure and equipped for mobility and access, were high on the list of priorities. There were also suggestions for developers to design houses that are flexible to allow for adaptations later in life when needed and that enable people to stay in their own homes and lead an independent life.
- Public transport should be available, accessible and affordable, particularly in rural areas. Again, this issue was not perceived to impact solely on older people but to be an issue for all public transport users.
- The design of communities featured top on the list of important features. There were some calls for communities that encompass a broad range of individuals to help to reduce social isolation for older people.
- The views of users were perceived to be critically important, with calls for effective consultation among, and involvement of, older people in the planning of services and communities.
Ensuring Homes Suitable for an Ageing Population
The Scottish Executive fully recognises the need to provide housing and environments which are accessible, inclusive and supportive for an ageing population, and has already taken a wide range of actions to improve the supply, design and standards of housing for an ageing population; to help older people to 'stay put' for longer in their own homes; and to assist older people to move on when they wish to do so, or when their level of dependency means they require more intensive care and support.
One example is a statutory requirement in the Housing (Scotland) Act 2001 for local authorities to produce Local Housing Strategies which include identifying local unmet need for housing for older people; while planning policies also emphasise the need to provide housing for older people, within the context of a range of provision within mixed communities. We have also ensured that, since 1998 through the 'Housing for Variable Needs' standards, virtually all new subsidised housing is designed and built to meet the needs of most households and to help maximise the time that older people can remain in their homes.
Much is being done to integrate the delivery of assistance and support services for housing for older people. Care and Repair, a service that helps older people living in the private sector in accessing grants and improving their homes, is a sound approach that considers a person's wider needs and assists with access to suitable services. All local authorities are expected to ensure access to Care and Repair services, and we will continue to work to assure the quality and suitability of services.
Statutory agencies are also required to coordinate more effectively with one another. This is the underlying theme of the Joint Future agenda where a single, shared assessment of need should lead to consideration of how best to meet those needs identified, using equipment, adaptations and Telecare alongside other community care and health interventions. Work is underway to promote and improve this.
The Joint Future agenda has already demonstrated the value of promoting whole system thinking around the care and support of older people. Local Health and Social Care Partnerships will also have to demonstrate a commitment to that principle to receive funding under the new telecare grant scheme.
As discussed in Chapter 2, the Scottish Executive is keen to expand on this approach, and explore the potential of thematic outcome agreements focussed around services to older people, as another way of encouraging whole system solutions to meeting the needs and aspirations of older people.
Older People's Accommodation Choices
A minority of older people may choose through infirmity, isolation or personal preference to leave their family home and move to sheltered or very sheltered housing. 43,000 sheltered or very sheltered houses have been built across all sectors, with 85% of this housing provided by local authorities and Registered Social Landlords. It will be important to ensure that this form of housing, or suitable alternatives, is available and affordable for people who choose to move in future.
The Scottish Executive has commissioned research that will complete in 2007 to make recommendations on how the benefits of sheltered or very sheltered housing can be extended to a larger number of older people. Particular attention will be paid to ensure that provision is made for all minority groups and those in rural areas.
Looking to the longer term, we will build upon these actions and achievements.
We will issue updated guidance to local authorities on future requirements for Local Housing Strategies to ensure that local authorities fully recognise the implications of demographic profiles at local level, and have regard to these when considering local assessments of housing need and planned provision, future housing investment planning and targeting of resources, and how they may more strongly influence private sector housing solutions.
We will assess and test, following research into the future of Sheltered Housing, the feasibility of new options for addressing the varying housing and support needs of older people across all tenures. Taking account of rapid developments in assistive technology, this will include consideration of the long term approach to the future of sheltered housing provision in the social rented sector; the development of individualised floating support packages (for example, concierge services, Telecare and visiting support) for sheltered housing tenants; and the provision of "sheltered" housing services to the person's own home (irrespective of housing tenure) through tailored packages of visiting support and care, meal delivery, Telecare, internet access and local social opportunities. We will look with an open mind at experience of other countries for example in co-housing developments.
We will actively explore ways to make the use of 'equity release' to fund adaptations and customised housing support packages more attractive and to promote its use. This recognises that many older people, whilst holding considerable amounts of equity in their property, find the cost of repairing or adapting their homes or buying additional support services difficult to afford. We will examine alternative approaches to equity release aimed at assisting older people to undertake maintenance, improvements and adaptations to their homes or to fund support and care services beyond those provided through free personal care.
Planning and Building Standards
The land use planning system has an important role to play in responding to the challenges of demographic change; it is the system through which we shape our communities, and dictates the way in which they will develop. It is the mechanism whereby decisions are made about the location of hospitals, schools, homes and shops, and what they will look like once built. The planning system is there to promote, facilitate and regulate development in the public interest. This development is essential if we are to meet current and future economic, social and environmental challenges, as well as those of an ageing population.
