WE

ARE
GENERATION
RENT
Threshold’s annual tenant sentiment survey 2023

Threshold
preventing homelessness
B T
 hreshold’s Annual Tenant Sentiment Survey 2023
Contents
Acknowledgements 3
Introduction 4
We are Generation Rent 5
Structure of the Report 6
Methodology 8
Profile of Respondents 9
Age Profile 9
Gender 10
Type of Rental Accommodation 10
Household Type 11
County of Residence 11
Income 11
Aspirations and Expectations of Private Renters 14
Reasons for Renting 14
Improving Renting 16
Aspirations and Expectations 18
Experiences of Renting 21
Feeling of Security 21
Length of Time Renting 25
Reasons for Leaving Previous Rental Home 26
Finding a Home to Rent 27
Relationship with the Landlord 28
Affordability 29
Changes to Rent 32
Accessing the Rent Tax Credit 34
Experience of the Housing Assistance Payment (HAP) and Rent Supplement (RS) 37

 Threshold’s Annual Tenant Sentiment Survey 2023 1

 Standards, Repairs and Overcrowding 38
Standards and Repairs 38
Overcrowding 39
Impact of Covid-19 41
Moving Back to the Family/Parental Home 43
Socio-Economic Details of those Living in a Parental Home 43
Aspirations and Expectations of those Living in a Parental Home 43
Summary of Findings 45
Aspirations and Expectations of Private Renters 45
Experiences of Renting 45
Affordability 45
Accessing the Rent Tax Credit 46
Experience of the Housing Assistance Payment (HAP) and Rent Supplement (RS) 46
Standards, Repairs and Overcrowding 46
Impact of Covid-19 46
Moving Back to the Family/Parental Home 46
Recommendations 48
Right to Housing 48
Provision of Housing 48
Affordable Purchase 48
Cost Rental 49
Social Housing 49
Private Rental 49
Improve Security of Tenure 49
Improve Standards 50
Improve Affordability 50
Changes to HAP and Rent Supplement 50
Conclusion 52

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 hreshold’s Annual Tenant Sentiment Survey 2023
Acknowledgements
Threshold would like to thank all the clients who not just
participated in the survey but shared their personal experiences
of the private rental sector. A thank you is also due to Threshold
staff members, Chloe, and Louise, who made the calls and
emailed the respondents.

As with all of Threshold’s work, the collective efforts of the team

in supportive research, ideation, editing, and proofing are critical
and much appreciated.

The Annual Tenant Sentiment Survey was led by both Gareth

Redmond, our Research and Policy Officer, and our Policy Intern,
Chloe Kilpatrick, with the assistance of the National Advocacy
Manager, Ann-Marie O’Reilly, Campaigns Officer, Cat Clark, and
Legal Officer, Zak Murtagh.

 Threshold’s Annual Tenant Sentiment Survey 2023 3

 Introduction
Threshold is a national housing charity providing Threshold’s vision is an Ireland where everyone
frontline advice and support services to private has access to affordable, secure, suitable, and good
renters facing problems in their tenancies. quality housing in sustainable communities.
Threshold prevents private renters from entering
homelessness, advocates on their behalf, empowers Threshold’s mission is to prevent homelessness and
them to assert their rights and seeks to influence to campaign for housing as a right for all, by:
national housing policy for the benefit of all those in
need of a secure, sustainable home. ■  roviding tailored advice and
p
representation to tenants and their families.
Threshold has offices in Dublin, Galway, and Cork,
■  elivering services and supports that
d
operates a National Freephone Helpline (1800 454
protect tenancies and prevent people in the
454) from 9am to 9pm, a webchat service from
residential rented sector from becoming
9:30am to 5:00pm and an online video consultation
homeless.
service from 9am to 4pm, all available Monday to
Friday. Threshold provides several services directly ■  dvocating for housing rights, through
a
to tenants in the private rental sector, advocacy and policy and legal positions informed by our
policy work at a national level and is a registered services.
Approved Housing Body. This is the sixth survey in the series of Threshold’s
Annual Tenant Sentiment Surveys, the first was
In 2022, Threshold assisted almost 20,000 conducted in 2018. In addition, Threshold has
households throughout Ireland. In Quarter 1 of published several research reports that are relevant
2023, Threshold assisted 9,256 households - that is to the topics discussed in this paper, all of which are
12,181 adults and 8,036 children. free and can be accessed at www.threshold.ie.

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 hreshold’s Annual Tenant Sentiment Survey 2023
We are Generation Rent
The purpose of the annual survey is to give voice to people who are renting long-term.
the experience of Threshold’s clients, “Generation
Rent,” their aspirations and frustrations. For most As part of this continued long-term experience,
people, the term “Generation Rent” describes “Generation Rent” are now in their 20s, 30s,
people in their 20s living in house shares, who may 40s and even at retirement age. They may have
not have the opportunity to gain greater security delayed starting a family, may have experienced
of tenure by purchasing their own home or moving homelessness, been unable to accumulate savings
into social housing in the future. for an unexpected yet necessary expense, had to
couch surf, or move house on a regular basis as the
The phrase is generally used when highlighting the security of a home becomes a distant dream.
potential negative impact that long-term renting
may have on their life choices and outcomes. The new worry for those who feel trapped in the
However, the concept of “Generation Rent” no private rental market is the uncertainty about their
longer applies to just those in their 20s as home future: will they still be renting when they retire?
ownership continues to drop. Preliminary data Will their children have to move schools? What will
from the 2022 Census indicates that the proportion happen if the rent increases to a level that means
of owner-occupied dwellings continued to fall; they cannot afford it or other bills? These are the
down from almost 70% to 66% in the 11 years types of worries experienced and expressed by
to 2022. In addition, the number of occupied Threshold’s clients.
dwellings rented from a private landlord increased
by 7% since 20161. Threshold is concerned for the well-being and
prospects of those renting long-term. The lack of
The transformation in housing tenure that has security and the ever-growing rent burden, both
occurred across traditional homeowner societies features of the Irish private rental sector, have
is not a new phenomenon. In many Anglo-sphere lifelong consequences. These consequences are
nations, homeownership levels have declined not just for the renter; they also apply to broader
markedly since the 2008 recession and have been society and Ireland’s asset-based welfare system,
matched by an increase in households renting which is reliant on home ownership. In its present
from private landlords2. This trend is reflected in state, the private rental sector is not a viable option
the existence of “Generation Rent,” a term used to for those seeking a long-term home.
capture a broad range of inequalities in access to
housing, secure employment, and welfare support We are also worried about the effect of the
among younger households3. aforementioned issues on those who have been
unable to access the private rental market. The
Keeping this in mind, the negative effects of renting term coined for these people is “Generation Stuck
beyond young adulthood are no longer theoretical. at Home.”
They are real and are being experienced by many

1
Central Statistics Office of Ireland (2023), “Census of Population 2022 - Summary Results”, https://www.cso.ie/en/releasesandpublications/ep/
p-cpsr/censusofpopulation2022-summaryresults/dwellingcharacteristics/ (accessed on 06/06/23)
2
Waldron, R., (2023), Generation Rent and Housing Precarity in ‘Post Crisis’ Ireland”. Housing Studies, 38(2), pp. 181-205
3
Insley, J. “Housing Market Fears as ‘Generation Rent’ Keeps Away from Property Ladder,” theguardian.com/money/2011/may/31/housing-
market-generation-rent.The Guardian, 31/05/2011 (accessed on 19/05/23)

 Threshold’s Annual Tenant Sentiment Survey 2023 5

 The continuation of this story, as has been told in afforded by home ownership, something which
previous surveys, is that most private renters do cannot be provided by the private rental sector in
not rent by choice. For the reasons stated above its current form. Recognising housing as a right
and throughout this survey, most respondents means that every person should have the safety
would prefer to own their own home. It should be and security of their home, irrespective of whether
no surprise that they desire the safety and security they own or rent it.

