Tackling Housing and Tenant Concerns

New complaints

More tenants are reaching out to us with concerns about housing. These issues disproportionately affect vulnerable tenants and remain a significant driver of complaints.

So far this financial year, we have received 2,939 new complaints about public services, of which 473 related to housing. Housing complaints account for 16% of our overall new caseload, a decrease from 19% in 2024-25. Despite this reduction, housing remains our second most complained-about subject.

Almost half (49%) of new housing complaints concerned damp and mould or repairs and maintenance. A further 18% related to neighbour disputes and anti-social behaviour.

Closed complaints

So far this financial year, we have closed 2,763 complaints about public services, including 537 housing complaints.

Where we find that an organisation has made a mistake, we intervene to ensure it puts things right. This can happen without a full investigation through Early Resolution, or following an investigation by upholding a complaint or suggesting a settlement between the body and the complainant.

Of the 537 housing complaints closed, 73 were upheld, predominantly through Early Resolution. Of these, 50 related to damp and mould or repairs and maintenance.

The overall intervention rate for housing complaints was 13%, which is slightly below the intervention rate for complaints about public services during the same period. However, complaints about damp and mould and repairs carried intervention rates of 33% and 49% respectively, demonstrating that these issues are more likely to require action.

Complaints about neighbour disputes and anti-social behaviour had an intervention rate of 13%. While these issues account for a significant proportion of housing complaints, they are upheld much less frequently.

Across all upheld housing complaints, 41% of our recommendations included financial redress. 92% of recommendations included an action by the organisation, most commonly to address outstanding repairs. This underlines the value of resolving cases early, enabling practical improvements and better outcomes without the need for a full investigation.

Problems around damp and mould can have devastating consequences if not solved promptly and effectively.

In Wales, the Renting Homes (Wales) Act 2016 places obligations on landlords regarding the condition of the homes that they let. The Welsh Housing Quality Standard (“WHQS”) 2023 also sets out the standards expected for social housing in Wales, against which landlords are measured. The Welsh Government has recently announced an update to the WHQS, to come into force on 1 April 2026, which sets out how social housing landlords should investigate and remedy significant hazards, including damp and mould.

A tenant survey undertaken by TPAS Cymru[1] in response to the WHQS consultation on the changes, found that tenants said hazards were a daily source of anxiety when not resolved.  Poor communication often compounded these concerns, with damp and mould seen not only as health risks but as an indication that tenants’ voices were not being heard.  The impact on vulnerable tenants was also highlighted, as a seemingly small issue could become a significant barrier to safety and independence.

Towards the end of last year, we published 4 public interest reports on cases involving disrepair, damp and mould. Public interest reports are published where issues have wider relevance beyond the individual case and where other organisations can learn from what went wrong. Read more public interest reports on our website, and see summaries of the cases below.

Cardiff Council – Case reference 202404828

Ms C complained about the condition of the property she rented from Cardiff Council. We investigated whether the Council failed to respond to and act upon reports of leaks and extensive damp and mould at the property appropriately and in a timely manner. Our investigation also considered whether, after the property was identified as not fit for human habitation in July 2024, the Council carried out repair works in a timely manner and made reasonable efforts to provide alternative accommodation for Ms C’s family.

Our investigation identified serious service failures which had a devastating impact on Ms C and her family. The Council missed numerous opportunities over nearly 4 years to properly investigate and resolve the causes of the leak and the damp and mould. By March 2024 the property had fallen into an appalling state of disrepair. There were extensive patches of black mould throughout the property and large amounts of water were leaking through a gaping hole in the kitchen ceiling and cascading over live electrical fittings onto surfaces and units.

We found that the damp and mould posed significant hazards to the health of Ms C and her family, some of whom suffered from asthma. It also damaged or destroyed many of the family’s possessions. The despair of living in such poor conditions over a long period appeared to have contributed to the slow disintegration of the family unit to the point that all family members had moved out.

Ms C and 2 of her daughters spent many months living in unsuitable conditions with her elderly mother. The failure to properly consider the family’s need for alternative accommodation caused them further stress and confusion and meant they had to endure several more months without access to a home which was fit for them to live in.

As a result of these failings, we recommended that Cardiff Council apologise to Ms C and provide her with £3,000 in financial redress. The Council should also remind staff in the Responsive Repairs Unit to treat all tenants with respect and compassion, particularly regarding complex repairs and issues with damp and mould.

The Council was also asked to provide evidence of review outcomes and action plans, including responses to the thematic disrepair and damp report, and to identify any other tenants affected by systemic issues and provide redress where needed. Finally, the Council should carry out an equality impact assessment of its repair and damp and mould policies.

Read the full report here.

Flintshire County Council – Case reference 202401983 

Miss Y complained about the way her landlord, Flintshire County Council, had responded to reports of damp and mould in her home and whether it had taken appropriate action to provide alternative accommodation.

We found that the Council failed to identify that Miss Y had made numerous repair requests regarding the same issue. Repair requests were treated in isolation. Officers visited Miss Y’s home on numerous occasions to address new issues, whilst previous repair requests remained outstanding. As such there were many missed opportunities to identify damp and mould and carry out work to address this.

