Approaches to empty building conversion by authorities in England.
Our Research Empty Spaces to Homes
The UK housing crisis affects over 3 million people, yet thousands of non-residential buildings – with the potential to be repurposed into hundreds of thousands of homes – sit empty. This research explores strategies used by authorities in England to convert empty non-residential buildings into homes, addressing sustainable and affordable housing needs.
The report finds that conversions can reduce embodied carbon compared to new builds, be delivered more quickly, and generate wider place-based benefits – both social and economic. It recommends that authorities adopt a strategic approach to maximise impact.
Effective action begins with understanding the scale and nature of local opportunities. Authorities should undertake capacity studies to identify vacant non-residential buildings, assess their condition, establish ownership and estimate housing potential. Properties should be categorised according to viability and risk to support prioritisation.
Different places present different opportunities. Rather than pursuing isolated projects, authorities should identify patterns and concentrate effort where opportunities are greatest and efficiencies are possible.
Authorities should combine funding streams wherever possible. Combined authorities are particularly well placed to align multiple funding sources through devolved settlements and integrated investment programmes.
Conversion projects frequently span multiple departments and, without dedicated leadership, progress can stall. A dedicated project officer or programme manager can coordinate stakeholders, drive delivery, manage risks and maintain momentum, complemented by senior sponsorship at Cabinet and Director level.
Successful conversions require specialist expertise and clear expectations. Authorities should establish design principles covering affordability, sustainability, energy efficiency, accessibility, space standards, heritage considerations and long-term management – building internal technical capability or accessing external expertise.
Many promising opportunities are located in town centres, particularly in vacant retail and upper-floor spaces. Residential use can increase footfall, support local businesses, improve perceptions of safety and strengthen community ownership of place.
Conversions are often most successful when delivered as part of larger regeneration programmes rather than standalone projects. Combining housing delivery with public-realm improvements, heritage restoration, commercial renewal and infrastructure investment can improve viability and attract external funding.
Traditional appraisal methods often focus narrowly on unit numbers and immediate financial returns. A wider assessment of value – including homelessness costs, health outcomes, carbon savings, heritage, jobs and growth, civic pride and demand on public services – can strengthen business cases and unlock additional funding.
Many authorities tackle similar challenges but often operate in isolation. Cross-sector forums, taskforces, communities of practice and regional partnerships can accelerate learning, reduce duplication and spread successful delivery models.
The construction sector faces growing skills shortages, particularly in retrofit, refurbishment and heritage restoration. Authorities should work with colleges, training providers, developers, housing associations and combined authorities to ensure local skills programmes include conversion and retrofit competencies, supporting housing delivery while creating local employment.
Get in touch with our team.