Structure of the Report

The report begins with the methodology, followed The analysis goes on to examine the affordability
by a profile of respondents. of rents paid, renters’ experience of the Rent Tax
Credit, the Housing Assistance Payment (HAP) and
Analysis of the data is presented under several Rent Supplement (RS), as well as the matter of
headings. The “Aspirations and Expectations of poor Standards and Overcrowding in the home.
Private Renters” are explored in the first section.
This includes a new section with respondents’ The final sections detail the impact of Covid-19 on
descriptions of what would make renting better for private renters and the reasons why some renters
them. moved back into the family or parental home.

The is followed by “Experiences of Renting,” which The report finishes with a summary of the findings
includes private renters’ feelings of security, why and a set of policy recommendations.
they left their last rental home, the difficulty in
finding a home to rent, their relationship with their
landlord, and how long they have been renting for.

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 hreshold’s Annual Tenant Sentiment Survey 2023
 Threshold’s Annual Tenant Sentiment Survey 2023 7
 Methodology
Potential respondents were identified among A small number of those ineligible to participate in
Threshold’s clients who had closed a case the survey got in touch to say they had emigrated
between July 2021 and June 2022 and had given but would have welcomed the opportunity to
their consent to be contacted for the purposes of speak about their experience of renting in Ireland.
research. A total of 1,200 clients were contacted Consideration will be given to expanding the 2024
by phone or email, of which 164 chose to proceed survey to include those who have emigrated, to
with the survey. gain an understanding of the push factors they
experienced whilst living at home.
In 2022, five staff members conducted over the
phone interviews. This year, however, only two As the survey was emailed to clients this year,
staff members were available to conduct the questions from 2022 were modified to remove
interviews.Both faced significant challenges in possible ambiguity and to make the survey more
reaching people; either calls went unanswered or user friendly. For example, calculator tools,
people were reluctant to do the survey over the information links and signposting to Threshold’s
phone. The increase in scam calls in Ireland in the services were included. Comment boxes were
last year may have been a contributing factor in added to various questions providing respondents
this. Most people who participated in the survey with the opportunity to share their views and
did so by email, in their own time. This trend will personal perspectives. This approach was adopted
inform the methodology for 2024. to facilitate hearing directly from renters speaking
in their own voices.
Respondents who were experiencing
homelessness, were couch surfing, had secured All respondents were given the opportunity
social housing, had bought their own home, to decline answering any question. Where the
or chose not to disclose the nature of their number who declined to answer was sizeable, it is
accommodation were not asked to complete the noted in the analysis and represented in the charts.
survey. In all, 45 were not eligible to participate, Where the number declining was negligible, this is
as the aims of this research were focused on the considered in calculating figures but not included
experience of those currently renting and those in the charts.
who had returned to the parental home. Those
who were in homeless or insecure accommodation Throughout the survey, respondents were
were offered the opportunity to speak to a prompted to contact Threshold if they were
Threshold advisor for support. experiencing issues in their tenancy. Several
respondents availed of this offer and an advisor
The final sample was 119 respondents. contacted them following the survey.
Respondents who reported living with their
parents, five in total, were asked a separate and Pseudonyms are used in the case studies,
shorter set of questions, which are analysed identifying details altered and all quotes are direct.
separately in this report.

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 hreshold’s Annual Tenant Sentiment Survey 2023
Profile of Respondents
Age Profile
In Ireland, the private rental sector has long been viewed as a stepping-stone to buying your own home,
as an in between stage for people in their 20s before they ‘settle down’. This has now changed. Several
factors, including financial instability and the shortage of affordable and social homes, has contributed
to an increase in the age profile of renters over time. For the last number of years, the Threshold Tenant
Sentiment Survey has shown the typical age of a renter is getting older. In 2022, over half of respondents
were aged between 35 and 54. This year’s results show that 59% of respondents were aged between 35 and
54, and 12% were 55 or older.

Graph 1: Age Profile

25%

20%

15%

10%

5%

0%
18-24 25-29 30-34 35-39 40-44 45-49 50-54 55-59 60-64 65-69 70-74

 Threshold’s Annual Tenant Sentiment Survey 2023 9

 Threshold and ALONE have recently launched Double Deficit4, a joint report detailing the experiences of
ageing and older persons in the private rental sector. The report made several recommendations to improve
the situation of older people currently renting. Additional recommendations for those who anticipate that
they will remain living in the private rental sector into old age - relating to increasing investment for age-
appropriate housing and supports, as well as developing a long-term strategy for housing as people age -
were also made.

Gender
There were more female respondents than male:

Female: 60%
Male: 40%

Type of Rental Accommodation

Approximately three-quarters of respondents were renting their own home. Three in twenty were living in
house shares and 7% were in licence arrangements. A licence arrangement describes a scenario where the
person is renting a room in the home of the owner or from another tenant. Only one respondent was living
in Purpose Built Student Accommodation.

Graph 2: Type of Rental Accommodation

Purpose Built Student Accommodation

Renting from a room from another tenant

Renting a room in the landlord's home

Renting a room in a house share

Private rental tenancy

0% 9% 18% 27% 36% 45% 54% 63% 72% 81% 90%

4
Threshold and ALONE (2023), “Double Deficit: Older and Ageing Persons in the Irish Private Rental Sector,” https://threshold.ie/wp-content/
uploads/2023/05/Double-Deficit.pdf (accessed 07/06/2023)

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 hreshold’s Annual Tenant Sentiment Survey 2023
Household Type
A significant proportion of respondents did not have children; 24% were couples without children and 37%
were single without children. One quarter of participants were in a two-parent family and 10% were one-
parent households. Most households with dependent children, 70%, were ages between 35-44.

Graph 3: Family Type

Other

One-parent family

Two-parent family

Couple, no children

Single, no children

0% 5% 10% 15% 20% 25% 30% 35% 40%

County of Residence
Just under 79% of those who took the survey lived in Leinster, with 54% clients based in Dublin. Only 8% of
those who took the survey were based in Cork and 7% were based in Galway. Approximately 13% were in the
Greater Dublin Area (Kildare, Meath, and Wicklow).