The Council did not act in a timely manner once the extent of the works needed to Miss Y’s home were known. Miss Y and her children were left living in unacceptable conditions for 5 months after the Council became aware of damp in her home.

We were concerned that the failings identified in this case may be systemic. The failings identified in this case, particularly in relation to identifying and responding to repeated repair requests, are ones from which other organisations can learn. As a result, we recommended that the Council apologise to Miss Y and provide financial redress. The Council should also ensure Housing and Communities officers complete paperwork accurately and contact Miss Y to confirm any outstanding work, including a clear completion schedule. Additionally, the Council should develop processes to identify, record, and escalate repeated repair requests.

Further recommendations focused on improving internal procedures. These included creating guidance for assigning Tenant Liaison Officers, developing a more specific decant policy, and reviewing procedures for conducting and recording pre-letting inspections.

Read the full report here.

Trivallis – Case reference 202402960 

Mr B complained about the way the housing association Trivallis dealt with reports of repairs at his home. We investigated whether the Association responded appropriately to reports of damp and mould and a broken boiler.

We found that the Association did not respond appropriately to reports of damp and mould in Mr B’s home. When Mr B reported issues to the Association, they were not dealt with in line with relevant policies and guidance. As a result Mr B lived in a home with outstanding repairs for nearly 7 years.

The Association did not respond appropriately to reports of a broken boiler in Mr B’s home and did not follow its repairs policy. During the period boiler repairs were awaited, Mr B was not able to heat his home to a comfortable level. A repair was eventually carried out after Mr B’s wife made a complaint to the Association.

Again, we were concerned that these failings may be systemic. The Association did not provide an explanation as to why, despite Mr B making many repair requests, problems were not resolved sooner. The failings identified during this investigation are also significant. Association employees did not attend Mr B’s home to carry out an inspection of his roof; photographs from a previous visit were used to support the incorrect assertion that they did. The Association also failed to provide records requested as part of this investigation.

Read the full report here.

Trivallis – Case reference 202405250 

Mrs C complained about whether Trivallis responded appropriately to reports of damp and mould made by her between November 2023 and the present time.

Our investigation found that the Association did not always respond appropriately to reports of damp and mould. Reports of issues in Mrs C’s home were not always acted on promptly or line with relevant policies.

During our investigation, surveys had identified moisture in the same area of Mrs C’s home but the Association was yet to definitively establish the cause. The  Association’s communication with Mrs C was not always appropriate and we saw no evidence that the Association considered the needs of disabled children living in Mrs C’s home when responding to reports of damp and mould. Again, we were concerned that these failings may be systemic, with opportunities missed to identify the issues in Mrs C’s home.

For this case and case 202402960 above, we made a number of similar recommendations. The Association was asked to apologise to the complainants and provide financial redress, and to ensure all relevant staff receive training to identify and respond appropriately to vulnerable customers, including scenario-based training to apply lessons from these cases.

We also recommended developing and implementing a clear damp and mould procedure, including inspecting and addressing any damp in Mrs C’s property, and establishing processes to identify, record, and escalate repeated repair requests, as well as analysing information from property sensors on damp and mould. In addition, the Association was advised to review their records management processes to ensure compliance with our “Good Records Management Matters” principles, and to share these reports with the Association’s Assurance Committee.

Read the full report here.

The cases above demonstrate the impact that unresolved housing issues can have on tenants, emphasising the importance of timely action. They also highlight recurring themes that provide clear opportunities for improvements across the housing sector:

1. Acting in a timely manner

This is crucial when tenants report damp, mould or repair request. Prompt action not only prevents problems from becoming more complex or costly to resolve, but also helps to maintain trust that concerns are being taken seriously.

If it is not possible to act promptly for a valid reason, communication should be clear and include a proposed date for inspection or repair. Early and transparent communication helps manage expectations and reduces anxiety, particularly for tenants in vulnerable situations.

2. Treating requests as one problem, not in isolation

As seen in case 202401983, treating repair requests in isolation can leave underlying issues unresolved. Failing to connect related reports can mean missed opportunities to identify wider problems, such as widespread mould or persistent leak affecting multiples areas of a property.

While issues may not always be connected, asking whether they could be linked helps ensure that root causes are identified and addressed, reducing the risk of disrepair worsening over time.

 3. Following relevant policies and guidance when dealing with requests

As demonstrated in both Trivallis cases, following relevant policies and guidance is vital to ensure requests are handled consistently and resolved appropriately.

Welsh Government guidance in Social Housing Conditions and Disrepair: Feedback to Social Landlords states that social landlords should “ensure measures are in place to specifically identify and address reported issues with damp and mould”, including inspections by default, accurate diagnosis, prompt rectification of deflects and appropriate tenant support.

If policies and guidance are not followed, the risk of error increases and it becomes harder to track progress and remedies. Adhering to guidance therefore supports both service quality and accountability.

Not all cases require a full investigation to achieve meaningful outcomes. Many complaints are resolved at an earlier stage through Early Resolution, where organisations accept fault and take prompt corrective action. These cases often involve serious issues and still provide important learning for the sector. The examples below highlight common themes from cases resolved in this way. You can browse or search summaries of our closed cases on our website.

