Sovereign Network Group (202440787)

REPORT

COMPLAINT 202440787

Sovereign Network Group

16 September 2025

Our approach

The Housing Ombudsman’s approach to investigating and determining complaints is to decide what is fair in all the circumstances of the case. This is set out in the Housing Act 1996 and the Housing Ombudsman Scheme (the Scheme). The Ombudsman considers the evidence and looks to see if there has been any ‘maladministration,’ for example whether the landlord has failed to keep to the law, followed proper procedure, followed good practice, or behaved in a reasonable and competent manner.

Both the resident and the landlord have submitted information to the Ombudsman and this has been carefully considered. Their accounts of what has happened are summarised below. This report is not an exhaustive description of all the events that have occurred in relation to this case, but an outline of the key issues as a background to the investigation’s findings.

The complaint

The complaint is about the landlord’s handling of the resident’s reports of:
1. The installation of external wall insulation (EWI).
2. A roof leak, damp and mould, and associated repairs.
We have also considered the landlord’s complaint handling.

Background

The resident is an assured tenant of the landlord. The landlord is a housing association. This is a 3-bedroom semi detached house and the resident lives there with her 4 children. The rent at the time of the complaint was £166.18 per week. There are household vulnerabilities noted on file, including neurodiversity, allergies, and respiratory issues.
The resident had submitted a previous complaint about external wall insulation (EWI), to which the landlord responded on 29 July 2022. In this complaint response, the landlord acknowledged that there had been delays and poor communication in its installation of EWI. It said it was working to identify a contractor to complete the work at the earliest opportunity.
On 1 November 2023 the resident reported a leak coming from her roof and causing damp and mould to her walls and various areas of her property. She said the insulation in the roof was “soaking wet” and causing a damp smell. She reminded the landlord of the household vulnerabilities and said her daughter could not use her bedroom. Between 10 to 16 November 2023 the landlord inspected the property’s loft and roof and identified work to improve roof ventilation. It also supplied the resident with a dehumidifier.
The resident made a stage 1 complaint on 22 November 2023. She said she had experienced disrepair for approximately 6 years. She said leaks from the roof made her home cold, caused damp and mould, and damaged her personal possessions. The resident said the landlord considered EWI necessary in 2019, but it had not progressed this improvement. The resident informed the environmental health team of the effect the property conditions were having on her family’s health and wellbeing.
The landlord responded to the resident’s stage 1 complaint on 8 December 2023. It said:
1. It had identified the need for a roof repair while investigating the cause of damp and mould.
2. It would undertake the necessary work to identify asbestos, install scaffolding in December 2023, and complete the remedial repairs.
3. It acknowledged the resident’s desire for EWI and explained it was investigating this option, and it would update her.
4. It acknowledged the presence of damp and mould and mould in a bedroom and hallway and how this was, in part, due to the roof leak and lack of EWI.
5. It upheld her complaint.
The resident made a stage 2 complaint on 21 December 2023. She said the landlord’s action has not improved the property. She sought compensation for the adverse health effects on her family and damage caused to her property and possessions. She was also concerned with the delays in complaint handling.
The landlord responded to the resident’s stage 2 complaint on 21 March 2024. It apologised for the condition of the property, lack of EWI, and delays with its complaint handling. It explained it had replaced the roof in February 2024 and planned additional improvements to the property. These included installing EWI and new windows and doors. It summarised what it had learned from the resident’s complaint and how it would improve. It offered £1650 compensation. This was made up of £600 for the delays to the EWI installation, £250 for the delay to roof repairs, £700 for distress and inconvenience since 2018, and £100 for its complaint handling.

After the internal complaints procedure

The resident remained unhappy with the landlord’s response and brought the complaint to us. She said she wanted the landlord to apologise for what she had experienced and compensation for the damage caused to her personal possessions.
In April 2024 the resident engaged a solicitor to pursue a disrepair claim(this has not been to court). Between April to May 2024 the landlord completed a structural survey and replaced the property’s windows and doors. An independent survey in May 2024 identified additional repairs which the resident states the landlord’s survey did not identify.
During a telephone call and subsequent email communication with us in August 2025, the resident said several works remained outstanding. She also expressed dissatisfaction with the workmanship of the works undertaken.