Income
According to the Central Statistics Office, the median disposable household income in Ireland was €46,999 in
20225. Almost 80% of those who participated in the survey earn less than this.

Survey on Income and Living Conditions (SILC) 2022, https://www.cso.ie/en/releasesandpublications/ep/p-silc/

5

surveyonincomeandlivingconditionssilc2022/householdincome/ (Accessed 03/05/23)

 Threshold’s Annual Tenant Sentiment Survey 2023 11

 However, the median disposable income of those renting or living rent-free was only €38,017. Just over 70%
of respondents earn less than €40,000 a year. This indicates that those who participated in the survey are in the
lower income deciles of the population.

Graph 4: Income
20%

15%

10%

5%

0%
< €15,000 €15,000 €20,001 €25,001 €30,001 €35,001 €40,001 €45,001 €55,001 €65,000 +
< €20,000 < €25,000 < €30,000 < €35,000 < €40,000 < €45,000 < €55,000 < €65,000

Given that over three-quarters of those surveyed were in employment, it is surprising to see the low level
of wages.

Graph 5: Source of Income

Full-Time Employment
2% 2%
3%
Part-Time Employment
4%
Social Welfare Payment
5%
Self-Employment
5%
Disability Payment
9%
59% Pension

12% Student Grant

Other

Rather Not Say

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 hreshold’s Annual Tenant Sentiment Survey 2023
 Threshold’s Annual Tenant Sentiment Survey 2023 13
 Aspirations and Expectations of
Private Renters
Reasons for Renting
Each year, Threshold asks those who participate in the survey why they rent, where they would prefer to live
in five years’ time, and where they expect they will be living in five years’ time.

As in previous years, only a small proportion of respondents stated that they rent by choice.

■ 59% are unable to buy a home

■ 17% rent by choice
■ 12% cannot get social housing
■ 12% did not specify

Graph
80% 6: Reasons for Renting

70%

60%

50%

40%

30%

20%

10%

0%
By choice Cannot access social housing Unable to buy own home

2020 2021 2022 2023

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 hreshold’s Annual Tenant Sentiment Survey 2023
As in 2022, less than 20% of renters interviewed wish to rent by choice, with most people stating they are
renting as they are unable to buy their own home. This may be related to the increase in house prices and
rents which limit renters’ ability to save the deposit required to access a mortgage.

The national Residential Property Price Index (RPPI)6 rose by 6.1% in the 12 months to January 2023,
with prices in Dublin rising by 4.3% and prices outside Dublin up by 7.4%. The median price of a dwelling
purchased in the 12 months to January 2023 was €305,000. This is eight times the median income of a renter.

Income level appears to be a decisive factor for people who are renting, as indicated in the chart below.
However, of the 11 respondents earning more than €65,000 a year, 45% stated that they rent because they are
unable to buy their own home.

Graph 7: Reasons for Renting by Income Range

100%

80%

60%

40%

20%

0%
< €15,000 €15,000 €20,001 €25,001 €30,001 €35,001 €40,001 €45,001 €55,001 €65,000+
< €20,000 < €25,000 < €30,000 < €35,000 < €40,000 < €45,000 < €55,000 < €65,000

Cannot access Unable to buy

By choice Rather not say
social housing own home

Central Statistics Office, (2023), Residential Property Price Index (RPPI) March 2023, https://www.cso.ie/en/releasesandpublications/ep/p-rppi/
6

residentialpropertypriceindexjanuary2023/ (accessed 03/05/2023)

 Threshold’s Annual Tenant Sentiment Survey 2023 15

 Many of the comments offered by those who ■  Lower price definitely because if paycheck
“
participated in the survey indicate that home is €2,200, I give €2,000 for rent every
ownership is their preferred tenure of choice but is month and live off the €1.700 my husband
unaffordable. Examples of this include: gets for all of us and kids etc.”
(Female; 25-29; €25-30k; Two-Parent Family;
“Would
■  much rather buy but renting really Dublin)
prevents me from saving much.”
■  Regulation on price and standards. I
“
(Male; 25-29; €45k-55k; Single; Dublin)
would stay a renter if it was a more certain
■  Simply impossible to raise a deposit as
“ option than it currently is.”
a single person while paying extortionate (Female, €35-40k, Couple, Dublin)
rent.”
The lack of security in renting was a common
(Male; 50-54; €65k+; Single; Louth)
theme for renters. Some of the comments include:
“Cannot
■  afford to buy a home due to
the price of property and our salaries ■  Not to be pressurised by landlord into
“
are not high enough to get a big enough
paying more rent and for them to stop
mortgage.”
asking us when we are leaving. They often
(Female; 40-44; €40-45k; Two-Parent Family;
make veiled threats and say they cannot
Dublin)
afford to keep the house at the current
rent, and we are concerned they will sell.”
(Female; 55-59; -€15k; Two-Parent Family;
Improving Renting Galway)
“More
■  security longer leases and more
This year’s survey included a question where the rights as they have in other European
respondents were asked what would make renting countries.”
better for them. (Female; 40-44; €40-45k; Two-Parent Family;
Dublin)
Clear themes emerged from the responses. For
example, the need for more affordable rental ■  Security, and not that the landlord can
“
homes. Over half of the respondents referenced kick you out because he decided to sell
the unaffordability of the private rental sector the apartment, although we signed the
and the lack of supply. Here is what some of the contract...like my case from the previous
participants had to say. apartment.”
(Female; 45-49; €20-25k; One-Parent Family;
■  More housing on the market. Prices are
“ Meath)
the biggest barrier - banks not recognising
■  Secure place to live like social house.”
“
you are paying rent when applying for
(Female; 40-44; €25-30k; One-Parent Family;
mortgage.”
Dublin)
(Male; 30-34; €35-40k; Two-Parent Family;
Kilkenny) ■  To not feel like your landlord is going to
“
■  Lower price, availability, all the obvious
“ sell if you complain too much & ultimately
things, so I can save some money, feel like this would help you buy/get into a
hopefully for a deposit to buy a house, but permanent home, like for them to consider
probably not in this country, definitely not that I can pay my rent so I could pay a
this lifetime.” mortgage.”
(Female; 40-44; €25-30k; One-Parent Family; (Female, €25-30k, Single, Dublin)
Laois)