Delays in addressing urgent repairs and hazards

In cases 202408308 and 202408991, 202505478 and 202503132, tenants experienced significant distress due to delays in addressing urgent repairs.

In case 202408308, a Housing Association failed to respond for several months to repeated concerns about outstanding repairs to a 90-year-old tenant’s property, only inspecting after MP involvement.

In case 202408991, Miss A endured extensive disrepair since early 2023, including black mould, roof leaks, unsecured windows, missing insulation, asbestos needing replacement, and a loss of heating and hot water over Christmas, alongside a large hole in the ceiling. Where work had been carried out, it was of poor quality and caused further damage to the property and possessions.

In case 202505478, Miss A complained about knives, nails, weights and waste buried in the grass in her garden, which she said caused rat infestations and created an unsafe environment for her young children. The Association did not properly address the issue, leaving the family unable to use the garden safely.

In case 202503132, Ms A complained that agreed repairs and improvements to her garden, boundary fence and driveway had been delayed. Although some work had been carried out, delays and inadequate completion caused stress, anxiety and frustration.

These cases highlight the importance of following repairs and complaints policies to inspect properties promptly, address hazards effectively, and ensure repeated concerns are logged and tracked as formal complaints. Clear communication and timely action are essential to prevent harm and reduce distress for tenants.

Lack of or insufficient updates and clarity on the plan for necessary works

In cases 202503782, 202503266, 202409225 and 202500849, tenants experienced frustration and distress due to unclear communication and a lack of updates on planned repairs.

In case 202503782, Ms A complained that Trivallis had failed to resolve outstanding bathroom repairs, including a leaking toilet, damp and mould, and a non-functioning shower. Although the Association upheld the complaint in July 2024, repairs remained incomplete and no clear schedule was provided for a planned bathroom replacement. The lack of meaningful updates caused ongoing inconvenience and frustration.

In case 202503266, Mrs A raised concerns about delays in repairs. We were concerned that repairs remained outstanding and that Mrs A had not received a formal written response. The Association agreed to provide a written apology, confirm the steps it will take to complete the necessary works, and respond in line with its complaints procedure.

In case 202409225, a tenant’s representative complained that Adra had failed to fix a water leak since May 2023, resulting in damp and mould. While Adra attempted to address the issue externally, it did not keep the tenant updated or respond to reports of damp and mould inside the property.

In case 202500849, Mr A complained that Adra failed to complete repairs he reported over months and years. He said he struggled to get updates and did not receive a written response to his second complaint. Mr A said that some repairs had not been acknowledged, and he had lost faith that all repairs would be completed in a timely manner. Mr A said the delays were affecting his physical and mental health.

These cases highlight the importance of clear, regular communication and formal complaint responses, particularly where repairs are complex or long-running. Keeping tenants informed about planned works and expected timelines can prevent frustration and reduce the likelihood of escalation.

Failings in the complaints process, including not logging complaints correctly or failure to issue complaint response

In cases 202502986, 202501517 and 202501762, tenants experienced uncertainty and frustration because their complaints were not logged or responded to in line with the organisation’s complaints procedure.

In case 202502986, Mr X complained that Adra had failed to repair a draught coming from his windows. He complained in January 2025 but did not receive a complaint response.

In case 202501517, Mrs X complained that Cardiff Community Housing Association had damaged her wall. The Association issued a response, but it was not a formal complaint response and was not issued in line with its complaints procedure.

In case 202501762, Mr X complained about the communal heating supply and additional charges following works by Denbighshire Council. The Council provided a Freedom of Information response but did not provide a formal complaint response.

These cases demonstrate the importance of ensuring complaints are properly recorded and responded to, so tenants have confidence their concerns are being dealt with correctly.

The cases highlighted in this newsletter show how quickly housing issues can escalate when they are not resolved promptly, clearly communicated, or properly recorded. They also demonstrate why our work in this area matters, not just for individual tenants but for wider learning across the social housing sector.

In November, we launched a consultation on a proposed Oown Iinitiative investigation into whether Registered Social Landlords (“RSLs”) and local authorities are appropriately responding to reports and concerns relating to disrepair, with a focus on damp and mould, taking into consideration the needs of vulnerable tenants. The consultation closed in December and we received responses from tenants, social housing providers, Welsh Government and third sector advice, advocacy and support organisations. The vast majority supported an investigation into how providers handle disrepair, damp and mould, and related complaints.

Following careful consideration of all the consultation responses we received at this stage, we believe that our criteria for undertaking an Own Initiative investigation have been met.  We have decided to move forward to propose two investigations.  We have published a document which provides further detail of our analysis of the consultation responses and our reasons for deciding to proceed to propose these investigations. We have written to the two RSLs that we are proposing to investigate, to give them the opportunity to comment, before deciding whether to commence these investigations.  We will continue to review whether we should also propose Own Initiative investigations into other bodies.

In the meantime, we will also continue to use our casework to identify learning and encourage improvements across the sector. We will share updates on our website as soon as they are available, and we remain committed to ensuring housing complaints are taken seriously and resolved quickly.