Assessment and findings

Scope of investigation

The resident has said that the handling of this matter by the landlord has led to a deterioration in the health of the household. Whilst we appreciate the resident’s distress, we cannot draw conclusions on the causation of, or liability for impacts on health and wellbeing. This is best considered by the courts. But we have considered the resident’s general distress, frustration, and inconvenience.
The resident has stated that she first requested the EWI in 2019. We understand the resident’s frustration, but it would not be reasonable for this Service to investigate from 2019. We would expect a resident to bring a complaint to us within a reasonable time, usually within one year after the landlord’s complaint response.
Given that the landlord committed to completing the EWI works on 29 July 2022, it is fair and reasonable for us to consider events from this date until the landlord completed these works in May 2024.
We will be investigating the leaks, damp, and mould from 31 October 2023 until 2 August 2024. We consider it reasonable to investigate until 2 August 2024, as the resident reported damp and mould on 31 October 2023 and some remedial works were still outstanding as of 2 August 2024.

Installation of external wall insulation

The landlord’s tenancy agreement and repairs policy state that under Section 11 of the Landlord and Tenant Act 1985, it is responsible for the structure and exterior of the home. This includes external walls.
The tenancy agreement says that the landlord will carry out repairs in a reasonable time and in line with its published timescales.
The repairs policy says that it will agree specific completion targets for any major works which it identifies as necessary to individual homes (ad hoc major works). These major structural maintenance works are outside the scope of its responsive and planned repairs timelines. However, it will communicate and agree timelines with residents.
There is no dispute that there were significant delays between 29 July 2022 when the landlord agreed to instal the EWI and the date it installed it (May 2024). The landlord acknowledged the delays in its stage 2 complaint response of 21 March 2024. It apologised and offered the resident £600 for the delays (which she accepted). It also completed the works in May 2024.
However, it did not do enough to provide redress to the resident for the time, trouble, distress, and frustration. The long delays from July 2022 to May 2024 had an adverse effect on the enjoyment of her home. Also, the lack of communication from the landlord caused her further frustration and impacted on the landlord and resident relationship.
On 29 July 2022 the landlord told the resident that it would look into completing works on the EWI insulation at the “earliest opportunity”, but the resident waited 1 year and 9 months until this was installed.
Also, the communication from the landlord was poor. The records show that she chased the landlord for an update about the EWI on at least 10 occasions between August 2022 and December 2023. The landlord did not provide any update or response, until its stage 1 complaint response of 8 December 2023. This lack of communication is contrary to the landlord’s repairs policy. Further it is not resident focussed and caused the resident distress and frustration. Also, at this stage, it still offered no date or timeline of works. This was 15 months after it had committed to do the works, and an unreasonable delay.
Although we understand that complex structural works require a lot of time, approval and expense, the landlord had approved these works in July 2022. So, the delay was inappropriate. Further, it should have communicated any progress, or lack thereof with the resident. It should have managed her expectations. It did not do this which is a failing. This caused the resident further frustration and continued to impact on the enjoyment of her home and on the landlord and resident relationship.
Also, the resident had made the landlord aware of the health conditions of her household. There is no evidence on file that it considered these when attempting to implement the works. This is a failing and not resident focussed. This caused the resident distress and continued to impact on the landlord and resident relationship.
In total, the resident waited from 29 July 2022 until the end of May 2024 to have the EWI installed. The landlord had said the EWI was approved in July 2022. So, the landlord should have installed this sooner or communicated any delays to the resident. The fact it did not, caused the resident distress and frustration and time and trouble in pursuing the issue. It also impacted on the resident’s enjoyment of her home for a prolonged period.
Due to the substantial delays and the landlord’s lack of communication and updates to the resident, we have made a finding of maladministration. This is instead of the more serious severe maladministration. This is because the landlord completed the works in May 2024, albeit with a significant delay. It has also acknowledged its failings and paid the resident £600 compensation.
Along with our finding of maladministration, we have made an order for a further £500 compensation. This is in line with our remedies guidance where there has been a failure. And the landlord has gone some way to provide redress but has not done enough to recognise the adverse effect on the resident. We have also made an order for the landlord to provide training to relevant staff, in respect of its repairs policy and major works.