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 hreshold’s Annual Tenant Sentiment Survey 2023
Another key theme related to tenants living in The findings and commentary from the
properties that were beneath the minimum respondents reveal the lack of security felt by
standards. As the examples below indicate, the renters, the poor standards they are forced to put
matter of poor standards is felt deeply by renters: up with, and the high rents that we already know
are making the private rental sector an undesirable
■  All rentals are subject to local county
“ place to live in. Under these conditions, it can be
council regulations and so any faults suggested that the tenants are residing rather than
reported by tenant and deemed living in their homes, viewing these as places to
necessary is carried out by council and temporarily rest their head. This lack of security
cost associated is then deducted from and sense of home was explored by Dr. Byrne and
landlord.” Dr. McArdle in “Security and Agency in the Irish
(Male, €35-40k, Two-Parent Family, Private Rental Sector”7.
Kilkenny)
Beyond this, these comments illustrate the
“If
■  the landlord looked after the property emotional toll of private renting. Some of the
better, we as tenants have spent money comments highlight a lack of control and a
doing it up. If he was better at getting back sense of feeling powerless in the tenant-landlord
about issues we have before they become relationship. This undermines tenants’ ability to
big problems, or the appliance completely create a home and to feel a positive connection
breaks. If they stuck to the rules.” to where they live. It further indicates the fact
(Female; 30-34; +€65k; Single; Dublin) that most renters view the private rental sector as
tenure of last resort, not where they want to live in
■  Tenure and minimum standards not to be
“
the long term.
a step above squalor- why are standards
for renters lower than normal health and
safety? This mould thing is dangerous for
many people especially post Covid.”
(Female; 55-59; Cork)

7
Byrne, M. (2020). “Security and Agency in the Irish Private Rental Sector,” https://threshold.ie/wp-content/uploads/2022/06/security_and_
agency_in_irish_private_rented_sector_july2020.pdf?_gl=1*11m2s8p*_up8ga*MQ..”_ga”MTY4MDQ2Nzl3My4xNjg2MTQ1Njky”_ga_W53ZJZ
(accessed 08/06/2023)

 Threshold’s Annual Tenant Sentiment Survey 2023 17

 Aspirations and Expectations
For most of those surveyed, renting is not their tenure of choice. This is demonstrated by the fact that only 9%
wish to be still renting in five years’ time, whereas 61% would prefer to own their own home and 17% would
like to move into social housing.

Graph 8: Aspiration vs Expectation

Living with family or friends

Renting with HAP

Private rental sector

Social housing

Homeowner

0% 10% 20% 30% 40% 50% 60% 70%

Expectation Aspiration

In comparison, very few of those surveyed expect to realise their aspiration of home ownership in that period.
Only 39% expect they will own their own home in five years’ time and 15% expect to have social housing.
Despite it not being the preferred tenure of most, 31% expect they will still be renting in five years’ time.

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 hreshold’s Annual Tenant Sentiment Survey 2023
One respondent stated that they expect to be living “in another country than Ireland”. In the CSO’s “Pulse
Survey: Our Lives, Our Money”8, which explores people’s opinions on the cost of living, 43% of those in rented
accommodation were considering emigration to lower their cost of living.

One of the clients who was contacted to partake in the survey had emigrated and emailed us to say:
“myself and lots of other fellow 22-year-olds I know have left Ireland since the pandemic”.
The client added: “I’ve gone to Australia since autumn 2022 and don’t plan on coming back to
Ireland for a few years or maybe indefinitely, unfortunately”.
Other comments from respondents, when asked about their housing expectations, illustrate how people feel
about their future opportunities and renting in the long-term.

“A hovel. Rent is a stupid percentage of income.” (Male; 50-54; €35-40k; Two-Parent Family; Longford)
“It is ‘inevitable’ to end up renting, seems like there is no escape.” (Female; 35-39; €30-35k; Couple; Dublin)
 

“Central Statistics Office (2022) “Pulse Survey: Our Money”, https://www.cso.ie/en/methods/socialconditions/pulsesurvey-ourlivesourmoney/

8

(accessed 03/05/23)

 Threshold’s Annual Tenant Sentiment Survey 2023 19

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 hreshold’s Annual Tenant Sentiment Survey 2023
Experiences of Renting
In a continuation from last year, respondents were asked about the length of time they have rented for,
how long they are living in their current home, why they left their last home, their relationship with their
landlord, and their feelings of security in the home.
Their responses give an overview of the perceived lack of security and instability of renting in Ireland, as
well as an insight into renters’ feelings and experiences of the private rental sector. This year, respondents
also provided comments describing these experiences in their own words.

Feeling of Security
When asked: “How secure do you feel that you can stay renting your current home for as long as you want
or need?
■ 48% feel insecure
■ 24% feel neither secure nor insecure
■ 18% feel secure
■ 11% declined to answer

Graph 9: Feelings of Security 2020-2023

50%

40%

30%

20%

10%

0%
Insecure Neither secure or insecure Secure

2020 2021 2022 2023

 Threshold’s Annual Tenant Sentiment Survey 2023 21

 In sharp contrast to the 2021 survey, when 47% said they feel secure in the home, only 18% felt so in 2023.
The moratorium on evictions was in place when the 2021 survey was undertaken and may have impacted
people’s perceived security in their tenancy. Perceived security of tenure differs from legal security of
tenure and “is likely shaped by past experiences, the experiences of family and friends, media discourses
and so on”9.

In 2022, nearly half of those who responded (44%) felt insecure in their homes. The feeling of insecurity
has sustained in the 2023 data, with nearly one in two (48%) feeling insecure in their homes. It is also
worth highlighting that only 18% feel secure in their homes this year. This is a significant drop from last
year where 38% felt secure in their rented accommodation.

While new tenancies are now of indefinite duration, a landlord can still evict a tenant on several grounds.
These are known as no-fault-evictions where there has been no wrongdoing by the tenant.

These feelings of insecurity are likely being fueled by the increased practice of landlords choosing to
end tenancies to sell the home with vacant possession. In 2022, the RTB were notified of 11,868 tenancy
terminations and 4,753 in Q1 of 202310. In 2022, Threshold was contacted by 5,555 households who had
received a notice and worked with over 8,000 who were facing eviction.

Graph 10: Feelings of Security by Age

100%

80%

60%

40%

20%

0%
18-24 25-29 30-34 35-39 40-44 45-49 50-54 55-59 60-64 65-69 70-74 All
Respondents

Neither secure
Insecure Secure Rather not say
nor insecure

9
Byrne, M. (2020), “Security and Agency in the Irish Private Rental Sector”, (pp13), https://threshold.ie/wp-content/uploads/2022/06/
security_and_agency_in_irish_private_rented_sector_july2020.pdf?_gl=1*1x4pp2l*_up*MQ..*_ga*MjQxNzIwNDkzLjE2ODY5MTAyMjc.*_ga_
W53ZJZ6NX5*MTY4NjkxMDIyNy4xLjEuMTY4NjkxMDIzNi4wLjAuMA.
10
Residential Tenancies Board, “Notices of Termination (NoTs) received by the RTB,”
https://www.rtb.ie/data-hub/notice-of-termination-received-by-rtb
https://www.rtb.ie/data-hub/notices-of-termination-received-by-the-rtb-from-q3-2022
(Accessed 08/06/2023)

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 hreshold’s Annual Tenant Sentiment Survey 2023
When evaluating perceived security by the age of the respondents, it is worrying that nearly every age
cohort had more people feeling insecure than secure in their own home, with exceptions for the 45-49
(n=14) age cohort and the 60-64 (n=3) age cohort. It is worth noting that the youngest cohorts and the
oldest cohort are a small group of respondents.

