Downsizing protocol for council housing

Contents

• Purpose and Scope
• Legal and Policy Framework
• Key Principles and Objectives
• Roles and Responsibilities
• Consumer Standards - Tenancy Standard
• Tenant Downsizing Offer - Financial Incentives
• Tenant Downsizing Offer - Support and Caseworking
• Equality and Inclusion
• Monitoring and Review
• Compliance and Governance
• Appendices

Purpose and Scope

Oxford City Council’s Downsizing Protocol is designed to help tenants in council homes move to smaller, more suitable accommodation. This supports tenants to sustain their tenancies, and frees up larger homes for families in need. The protocol applies to all permanent council housing, including both general needs and sheltered accommodation.

This document provides the operational framework for delivering downsizing activity consistently and lawfully. The protocol sits within the Council’s wider housing policy framework and should be read alongside the Allocations Policy, Housing, Homelessness and Rough Sleeping Strategy and associated procedures.

The tenant downsizing offer, including financial incentives and practical support, is communicated separately through tenant‑facing materials. This protocol explains how that offer is implemented by staff and how outcomes are monitored.

Legal and Policy Framework

The protocol operates within the Housing Act 1985, Housing Act 1996, Social Housing (Regulation) Act 2023, and Equality Act 2010. It aligns with Oxford City Council’s Allocations Policy and Homelessness Prevention Strategy, ensuring fair access, early intervention, and compliance with regulatory standards. In addition, staff implementing the Downsizing Protocol will follow all relevant wider Oxford City Council policies and procedures. This ensures a joined-up approach, avoids duplication, and maintains compliance with the council’s full suite of housing policies.

Key Principles and Objectives

• Early Intervention: Identify under‑occupation at the earliest opportunity and offer timely downsizing support to prevent tenancy risk and homelessness.
• Holistic, Tenant‑Centred Support: Address financial, health, social, and wellbeing needs that are identified while carrying out work within this protocol, through tailored interventions that support independence, tenancy sustainment, and improved outcomes.
• Partnership Working: Work collaboratively with internal services (Allocations, Homelessness Prevention, Tenancy Sustainment, Landlord Services) and external partners including Health and Social Care to deliver coordinated support.
• Safeguarding: Promote and protect the wellbeing of all tenants, with particular focus on those who are vulnerable or have additional or complex needs.
• Equality and Inclusion: Ensure fair, transparent, and accessible support for all eligible tenants through robust assessment, prioritisation, and clear communication.
• Good Use of Housing Stock: Make best use of council housing by encouraging moves that free up larger homes for families in need and matching tenants to accommodation that best fits their circumstances.
• Compliance and Governance: Align with Oxford City Council’s Allocations Policy, comply with the Social Housing Act (2023) and Consumer Standards, and document and evidence outcomes through clear processes, monitoring, and reporting.
• Voluntary and Financially Sustainable Moves: Downsizing is a voluntary choice for tenants and is not a requirement of their tenancy. Tenants retain the security of their existing tenancy rights. Prior to any move, officers will undertake appropriate affordability checks to ensure that tenant is not financially worse off because of downsizing, including consideration of rent levels, service charges and ongoing living costs.

Roles and Responsibilities

• Landlord Services (Housing Officers): The Area Housing Team plays a crucial role in identifying tenants who may benefit from downsizing, providing ongoing support, and ensuring that tenants are aware of and can access the downsizing scheme. Their local knowledge and direct contact with tenants make them essential for targeted intervention and outcomes.
• Housing Strategy and Performance Team: In relation to the Downsizing Protocol, the Housing Strategy Team uses data to identify trends in under-occupation, allow targeted support to those identified as under occupying, evaluate the effectiveness of downsizing initiatives, and support evidence-based improvements, ensuring that the protocol aligns with broader housing objectives and delivers measurable outcomes
• Allocations Team: Team is central to the downsizing process, as they support under-occupying tenants with bidding, property allocation and issue formal offers for alternative accommodation, and ensure that moves are prioritised and managed fairly. Their assessments underpin the eligibility and smooth operation of the downsizing protocol.
• Assessment Team: Responsible for evaluating tenants’ individual circumstances to determine eligibility and priority for downsizing, including consideration of under-occupation, health needs, and required property adaptations. This ensures that tenants are matched to suitable accommodation and that those who would benefit most from downsizing are appropriately supported. 
• Under-Occupation Team: The Under-Occupation Team coordinate the entire process, from proactive outreach to tenants under-occupying, initial contact and eligibility checks, through to move planning, financial support, and post-move follow-up, ensuring tenants receive the support needed.  
• Homeless Prevention Team: Responsible for providing targeted support and interventions to households at risk of homelessness, including delivering statutory advice, managing complex cases, and administering financial assistance such as Discretionary Housing Payments (DHP) to help tenants sustain their tenancies. Their role links directly to the Downsizing Protocol by collaborating with housing teams to identify under-occupation cases, facilitate moves to more suitable accommodation, and ensure that tenants who downsize receive holistic support to prevent homelessness and maintain housing stability.
• Partner Agencies: Health, social care, and voluntary sector organisations contribute specialist support and interventions leading to downsizing outcomes.