Roof leak, damp and mould and associated repairs

The landlord’s repairs policy states that it is responsible for the structure of the building, including roofs, chimneys and drainage and plumbing systems.
It operates the following timeline for repairs:
1. Emergency repairs will be dealt with within 24 hours.
2. It aims to complete non emergency repairs within 38 days of residents reporting these.
The policy says that in some circumstances, it may need someone else in the team to identify the cause of the repair issues and fully specify the scope, complexity and extent of actual works required. This includes structural issues, work needing complex diagnostics, and works where it may need to employ a specialist contractor.
Follow on repair works may be placed onto a programme for completion within 6 months of the date of the original repair visit.
The landlord advises this Service that it is currently working on a damp and mould policy. The information on damp and mould from its website says:
1. It recognises that mould can damage homes and poses health risks, particularly for those with respiratory conditions. It is important to address mould promptly.
2. It treats damp and mould as a priority repair. It will arrange a home visit or video assessment at “a convenient time” and aims to assess and carry out initial works within 14 calendar days.
3. It will discuss any necessary treatments and provide follow ups as needed. For severe cases, it will arrange a follow up visit or call within 3 months to ensure the issue has not returned.
The landlord’s repairs policy states that its insurance only covers the structure of the building and residents should arrange contents insurance for their own belongings.
Its compensation policy states that it will refer residents to its own public liability insurance team in the case of damage to personal belongings. Its insurer will investigate and determine whether the landlord has been at fault and if it is liable for damages.
It says that the exception to this is where damage has been caused directly because of its actions or omissions and when the facts are not in dispute.
There is no dispute that there were delays and failings in the landlord’s handling of the resident’s reports of a roof leak, damp and mould and associated repairs. The landlord has acknowledged this, apologised and offered the resident a total of £950 compensation (which she accepted). It has also carried out various repairs.
However, although it provided some redress, it did not do enough. It took too long to attempt to establish the root cause of the sources of damp and mould. It also failed to consider the resident’s household vulnerabilities and the loss of one bedroom. This caused the resident distress and frustration and impacted on the enjoyment of her home.
The resident reported a leak through her roof on 31 October 2023. She also completed the landlord’s damp and mould triage report. She said there was damp and mould coming through one of the bedrooms and the whole length of the property. She also said that 2 of her children were neurodiverse.
It was reasonable that the landlord inspected the roof leak on 1 November 2023. It carried out this inspection as an emergency repair, which was appropriate and within its timelines. It concluded that the damp and mould was due to condensation from “sweating from the roof” into the loft insulation. It also provided a dehumidifier, which was reasonable. However, the landlord’s repair records show that “this was an ongoing issue” which had been dealt with by a colleague. Since this was an “ongoing issue” it is unclear why this had not been addressed sooner.
Also, the resident reported damage to the structure of the property and to her belongings and furniture. There is no evidence that the landlord did anything to expedite the repair. Although the repair had been marked as “urgent,” the landlord did not carry out any interim repairs and this caused the resident distress and frustration and impacted on the enjoyment of her home.
It is unclear if the landlord referred the resident to its insurer or if it considered reimbursing her for the damage to her belongings, as per its repairs and compensation policy. There is no evidence on file, that it did so and this is a failure in its record keeping.
Although we understand that roof replacements or extensive repairs would be categorised as major works, and take time and planning, we would expect the landlord to carry out some interim actions to attempt to make the area weatherproof.
It did arrange for a full survey of the roof and organised a roof replacement, but it did not communicate its intentions to the resident. This is not resident focussed and caused the resident distress and frustration and time and trouble in pursuing the issue. It did not update the resident until its stage 1 response of 8 December 2023. This is over one month after the resident reported the issue and an inappropriate delay. Had it communicated its proposed actions sooner with the resident, it would have managed her expectations.
The roof was replaced on 14 February 2024, less than 4 months after she reported the issue. This is reasonable and within the landlord’s policies for major follow-on works. However, as stated above, the communication from the landlord was poor. It did not update the resident in a timely manner and failed to manage her expectations. This caused her time and trouble as she chased progress on at least 4 occasions from October 2023 until January 2024. She also involved Environmental Health and her Member of Parliament (MP). Had the landlord communicated with the resident, she may not have had to escalate the matter.
Although the landlord did replace the roof within its timescales, there is no evidence that it carried out any other appropriate damp and mould inspections to the rest of the property until 22 April 2024. This was 6 months after she reported the damp and mould. She repeatedly asked the landlord to send a “suitably qualified” damp and mould specialist to attend to the structural issues in the property and the landlord did not do this. This was not appropriate and not resident focussed.