In May 2023, ALONE and Threshold published a research report, “Double Deficit”, which found that the
private rental sector is not an appropriate tenure choice for many older and ageing people, particularly
those within the older and more infirm old age cohort. The report also discussed the absence of a data-
informed approach to planning for the accommodation of a rapidly growing ageing cohort11.

Graph 11: Feelings of Security by Family Type

100%

80%

60%

40%

20%

0%
Single, Couple, Two-Parent One-Parent Other All
no children no children Family Family Respondents

Neither secure
Insecure Secure Rather not say
nor insecure

In the survey of 2022, one-parent families were more likely than other groups to report feeling insecure
in their tenancy. This year the story is different, with every family type expressing comparable feelings of
insecurity.

Following from this, those who stated they have a negative or somewhat negative relationship with their
landlord felt less secure in their home. All those who stated that they had a very negative relationship
with their landlord felt insecure in their home, while 70% of those who stated that they have a somewhat
negative relationship with their landlord felt insecure in their home.

A significant proportion of those reporting a very positive (30%), or somewhat positive relationship (41%)
with the landlord, also felt insecure. This may be linked to a fear that their landlord will sell the home.

Threshold & ALONE, (2023), “Double Deficit”, https://threshold.ie/wp-content/uploads/2023/05/Double-Deficit.pdf

11

 Threshold’s Annual Tenant Sentiment Survey 2023 23

 Graph 12: Feelings of Security by Relationship with Landlord

100%

80%

60%

40%

20%

0%
A neither A somewhat A somewhat A very A very All
positive nor negative positive negative positive Respondents
negative relationship relationship relationship relationship
relationship
Neither secure
Insecure Secure Rather not say
nor insecure

Many of the comments left by respondents regarding their relationship with their landlord highlight that
there are some tenants who do not have a relationship with their landlord, have minimal contact with
them or are only in communication with the property management company. For some renters, their
landlord is a company, making it difficult to draw comparisons with those who have an individual as a
landlord.

Examples include;

■  They are an investment fund so as long as I pay my rent, they don’t bother me.”
“
(Male; 35-39; €55-65k; Couple; Dublin)
“No
■  contact - no complaints - goes through agency.”
(Female; 35-39; €15-20k; Two-Parent Family; Wexford)
“I’ve
■  never met him. A letting agency looks after us.”
(Female; 30-34; €30-35k; Single; Dublin)
“I am
■  dealing with a rental company and do not know if the landlord is a person.”
(Male; 35-39; +€65k; Single; Dublin)
“Dealing
■  with agency, not with landlord.”
(Female; 40-44; €25-30k; One-Parent Family; Dublin)

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 hreshold’s Annual Tenant Sentiment Survey 2023
Length of Time Renting
As illustrated in the chart below, those who participated in the survey were seasoned renters with half of
them living in the rental sector for more than ten years. This increased to 63% when accounting for those who
have been renting in the private rental sector for six or more years.

However, only 11% have lived in their current home for 10 years or more, and one in five have lived in their
current home for two years or less. This shows that while most respondents have been renting in the private
rental sector for many years, only a minority have established a long-term home. To understand why this is,
respondents were asked why they left their last rental home.

Graph 13: Total Time Renting and Time in Current Home

50%

40%

30%

20%

10%

0%
6 months 1 year 2 years 3 years 4 years 5 years 6 years 7 years 8 years 9 years 10 years+ Rather
< 1 year < 2 years < 3 years < 4 years < 5 years < 6 years < 7 years < 8 years < 9 years < 10 years not say

Time in Current Home Total Time Renting

 Threshold’s Annual Tenant Sentiment Survey 2023 25

 Reasons for Leaving Previous Some of the responses from those surveyed
provide a sample of the issues that prompt a
Rental Home tenant to leave their home and explain how this is
a very personal event.
Those surveyed could provide more than one
reason for leaving their previous rental home. ■  Landlord decided to move her brother
“
From our work with private renters, Threshold home.”
knows that the reason to leave a home is rarely (Male; 50-54; +€65k; Single; Louth)
straightforward and that there can be many factors
at play. ■  Landlord needed it for family member.”
“
(Female; 50-54; €35-40k; Single; Meath)
Reasons for Leaving Number of
■  The rent was increased too much on lease
“
Respondents
renewal.”
Landlord selling 29 (Female; 45-49; €25-30k; Single; Dublin)
Rent too high 17
■  The apartment literally could not hold
“
Needed to move to a 17 heat, ended up freezing.”
different location (Male; 18-24; Single; Dublin)
Issues with landlord 15
A particular comment from one tenant resonated:
Landlord moving back in 10 “Illegal no-fault eviction with no Notice of
Standards & repairs 9 Termination. The landlord gave us one week to
move when he wanted to sell, followed by intense
Other 9 intimidation and aggression.” While illegal
Issues with other tenants 6 evictions are relatively rare, Threshold has seen
them increasing over recent years. The heightened
Covid-19 3 anxiety and stress expressed by Threshold clients
Couldn’t pay the rent 3 when they experience these illegal evictions
is difficult for most to imagine and can be
Rather not say 3 significantly difficult to combat.

The most common reason for tenants leaving

their home was that the landlord was selling the
property. Eviction on the ground of sale is the main
issue impacting Threshold’s clients in recent years.
The RTB’s 2021 survey of small landlords recorded
that the most cited reason for selling by landlords
was that they no longer wish to be a landlord12.
This does not factor in taxation, regulations, or
even negative equity. The report also identified
that 1 in 10 landlords are likely, or very likely, to
sell their property in the next 12 months.

Amárach Research, (2021), “Small Landlord Report 1-2 Tenancies”, https://www.rtb.ie/images/uploads/general/RTB_Small_Landlord_

12

Survey_2020_Report_-_Final_2.pdf (accessed 08/06/2023)

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 hreshold’s Annual Tenant Sentiment Survey 2023
Finding a Home to Rent
In 2023, 72% said it was extremely difficult to find a home to rent, and 14% said it was difficult. Only 3%
found it easy to find accommodation and 4% found it neither easy nor difficult to find accommodation.

Graph 14: Difficulty in Finding a Rental Home

Easy

Neither easy nor difficult

Difficult

Extremely difficult

0% 10% 20% 30% 40% 50% 60% 70% 80%

Many of the comments left by the respondents describe how challenging it is for people to access a
property in the private rental market.

■  Took us 4-5 months to find an apartment.”

“
(Male; 25-29; €45-55k; Full-Time Employment; Single; Dublin)

■  There are no houses advertised to rent in this area. We have found that houses are found mainly
“
by word of mouth and off the books, so they are not secure and are typically in poor condition.
There are certainly no rentals being offered within the HAP levels, even with an uplift.”
(Female; 55-59; -€15k; Couple; Cork)

■  Lots of demand not enough supply, prices are really high.”

“
(Female; 25-29; €30-35k; Full-Time Employment; Couple; Cork)

■  It was the most stressful time of my life and we had to move 15 miles from where we had lived
“
all our lives, huge change.”
(Female; 55-59; Under €15k; Social Welfare; Two-Parent Family; Wexford)

One comment emphasises of the challenges facing people when they have to look for a new home:
“there should be an “impossible” option there too”
(Female; 35-39; Under €15k; Social Welfare Payment; One-Parent Family; Kerry).