The Scottish Executive seeks to embed equality into the planning system through its Scottish Planning Policies ( SPPs) and Planning Advice Notes ( PANs). Policies contained in SPPs and PANs may be material considerations to be taken into account in development plans and in development management processes such as planning applications. For example, SPP 1 on the Planning System states that:
"The planning system should feature as part of an integrated approach to social justice by considering the diverse needs of the local communities in development plan policies", and "In particular attention should be paid to the needs of women, ethnic minorities and vulnerable groups, including children, older people, and those with disabilities, in policy development and decision making processes."
In addition to policy statements, certain PANs provide advice on equality related issues, including those that address the concerns of an ageing population. PAN 78 on Inclusive Design proposes the creation of environments that can be used by everyone - regardless of age, gender or disability. In terms of creating safer environments, PAN 77: Designing Safer Places, recognises that when combined with other measures, good planning and design can make a significant contribution to reducing the fear and incidence of crime. It aims to foster the co-ordinated approach - between local authorities, the police, the community, and any other relevant stakeholders - that is a vital factor in the successful delivery of safer environments.
The planning system is currently undergoing the most significant modernisation since it was established in 1947. The proposed changes will, amongst other things, make the system more inclusive, as there will be more and better opportunities for communities to get involved in planning. Guidance in the form of a Planning Advice Note on Community Engagement supports the inclusion measures in the Planning etc (Scotland) Act 2006. It emphasises the need for planning authorities and developers to ensure all communities of interest have an opportunity to get involved; and that participatory approaches should be targeted at hard to reach communities, including older people.
Provisions in the Bill will further promote inclusive physical environments. A general equal opportunities duty will be placed on Scottish Ministers and planning authorities in respect of their planning functions, and certain types of development will be required to produce access and design statements with their planning applications.
The Building (Scotland) Regulations 2004 set requirements for new buildings that include accessibility and energy performance. From May 2007, the Building Standards will be extended in ways that will better meet the needs of an ageing population, thereby increasing the sustainability of new homes and other buildings.
All new dwellings will be more accessible and will make future adaptations easier. One storey must have a kitchen, a toilet with wash basin, and circulation spaces that can be used by all occupants and visitors, and a room that can be used as a bedroom. If there is no bathroom or shower-room on that storey, there must be a space with drainage and water supply ready to fit one. Also, the standards for stairways will facilitate common adaptations such as installing a stair lift or second handrail.
New homes will have a space to allow washing to be dried other than by a tumble drier and overall, all new homes will have better energy performance than in any other part of the UK, with a minimum standard of 50% low energy lamps, very efficient
heating, and high levels of insulation. The energy standards are set at such a level that they will give encouragement to designers to incorporate low or zero carbon technologies, such as heat pumps, solar water heating, and biomass boilers into their buildings, which could result in even lower running costs.
Transport
Transport provides the links that hold society together, and has an essential role in supporting people of all ages, including those older people whose mobility is limited, to participate on equal terms in the ways described in this Strategy. For most people most of the time, transport is essential for their access to family and friends, to work, for leisure, for volunteering, for goods, services, and amenities. It is inextricably linked with planning in delivering an environment in which people can live as they wish. For those older people who are at risk of isolation or inactivity, good transport can be vital in helping them maintain their health and wellbeing.
For transport to work in the way people need it to, people must have good accessible information about it, be confident of its reliability, safety and usability; they must be able to safely get to the transport as well as get onto it, and be able to afford it. In addition, transport should be available when people need to travel, and go to where people need and want to go.
Current trends show that as people age, they make less use of private cars and increased use of public transport. The role of public transport in the future in supporting an ageing population is likely to continue to be critical and the Scottish Executive's transport strategy recognises the importance of meeting the needs of all sectors of Scotland's population as they grow older.
Accessibility can be expected to continue to be an important issue as the number of disabled people increases with the ageing population. In accordance with legislation reserved to Westminster, all buses must be fully accessible by 1 January 2017 and all coaches by 1 January 2020.
Scottish Executive Planning policy, (Scottish Executive, 2005d) also recognises that effective planning for the needs of disabled people often has positive benefits for others who may experience difficulties, including older people.
Case Study: Assisted Travel Service
First ScotRail offer a free assisted travel service for customers wishing to be met and accompanied at arrival/departure points. It has recently opened a new in-house Training Academy and is investing £1m per year on staff training. As part of the £10m Station Investment Plan, it is committed to improving access at 4 major stations, in addition to substantial investment in small scale works to be allocated in consultation with the Mobility and Access Committee for Scotland and Transport Scotland.
The provision of impartial travel information services is a high priority for Transport Scotland. Current provision includes Traveline Scotland which provides a journey planning service through a call centre providing information to people wanting to use public transport to get around Scotland.