Consumer Standards - Tenancy Standard 

Requirement “Registered providers must develop and deliver services that seek to address under‑occupation and overcrowding in their homes. These services should be focused on the needs of tenants”. (Specific expectation 2.1.3, Tenancy Standard, Regulator of Social Housing, April 2024)

Tenant Downsizing Offer - Financial Incentives

As part of our package to support downsizing, the council offers financial incentives and practical support. Full details of payments and eligibility are provided in the tenant information materials referenced in the appendices. 

Oxford City Council offers financial incentives and practical support to help tenants who are under‑occupying larger homes to move to more suitable accommodation. Where a tenant accepts a downsizing offer through the Allocations Scheme, the Council provides a one‑off compensation payment based on the size of the property they are moving from and to, helping to recognise the disruption involved and encourage moves that free up much‑needed family housing.  

In addition, the Council will contribute towards reasonable and agreed moving costs, such as removals and essential reconnection expenses, to reduce the financial burden of relocating. These incentives and payments are funded and managed by the Council to support better use of the housing stock, while ensuring tenants are supported throughout the move and not left out of pocket because of downsizing.

For details on the Compensation and Expense payments, see our Incentive scheme for council tenants to move into a smaller home page.

Tenant Downsizing Offer - Support and Caseworking

This section explains how the Council delivers the tenant downsizing support offer, including incentives and agreed moving costs, alongside holistic support to enable the tenant to move and make a home in their new property. 

• Identification of Downsizing Opportunities: Furnished Tenancy and Under‑Occupation Officers, working jointly with Area Housing Officers within Landlord Services, proactively identify tenants who are under occupying their homes, with data support from the Housing Strategy and Performance Team. This is achieved through regular reviews of the housing register, monitoring changes in household circumstances (such as joint to sole tenancy conversions), and targeted data analysis of the Council’s housing stock and tenant data. Both the Under Occupation and Housing Officer Teams undertake personalised outreach, including phone calls, emails, letters and home visits. Downsizing opportunities are also identified during routine tenancy updates and property inspections carried out by Area Housing Officers, ensuring that under occupation is flagged and that tenants are supported to consider more suitable accommodation where appropriate. This coordinated proactive approach across the two teams, facilitated by regular joint meetings, ensures that opportunities for downsizing are not missed and that tenants’ changing needs are routinely reviewed as part of effective tenancy management. 
• Help and applying: From filling out the transfer application to moving house the Under-Occupation Officer and Housing Officer can help. Tenants can email the Under-Occupation Team at underoccupationteam@oxford.gov.uk or Speak to customer services where the team will assist and answer any questions they may have regarding this scheme. 
• Tenant Engagement: The Council actively promotes downsizing opportunities and associated support through a range of communication channels. Information outlining the offer and eligibility criteria is published on the Oxford City Council website, ensuring accessibility for all tenants. The Tenants in Touch magazine - now branded as Residents’ Voice - features real-life case studies, updates on newly built properties across the city, and regular reminders of the benefits and support available. These communications are designed to encourage tenants to consider downsizing and to seek further advice where appropriate.
• Referral Pathways: Clear internal processes ensure that tenants who are downsizing are referred promptly to the Furnished Tenancy and Under-Occupation Team. Where additional needs are identified (such as health, mobility, or financial concerns), referrals are made to occupational therapists, financial inclusion teams, or external agencies as appropriate.
• Support Interventions: Officers from the Furnished Tenancy and Under-Occupation team, Allocations Team offer specialised assistance to tenants considering relocation. Services may include guidance on the advantages of downsizing, provision of financial incentives, practical support with removals and decluttering, help with benefit applications, coordination of property adaptations, and targeted assistance for specific challenges such as hoarding or health-related concerns.
• Case Management: Each downsizing case where a new tenancy offer is made is overseen by a Furnished Tenancy and Under Occupation Officer. The Officer delivers a structured action plan that includes regular case reviews, comprehensive record keeping, and collaboration with relevant internal and external agencies where required. They manage the process from initial engagement through to post move support, ensuring tenants are fully informed and appropriately supported at every stage. All procedural requirements, including debt verification and compensation payments, are completed in line with established policies and protocols. The team aims to maintain a single point of contact throughout the process, particularly during the offer and move stages, to provide consistency and reassurance for tenants.