This difficulty in finding a home to rent was felt across all groups. Regardless of age, income, length of
time renting or family size.

 Threshold’s Annual Tenant Sentiment Survey 2023 27

 Relationship with the Landlord
Despite the difficulties faced by private renters, 29% described their relationship with their landlord as
positive and 15% described it as somewhat positive. It is, however, a decrease from previous surveys in
2022 and 2021.

One in five (19%) reported having a negative relationship with the landlord. This is not far off doubling the
figures from what was cited in last year’s survey.

Graph 15: Relationship with Landlord 2021-2023

45%

40%

35%

30%

25%

20%

15%

10%

5%

0%
A very A somewhat A neither positive nor A somewhat A very
negative relationship negative relationship negative relationship positive relationship positive relationship

2021 2022 2023

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 hreshold’s Annual Tenant Sentiment Survey 2023
 Affordability
Those who participated in the survey were asked what percentage of their income they pay on rent, to
assess its affordability.

Using a 30% income to rent affordability measure, just 27% of clients surveyed have affordable rent.

Of those who responded, just over half (50%) are paying more than 30% of their income on rent – the
typical measurement for housing affordability. Almost one fifth (n=21) are spending over half their income
on rent.

Graph 16: Percentage of Income Spent on Rent

25%

20%
% of Respondents

15%

10%

5%

0%
10-20% 21-30% 31-40% 41-50% 51% + Rather not say
Percentage of Income

Unsurprisingly those on lower incomes are more likely to pay a higher percentage of their income on
rent. The chart below illustrates the heavier rent burden on those with lower incomes. This can result
in poverty, as set out in the 2022 Survey on Income and Living Conditions (SILC), which notes that an
estimated 3 in 10 (29.6%) of people live in rented or rent-free accommodation but make up 6 in 10 (59.4%)
of people living in enforced deprivation13.

In the Housing Agency’s Statement of Housing Supply and Demand (2017)14, the issue of affordability was
discussed and highlighted. It noted that renters tend to have less disposable income compared to owner
occupiers and are more likely to experience affordability problems. The income of most participants in
this survey falls short of the median and their housing cost burden is significantly pronounced.

13
Survey on Income and Living Conditions (SILC) 2022, https://www.cso.ie/en/releasesandpublications/ep/p-silc/
surveyonincomeandlivingconditionssilc2022/poverty/ (Accessed 03/05/23)
14
National Statement of Housing Supply and Demand 2016 and Outlook for 2017-18 https://www.housingagency.ie/sites/default/files/
publications/25.%20Housing-Supply-Demand-Report-2017-WEB-(2).pdf (Accessed 08/06/2023)

 Threshold’s Annual Tenant Sentiment Survey 2023 29

 Graph 17: Number of Respondents Paying up to and over 30% of income on Rent by
Income Range

12%

10%

8%

6%

4%

2%

0%
< €15,000 €15,000 €20,001 €25,001 €30,001 €35,001 €40,001 €45,001 €55,001 €65,000+
< €20,000 < €25,000 < €30,000 < €35,000 < €40,000 < €45,000 < €55,000 < €65,000

Up to 30% Over 30%

Respondents were asked if they feel they can pay the bills, afford groceries, and afford other expenses
after paying rent. The majority of those earning less than €30,000 a year struggled to pay for additional
household expenses after rent.

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 hreshold’s Annual Tenant Sentiment Survey 2023
Graph 18: Difficulty in Paying Bills etc by Income Range

100%

80%

60%

40%

20%

0%
< €15,000 €15,000 €20,001 €25,001 €30,001 €35,001 €40,001 €45,001 €55,001 €65,000+ All
< €20,000 < €25,000 < €30,000 < €35,000 < €40,000 < €45,000 < €55,000 < €65,000 Respondents

Not Difficult Rather not say Difficult

Many of the comments left by the respondents speak to this struggle to pay for the necessities.

■  Bills and rent cost 88% of my salary. Before food.”

“
(Female; 25-29; €40-45; Full-Time Employment; Two-Parent Family; Kildare)

■  The cost of living is gone through the roof. I am scared to have the radiator on for too
“
many hours.”
(Female, 45-49, €30-35k, Full-Time Employment, Single, Cork)

■  The cost of living is gone up so much it’s extremely difficult.”

“
(Female; 55-5; Under €15; Social Welfare; Two-Parent Family; Wexford)

■  It is a big struggle with current cost of living.”

“
(Male; 60-64; €15-20k; Full-Time Employment; Two-Parent Family; Waterford)

While all households experienced some difficulty in paying bills and other expenses, those reliant on a
social welfare payment, a pension or in part-time employment felt it more acutely.

 Threshold’s Annual Tenant Sentiment Survey 2023 31

 Graph 19: Difficulty in Paying Bills etc. by Source of Income

100%

80%

60%

40%

20%

0%
Full-Time Part-Time Social Self-Employment Disability Pension Student Grant
Employment Employment Welfare Payment
Payment

Not difficult Rather not say Difficult

Changes to Rent in an RPZ, almost one in four had received a rent

increase above the permitted 2% cap.
Nearly half (45%) of those surveyed stated their
rent had increased in the previous 12 months and Rate of Increase # of respondents
three people said their rent had decreased. Where 2% or less 23
the rent had been increased, it was increased by
less than 2% in just under half of cases (45%). 3-4% 5
5-10% 8
Respondents were asked if they live in a Rent
Pressure Zone (RPZ) where rent increases are 10- 20% 6
capped at 2% per annum. A link to the RTB RPZ 20-30% 2
Calculator was provided to allow respondents
to check if they were unsure. However, one in 30-40% 2
three stated they did not know if they lived in an Rather not say 5
RPZ. Among those who stated that they do live

32 T
 hreshold’s Annual Tenant Sentiment Survey 2023
 Threshold’s Annual Tenant Sentiment Survey 2023 33
 Accessing the Rent Tax Credit
Announced as part of Budget 2023, a €500 tax credit was introduced to ease the cost of living. Applicant’s
eligibility is assessed on several grounds, such as type of tenancy (tenancy or licensee) and whether the
applicant is receiving housing support15.

Respondents were asked about their knowledge of the tax credit and whether they had applied for it.
Media reports at the time the survey was conducted indicated that there had been a low take-up of the
credit.16

Graph 20: Rent Tax Credit Awareness and Take-Up

70%

60%

50%

40%

30%

20%

10%

0%
Aware of the credit Applying for the credit

No Yes

15
Revenue, “Rent Tax Credit”, https://www.revenue.ie/en/personal-tax-credits-reliefs-and-exemptions/rent-credit/qualifying-conditions.aspx
(accessed on 07/06/23)
16
Weston, C., “Rent tax credit not being claimed by most tenants, even though they are entitled to it”, Independent.ie, 28th April 2023,
https://www.independent.ie/business/personal-finance/rent-tax-credit-not-being-claimed-by-most-tenants-even-though-they-are-entitled-to-
it/a1883232940.html#:~:text=Nearly%20seven%20out%20of%2010,carried%20out%20by%20Taxback.com.