The Scotland-wide free bus scheme for older and disabled people began on 1 April 2006 and has been widely welcomed. Between April 2006 and February 2007 835,000 people aged 60 and over have benefited from free bus travel. Older and disabled people are now able to travel free by bus anywhere in Scotland on local buses and on long distance scheduled coaches throughout the day, including the morning rush hour. Bus travel is the mode of public transport that is most widely available and has the highest usage numbers. Its flexibility in terms of capacity and accessibility makes it the most suitable for the concessionary scheme. Where existing local concessionary travel schemes also offer additional modes, such as ferry or rail, these continue to be managed locally at the discretion of individual local authorities.
In addition, the Scottish Executive put in place on 1 April 2006 two free return ferry journeys annually as a minimum to all eligible Scottish island residents in order to allow them access to the Scotland-wide free bus scheme.
Rail services, particularly in rural and remote areas, are a vital element of social inclusion, offering the best possible access to public transport, employment and other social opportunities; and are particularly important to those who do not have access to or are unable to use a private car, including people on low incomes or with disabilities.
The Scottish Executive is helping rural community transport projects through its Rural Community Transport Initiative ( RCTI). This aims to support community transport schemes in rural areas where there is no scheduled bus service or where services are very limited. The majority of people benefiting from the Initiative are either disabled, elderly, frail or have mobility problems. Research has shown that many of these people would be housebound without the Initiative's services. This scheme was introduced in 1998-99 and there are currently no plans for any changes.
Given the positive impact that Demand Responsive Transport ( DRT) and community transport schemes have in improving the mobility of elderly and disabled people the Executive will introduce an enhanced DRT scheme from 2008-09. This scheme will replace 3 current initiatives at the end of 2007-08. These are the:
- Current DRT initiative;
- Rural Community Transport Initiative; and
- Rural Public Passenger Transport ( RPPT) Grant Scheme.
The new scheme will aim to deliver more DRT services across Scotland and will be managed by the Regional Transport Partnerships. It will improve public transport provision, especially in rural areas, thus improving the mobility of many people, including the elderly.
DRT services often have an important role to play in rural communities. Indeed, a recent independent consultant's report recommended that "an expansion of DRT provision is an essential aspect of improving accessibility in Scotland".
A number of DRT services, such as dial-a-ride and dial-a-bus, are already being supported through the Scottish Executive's RCTI and, between 2004-06, the Scottish Executive also helped to fund pilot DRT services in a number of rural areas. We will continue to work to ensure that Scotland makes maximum use of DRT Services, especially in rural communities.
Pilot urban community transport schemes were also funded, which included DRT elements. Further funding has been made available to continue all but one of the pilot projects in 2006-07. It is also important to recognise the role of local community organisations in developing DRT services. Where standard services are not appropriate for the needs of the community, local services such as those in the health or voluntary sectors can take over the running of a transport service. It is important that the Scottish Executive and local authorities learn from best practice in areas where such schemes are in operation.
Case Study: Demand Responsive Transport
With funding from the Scottish Executive, Fife Council introduced several DRT services in rural areas of North East Fife from August 2004. The new services reflected residents' comments about the need for improved transport provision to local hub towns containing services and potential interchange opportunities. They included some bus and taxi services.
An example of a new DRT bus service is the 'Flexi Service 1', operating between Newburgh-Auchtermuchty-Ladybank-Cupar, which uses fully accessible low floor buses on a flexible local timetable, enhancing travel opportunities between these settlements, whilst also improving inter-village travel.
All bus stops on the route have 'txt to Traveline' flags installed and strategically placed stops display full Flexi Service information. In addition, 2 high quality bus shelters, with highly visible timetable information, were installed at Ladybank railway station for interchange with express bus services and rail services to both Dundee and Edinburgh. A letter drop, including timetable information, was targeted at all households within the area prior to the service start date. Information was displayed also at Fife Council local offices, libraries and supermarkets, etc.
The service proved to be very popular with excellent support from passengers. Passenger numbers increased from 2,000 during the first 4 weeks of the service to an average of 3,000 per 4 weeks from February 2005 onwards. Demand from the flexibly-routed parts of the service around Grange of Lindores, Collessie, Kettlehill and Coaltown of Burnturk showed a similar increase over the same period, accounting for about 8% of total passengers throughout. Fife Council were awarded further funding to enable them to continue to support this service - one of the more successful DRT pilot projects - from April 2006 for a further 2 years.
Conclusion
As people age, the way in which they relate to the physical environment in which they live can change. Good design, good planning and good transport meeting the mobility and access needs of older people are all important: together they can greatly enhance the participation of older Scots in their communities and wider society.
The Scottish Executive is committed to ensuring that communities - including their older members - are fully involved in the decisions that relate to them through participation in community planning partnerships. And we are committed also to ensuring that housing strategies respond to the needs of an ageing population, and will explore new options to address the varying housing and support needs of older people across all tenures. We recognise that most people want to stay in their own homes for as long as possible, and will continue to support initiatives towards this end.
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