Equality and Inclusion

Oxford City Council is committed to promoting equality, diversity, and inclusion. An Equalities Impact Assessment is conducted for the Allocations policy and Housing, Homelessness and RS strategy. Services are accessible to all, without discrimination on grounds of age, disability, gender, race, religion, or any other protected characteristic. Reasonable adjustments and accessible communication formats are provided as needed.

Monitoring and Review

• Performance Monitoring: Downsizing is monitored through existing housing management performance frameworks, including the annual lettings plan and reporting on under‑occupation moves. Data is used to track the number of larger family homes released and overall contribution to housing supply. Where available, learning from tenant feedback and service‑wide satisfaction measures is used to inform service improvement.
• Performance Reporting: Annual reports are presented to senior management, with trends and learning points shared across teams.
• Annual Review: The protocol and procedures are reviewed annually, or in response to legislative changes, with input from staff, tenants, and stakeholders.
• Stakeholder Consultation: Regular engagement with tenants and partners ensures the policy remains relevant and effective.
• KPIs and Performance Indicators:

Compliance and Governance

The Council will maintain evidence of compliance for audit purposes, including case records, training procedures, and partnership agreements. The protocol aligns with Oxford City Council’s Housing and Homelessness Strategy and complies with all relevant regulatory requirements. Governance arrangements ensure accountability at every level, from frontline staff to senior management.

Appendices

Appendix 1

See our Housing, Homelessness and Rough Sleeping Strategy 2023 to 2028.

Appendix 2

Consumer Standards Summary Sheet for Downsizing Protocol (Council Housing)

1. Safety and Quality Standard

Objective: Ensure tenants move into safe, secure, and well-maintained homes; maintain high standards throughout the downsizing process.

Application to Downsizing Protocol:

• All properties offered for downsizing meet statutory safety requirements (gas, electrical, fire safety).
• Compliance records are maintained and checked before any move.
• Repairs and adaptations (where needed) are completed prior to tenancy start.
• Tenants receive clear information about property condition and safety at offer and sign-up.

2. Transparency, Influence and Accountability Standard

Objective: Promote openness, tenant involvement, and clear accountability in the downsizing process.

Application to Downsizing Protocol:

• Tenants are provided with clear, accessible information about the downsizing scheme, eligibility, and support available.
• Decisions (e.g., eligibility, prioritization, offers) are communicated transparently, with reasons and appeal routes.
• Performance data (e.g., number of moves, satisfaction rates) is published and reviewed.
• Tenants are encouraged to give feedback and influence service improvements.

3. Neighbourhood and Community Standard

Objective: Support sustainable, safe, and inclusive communities through effective downsizing.

Application to Downsizing Protocol:

• Moves are planned to minimize disruption and support community cohesion.
• Partnership working with internal teams and external agencies (e.g., Health, Social Care) to address wider needs.
• Early identification of risks (e.g., ASB, safeguarding) and proactive support to sustain tenancies.
• Estate inspections and ongoing engagement to maintain neighbourhood standards.

4. Tenancy Standard

Objective: Ensure fair, efficient, and lawful management of tenancies during and after downsizing.

Application to Downsizing Protocol:

• Allocation and letting of properties follow the Allocations Policy and statutory requirements.
• Tenancy changes (e.g., assignments, successions) are managed in line with legislation and council policy.
• All statutory notices and documentation are issued correctly.
• Support is provided for tenants with additional needs (e.g., reasonable adjustments, accessible formats).

5. Tenant Satisfaction Measures

Objective: Monitor and improve tenant satisfaction with the downsizing process.

Application to Downsizing Protocol:

• Collect feedback at key stages (initial contact, move, post-move support).
• Use Tenant Satisfaction Measures (TSMs) to track repairs, communication, and overall experience.
• Act on feedback to improve processes and outcomes.
• Report satisfaction data to senior management and stakeholders.

Appendix 3

See ourIncentive scheme for council tenants to move into a smaller home page.

Appendix 4

See our Housing Register Allocations Scheme - summary version.

For further details, staff and stakeholders are advised to consult the Council’s website and contact the Housing Needs Team for guidance or clarification.

Approval Date: 8 May 2026
Review Schedule: Annually, or as required by legislative or strategic changes