34 T
 hreshold’s Annual Tenant Sentiment Survey 2023
While two-thirds of respondents were aware of the credit, only 44% had applied or were planning to
apply for it.

There were varying reasons clients had not applied for the tax credit. 23% said they were not eligible as
they were receiving HAP or RAS and 9% of clients did not know how to register for the tax credit. Only two
stated they did not apply because the tenancy is not registered with the RTB and two noted that their
landlord was not registered with the Revenue. A small number (n=9) stated they did not know how to
apply for it. The question about the tax credit included a prompt for people to get in touch with Threshold
for information on how to apply.

Graph 21: Reasons for Not Applying – Rent Tax Credit

The landlord isn't registered with the Revenue

The tenancy isn't registered

Not in employment in 2022

Rather not say

Don't know how

Didn't know about it

Ineligible - Housing support recipient

0% 5% 10% 15% 20% 25% 30% 35% 40% 45%

 Threshold’s Annual Tenant Sentiment Survey 2023 35

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 hreshold’s Annual Tenant Sentiment Survey 2023
Experience of the Housing Assistance
Payment (HAP) and RS
Almost 1 in 4 participants (n=27) were in receipt of the Housing Assistance Payment and 3% (n=3) received
Rent Supplement. As has been done in previous surveys, we asked a series of questions relating to the
payments to get a better understanding of recipients’ experiences of these payments and the private
rental sector.

Strikingly, 86% of those respondents in receipt of HAP, and all the respondents receiving Rent
Supplement, pay a top-up to their landlord. These top-up payments ranged from €50-a-month to as
much as €1,210-a-month. In addition to this, those paying a top-up were more likely to struggle to pay the
bills, buy groceries and pay the rent, with over three quarters (77%) stating this to be the case.

Graph 22: Difficulty Paying Bills etc. by Housing Support

100%

80%

60%

40%

20%

0%
HAP Rent Supplement No Housing Support

Difficult Not difficult Rather not say

Only 13% (n=4) of those receiving HAP or Rent Supplement have approached the Local Authority or Rent
Unit to seek assistance to pay the top-up. In three cases, the client was provided with assistance to pay
some of the top-up and one was refused.

 Threshold’s Annual Tenant Sentiment Survey 2023 37

 Standards, Repairs and Overcrowding
Standards and Repairs For the remainder, however, the issues are ongoing
with respondents expressing considerable levels
of frustration and an inability to do anything about
Similar to the survey of 2022, six in ten respondents
the situation.
stated there were poor standards or outstanding
repairs in their home. These include problems with
“We have reported multiple problems, nothing
damp and mould, problems with heating systems
is ever done, and we are told if we are not happy
and faulty showers. Some of the descriptions
to find somewhere else which is impossible.”
provided are chilling.
(Female; 30-34; €25-30k; Full-Time Employment;
Couple; Offaly)
“There is significant mould throughout the
kitchen and bedroom that makes our respiratory
“They acknowledged my report and appointed
problems worse, and we cannot store food or use
professionals for some of the issues. I’m assuming
the cupboards. The walls are very old walls with
(hoping) they will follow up soon for the rest of the
inadequate insulation and ventilation. There is
issues.”
significant black mould behind the fitted kitchen
(Male; 45-49; €65k+; Full-Time Employment; One-
units etc.”
Parent Family; Dublin)
(Female; 55-59; Under €15k; Disability Payment;
Couple; Cork).
“Does nothing. They say to move out if you are
not happy.” (Female; 45-49; €25-30k; Part-Time
The majority of those surveyed (69%) had reported
Employment; Single; Dublin)
the problem to the landlord. For 10 people the
necessary repairs were made, with only partial or
temporary fixes provided for four people. There “Was informed the repairs would be done last Jan
was a mixed set of comments on this issue with 2022 which they weren’t. When reported again
some indicating that their landlord fixed the issue in May 2022, I was told that I could move out if I
promptly and others saying it took some time. didn’t like it, and then a third time in Nov 2022, I
was told the repairs would be done this summer
and then the narrative changed to the building
“Was repaired in timely manner.”
owner was going to sell. (A weak story and lip
(Female; 45-49; Full-Time Employment; Single;
service to my complaint).”
Dublin)
(Male; 50-54; €65k+; Full-Time Employment; Single;
Louth)
“She gets things sorted fairly quickly when I have
a problem.”
“He tells me I took the place as it was so no point
(Female; 35-39; €20-25k; Part-Time Employment;
complaining now, when I ask for repairs, he tells
One-Parent Family; Dublin)
me I’m too much bother and he’ll just sell up
instead.”
“Mostly gets sorted eventually.” (Female; 55-59;
(Female; 55-59; €25-30k; Part-Time Employment;
Under €15k; Social Welfare; Two-Parent Family;
Cork)
Wexford)
This year, respondents were asked why they had
“The landlady/agency agreed to do maintenance
not reported the issues to the landlord. Only four
in the apartment after years of frustrating
provided an answer to this question, three of whom
negotiations.”
expressed a fear of losing their home.
(Female; 40-49; €30-€35k; Full-Time Employment;
Single; Cork)

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 hreshold’s Annual Tenant Sentiment Survey 2023
“I’m afraid this can affect me negatively and I can
no longer rent the apartment.”
Overcrowding
(Female; 30-34; €45-55k; Full-Time Employment;
One fifth of those surveyed stated that their
Couple; Dublin)
home is overcrowded. While single people who
were sharing with others were more likely to
“The extent of the black mould behind the fitted
feel their home is overcrowded, many families
kitchen would require an entire kitchen re-fit,
experienced overcrowding due to particular family
damp-proofing, new ventilation, and insulation.
circumstances.
We fear asking the landlord because we don’t
think they can afford it and we are afraid that
“Six people living in the house at the moment, one
they will ask us to move if we are not happy. In
of them pregnant.”
the past, we have had to raise significant repair
(Female; 35-39; €25-30k; Full-time Employment;
and maintenance issues with a landlord, and this
Single; Dublin; House-Share)
resulted in the landlord refusing and ordering us
to move. In the end a prohibition order was served
on the property and the landlord decided to sell “Both adults working from home needing office
so we were forced to move. Given this experience, space, and two children. four years apart, one
we are scared to mention such costly repairs to girl one boy, so ideally, they would have their own
our current landlord in case they too decide to sell. bedrooms.”
There is nowhere to move to, so it feels safer for (Female; 40-44; €40-45k; Self-Employed; Two-
now to put up with the mould and damp rather Parent Family; Dublin)
than risk homelessness.”
(Female; 55-59; Under €15k; Disability Payment; “All living in a two-bedroom house, one child
Couple; Cork). sleeping on the pull-out couch”
(Male; 35-39; Full-time Employment; Two-Parent
“Afraid of rent increase or notice to move out.” Family; Dublin)
(Female; 40-44; €25-30k; Full-Time Employment;
One-Parent Family; Dublin) “I live with my family in a one-bed
apartment. Cannot afford to move into bigger
“Because he’s difficult to deal with.” accommodation”
(Female; 50-54; €30-35k; Full-Time Employment; (Female; 40-45; €35-40k; Full-time Employment;
Single; Meath; House Share) Two-Parent Family; Dublin)

One in five reported that the property had been

inspected by the Local Authority. It is positive to
note that two-thirds of people stated they were
satisfied with the results of the inspection.