We understand that identifying the causes of damp and mould can be a complex and multifaceted process, but the landlord did not adopt an inquisitorial approach. It told the resident that the EWI installation and the roof replacement should resolve the damp and mould issues. It failed to carry out any investigations into the structure of the building until 6 months later, which was unreasonable. This caused the resident distress and inconvenience and impacted on the enjoyment of her home. This is particularly pertinent as the resident had put the landlord on notice of her household vulnerabilities. On 22 November 2023 she had said that her child had respiratory issues and was unable to use the bedroom due to the damp and mould.
Damp and mould is classified as a category 1 hazard under the Housing, Health, and Safety Rating System (HHSRS). The landlord’s own damp and mould information from its website acknowledges that damp and mould can have an adverse effect on health if it is not addressed promptly.
It would have been appropriate for the landlord to arrange a damp and mould inspection when the resident reported it. Instead, it focussed solely on the roof and assumed that the repair and installation of EWI would resolve the issue. It did not arrange a whole property survey until the resident contacted a solicitor to lodge a disrepair claim in April 2024. This delay is contrary to the information on its website, which states it treats damp and mould as an “urgent” repair, which it will respond to within 14 days.
In its inspection of 22 April 2024, the landlord identified various issues contributing to the damp and mould. This included:
1. Raised moisture readings throughout some areas of the property.
2. Cracked and failed paintwork on the exterior render.
3. A breach of the damp proof course from a step by the external door (installed by its contractor).
4. A poorly installed stud wall (fitted by the landlord) on the external wall to the bedroom which had no barrier or insulation.
5. A lack of bathroom extractor fan.
6. A damaged concrete path up to the front entrance of the house.
It instructed remedial works for the above, including fitting an extractor fan in the bathroom.
The resident’s surveyor (instructed by her solicitor) also carried out a survey on 30 May 2024. They identified the above works. They also recommended that the sloped ceilings in the bedrooms should be reboarded with insulated plasterboard to remedy “cold spots” in the rooms. They said these were contributing to the damp and mould. They also said that the new windows had defective hinges throughout. And the expanding foam around the newly replaced doors needed to be trimmed.
Although it is appropriate that the landlord carried out a survey in April 2024, it should have done this sooner. If it had done so, the repairs may have been completed much sooner. The fact it did not, is not resident focussed.
These delays caused the resident distress and frustration and impacted on the enjoyment of her home. On 31 October 2023 she had told the landlord that her daughter could not use her bedroom due to the damp and mould. The landlord failed to consider the detriment to the resident and the impact on the household. It did not complete a damp and mould inspection until the resident’s solicitor instructed it to do so (or allow it to appoint its own suitably qualified person). This is a further failing and not resident focussed.
Also, there is no record on file that the landlord raised any ceiling plaster works. And the resident advises that these have still not been repaired.
As at 2 August 2024 the landlord had not completed many of the works identified in the survey. This was nearly 3 months after the landlord conducted the survey. We would have expected the landlord to carry out works identified in a reasonable time. We consider 3 months to be a reasonable time frame to carry out works. It did not do these within 3 months (and many of the works remain outstanding as of September 2025) so we have investigated up to 2 August 2024.
As of 28 August 2025, the resident states many of the works have now been completed, apart from the bathroom extractor fan, which is still outstanding. She says the landlord has not carried out any internal works, apart from a mould wash. She also told us that the chimney was not repaired. She further states that the landlord’s contractor has installed ill fitting external windowsills, which allow water ingress. And she said the landlord has fitted an ill-fitting canopy above her front door, which has caused further water penetration.
Due to the delays in carrying out a full property survey, and the detriment to the resident, we have made a finding of maladministration.
We would have made a finding of severe maladministration, but for the fact that the landlord has completed many of the repairs. It has also awarded compensation and apologised to the resident. We have also made an order for £1300 compensation for the loss of one bedroom from 31 October 2023 until 2 August 2024(this is 20% of the weekly rent from these dates).
We have also ordered the landlord to provide damp and mould training to all relevant staff.
We have also ordered the landlord to arrange a date with the resident to fit a bathroom extractor fan. Additionally, we have ordered it to inspect the following and provide a timeline of repairs:
1. The chimney stack and guttering.
2. The external render.
3. The windowsills and front and back door.
4. The canopy over the front door.
5. The bedroom ceilings.
6. The internal hallway wall (by the front door) and any other affected internal areas.
We have also ordered the landlord to consider the resident’s claim for damage to her personal belongings or refer the resident to its insurer (if it has not already done so).

