Social housing sector: engaging with tenants from ethnic minority backgrounds

5. Context

5.1 Demographics

According to the 2022 Census, 12.9% of Scotland’s population identified as being from a minority ethnic background. In urban centres the proportion is higher, with 27.2% of Glasgow’s population and 12.92% of Edinburgh’s identifying as minority ethnic.

The Scottish Government’s ‘Housing needs of minority ethnic groups: evidence review’ (2021) suggests African communities are disproportionately represented in the social rented sector, while South Asian and Chinese communities are more likely to live in owner occupation or private rent. Equally the review suggests higher risks of overcrowding and housing insecurity among some minority ethnic groups.

5.2 Representation and data

A thematic inquiry by the Scottish Housing Regulator (2016), based on 2014/15 data, showed that tenants from ethnic minority backgrounds, staff, and board members of housing organisations, were underrepresented compared with the wider population. The data used in that study is now ten years old, and no equivalent dataset has since been published. This creates gaps in meaningful evidence to fully understand representation and engagement across the sector.

5.3 Legal and policy framework

• Equality Act 2010: Brought together previous anti-discriminatory legislation under one act. It legally protects people from discrimination in the workplace and wider society. The act defines race as including colour, nationality, and ethnic or national origins. Race is a protected characteristic under the act, which places a duty on public bodies and service providers not to discriminate and to promote equality.

As part of the Equalities Act 2010, the public sector equality duty came into force across the United Kingdom in April 2011. This duty means that public bodies must consider all individuals when carrying out their day-to-day work in shaping policy, in delivering services and in relation to their own employees.

It also requires that public bodies have due regard to the need to:

Eliminate discrimination;

• Advance equality of opportunity; and
• Foster good relations between people when carrying out their activities
• Housing (Scotland) Act 2001: Introduced a statutory framework for tenant participation in Scotland, giving tenants and Registered Tenants Organisations a right to tenant participation and consultation in the social rented housing sector. These rights were further enhanced in the Housing (Scotland) Act 2010 - with the introduction of the Scottish Social Housing Charter (the Charter) and the establishment of the Scottish Housing Regulator which monitors landlord performance against the Charter’s outcomes & standards.
• Scottish Social Housing Charter (2012, updated 2017 and 2022): Sets out the standards and outcomes that all social landlords should achieve when performing their housing activities. The Charter was formally introduced in 2012 and is reviewed regularly. It does not prescribe how landlords should involve tenants - including tenants from ethnic minority backgrounds - in participation and scrutiny activities.

Three outcomes are particularly relevant to this study:

• Outcome 1: Equalities – Every tenant and other customer has their individual needs recognised, is treated fairly and with respect, and receives fair access to housing and housing services.
• Outcome 2: Communication – Tenants and other customers find it easy to communicate with their landlord and get the information they need about their landlord, how and why it makes decisions, and the services it provides.
• Outcome 3: Participation – Tenants and other customers find it easy to participate in and influence their landlord’s decisions at a level they feel comfortable with.

Equality & fairness are identified as cross-cutting principles across the Charter.

• National Race Equality Framework (2016–2030): Commits the Scottish Government and partners to tackling racial inequality, including in housing, participation, and representation.

5.4 Previous research

A range of studies have highlighted the barriers faced by minority ethnic tenants in housing. Shelter Scotland and the Coalition for Racial Equality & Rights (CRER) have documented challenges including racial harassment, lack of larger family homes, and limited culturally appropriate housing. Reports have also emphasised the need for more robust data collection and for landlords to take proactive steps to address racial inequality.

More recent research has reinforced these findings. Is There a Seat at the Table?

(Jackson & Young, 2024) examined diversity in housing governance and found that minority ethnic representation on housing association boards was extremely limited.

The study called for stronger action to address underrepresentation at decision-making levels.