The landlord’s complaint handling

This Service’s complaint handling code (The Code) states that a complaint is an expression of dissatisfaction, however made.
The landlord’s complaints policy states that it will respond to stage 1 complaints in 10 working days and stage 2 complaints within 20 working days. It will let residents know if there will be delays in responding.
The landlord’s communication records show that the resident attempted to make a complaint on 3 November 2023, and the landlord did not log this complaint until 22 November 2023. This is a failing and contrary to the Code. This caused the resident frustration and time and trouble in pursuing the issue.
The landlord did not provide its stage 1 complaint response until 8 December 2023. Although this is a minor delay of 6 working days, it should have recorded the resident’s complaint on 3 November 2023, and this further delay compounded the resident’s frustration.
The resident made a stage 2 complaint on 21 December 2023, and the landlord responded on 21 March 2024. This is 62 working days and considerably outside of its 20-day response time. Also, it did not communicate with the resident to let her know of any potential delays. This is a failing which caused the resident frustration and time and trouble in pursuing the issue.
Further, it impacted on the resident being able to approach this Service to have her issue investigated. This is because we do not investigate complaints until after the landlord has provided its stage 2 (final) complaint response.
However, there is no dispute that there were failings in the landlord’s complaint handling. It has apologised for the delays and offered the resident £100 compensation (which she accepted). It has also stated that it has learned lessons from the complaint. As such, we have made a finding of reasonable redress.

Determination (Decision)

In accordance with Paragraph 52 of the Scheme, there was maladministration in the landlord’s handling of the resident’s reports of the installation of external wall insulation.
In accordance with Paragraph 52 of the Scheme, there was maladministration in the landlord’s handling of the resident’s reports of a roof leak, damp and mould and associated repairs.
In accordance with Paragraph 52 of the Scheme, there was reasonable redress in the landlord’s complaint handling.

Orders

Within 4 weeks of this report, the landlord is ordered to:
1. Apologise in writing to the resident for the failings identified in this report.
2. Instruct a suitably qualified person to inspect the following and provide a timeline of repairs:
  1. The chimney stack and guttering.
  2. The external render.
  3. The windowsills and front and back door.
  4. The canopy over the front door.
  5. The bedroom ceilings, the internal hallway wall (by the front door) and any other affected internal areas it identifies.
3. Arrange a date with the resident to install a bathroom extractor fan.
4. Provide the resident with the name and contact details of a single point of contact in respect of the inspection(s) and repairs.
5. Arrange training for all relevant staff in respect of its repairs policy and handling of major works.
6. Arrange damp and mould training to all relevant staff.
7. Consider the resident’s claim for damage to her personal belongings or refer her to its insurer if it has not already done so.
8. In addition to the compensation already paid, pay the resident £1800. This should be paid directly into her bank account and not offset against any arrears (if applicable). This is made up as follows:
  1. £500 for the distress and frustration and impact on the enjoyment of her home for the delays to the external wall insulation.
  2. £1300 for the loss of one bedroom from 31 October 2023 to 2 August 2024 in respect of the resident’s reports of damp and mould. This is 20% of the weekly rent (20% of £166.18 = £33.26 per week. £33.26 x by 39.1 weeks = £1300.00).
The landlord should provide this Service with evidence of compliance with the above orders.