 Threshold’s Annual Tenant Sentiment Survey 2023 39

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 hreshold’s Annual Tenant Sentiment Survey 2023
Impact of Covid-19
The Covid-19 public health restrictions had a difficulty viewing places, other common answers
significant impact on private renters, as they included difficulty in having repairs carried
are more likely to work in tourism, retail, and out in the home, housemates moving out and
hospitality sectors than owner occupiers. As these being unable to fill empty rooms, and increased
sectors shut down and jobs were lost, the renters arguments in the home.
employed in these sectors faced the very real risk
of rent arrears. It is noticeable from this report that Threshold
is seeing a rising number of older persons in the
Those who participated in the survey were asked private rental sector. As a result of pandemic
a series of questions related to the Covid-19 restrictions, many organisations moved
pandemic and how restrictions effected their services online and/or over the phone. This was
housing situation. As this cohort of clients availed commented on twice by one client who took part
of Threshold’s services in 2021, questions were in the survey:
changed to capture the environment during this
stage of the pandemic. As expected, the number of “I couldn’t get any advice face to face.”
clients experiencing difficulty in their situation was
down 7% on last year, with 37% of clients stating and
that the pandemic has affected their housing
situation. “I’m not good with computers, and not confident
on phone, because of language and hearing
Clients stated that there were multiple ways their problems.”
housing situation changed; 18 clients reported (Female; 65-69; Pension, Dublin)

 Threshold’s Annual Tenant Sentiment Survey 2023 41

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 hreshold’s Annual Tenant Sentiment Survey 2023
Moving Back to the Family/
Parental Home
Those who reported that they had moved home to part- time employees earn under €15,000 per
live with family, five in total, were asked a shorter annum and are both under the age of 24. The
set of questions. This year, respondents were asked earnings of those working full-time ranged from
socio-economic questions, as well as a series of €25,000 to over €60,000, and they were aged
questions to ascertain the reasons for moving between 25 and 49.
back to live with family and about their housing
aspirations. In line with the CSO Pulse Survey, the main reason
respondents attributed to moving back to a
The age at which people move out to live parental home was the lack of affordability in the
independently is increasing. Eurostat reported private rental sector. Other reasons included poor
the age at which young people leave the parental standards and saving up for a deposit.
home in Ireland was 28.4 in 2021, compared to 25.7
in 201317. The CSO’s 2021 Pulse Survey revealed
that 80% of young adults lived in a parental home
for financial reasons18.
Aspirations and Expectations
of those Living in a Parental
Socio-Economic Details of Home
those Living in a Parental There are varying aspirations and expectations in
this cohort of respondents. Two respondents wish
Home for their own home in the next five years and two
hope to be renting again, whilst one hopes to be
Three out of five respondents living in a parental living in social housing. One person went on to say,
home reported working full-time, while the however, that they expect they will emigrate within
remainder reported working part-time. The two the next five years.

17
Eurostat, “Estimated average age of young people leaving the parental household by sex” https://ec.europa.eu/eurostat/databrowser/view/
yth_demo_030/default/table?lang=en
18
Central statistics Office, (2022), “Pulse Survey: Life at Home 2021: Renters, Lone Parents and Adults Living Alone or with a Parent”, https://
www.cso.ie/en/releasesandpublications/fp/fp-pslhrlpla/pulsesurvey-lifeathome2021rentersloneparentsandadultslivingaloneorwithaparent/
respondentswholivewithaparent/ (accessed 07/06/23)

 Threshold’s Annual Tenant Sentiment Survey 2023 43

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 hreshold’s Annual Tenant Sentiment Survey 2023
Summary of Findings
Aspirations and Expectations ■  ven a proportion of those with a very
E
positive, or somewhat positive, relationship
of Private Renters with the landlord felt insecure in their
home.
■ L ess than 20% of renters interviewed rent ■  alf of the respondents had been living in
H
by choice, with nearly 60% renting as they the rental sector for more than 10 years.
are unable to buy their own home.
■ J ust half of participants (49%) have lived in
■  hen asked what would make renting
W their current home for two years or less, and
better for them, over half of the respondents only 11% have lived in their current home
cited improved affordability, security, and for 10 years or more.
standards.
■  he most common reason cited leaving
T
■  enting is not a long-term tenure of choice.
R their previous home was that their landlord
Only 9% wish to still be renting in five years’ was selling the property.
time, whereas 61% would prefer to own
■  lmost three-quarters (72%) said it was
A
their own home and 17% would like to
extremely difficult to find a home to rent
move into social housing.
and 14% said it was difficult.
■  nly 39% expect they will own their own
O
■  pproximately three in ten (29%) described
A
home in five years’ time and 15% expect to
their relationship with their landlord
have social housing. Despite it not being
as positive and 15% described it as
their favored option, 31% expect they will
somewhat positive. 19% also reported
still be renting in five years’ time.
having a negative, or somewhat negative,
relationship with the landlord.

Experiences of Renting
■  his year, nearly half (48%) of respondents
T
Affordability
feel insecure in their homes, while only 18%
■  early half (45%) of those surveyed stated
N
feel secure in their homes.
that their rent had increased in the previous
■ F eelings of insecurity were expressed across 12 months and 3% said their rent had
every age range and family type. decreased.
■  ll those who stated that they had a very
A ■  here the rent had been increased, it was
W
negative relationship with their landlord felt increased by less than 2% in just under half
insecure in their home, while 70% of those of cases (45%).
who stated that they have a somewhat
■ J ust over a third (37%) of rent increases for
negative relationship with their landlord
tenants in RPZs were over the permitted 2%
feel insecure in their home.
cap.

 Threshold’s Annual Tenant Sentiment Survey 2023 45

 Accessing the Rent Tax Credit ■  epairs and improvements were
R
undertaken for 10 respondents and only
partially resolved for four. The issues were
■  early a third (32%) of those surveyed said
N
ongoing for the remainder.
that they were not aware of the tax credit.
■  small number had not reported the issues,
A
■  ver half (51%) said that they had not yet
O
with three people expressing a fear that
applied for the tax credit.
doing so would result in the loss of their
■  here were varying reasons clients had not
T home.
applied for the tax credit, 23% said they ■  ne fifth stated that their home is
O
were not eligible as they were receiving HAP
overcrowded, with single people in house
or RAS.
shares more likely to express this feeling.
■ 9 % of clients did not know how to register
for the tax credit.
Impact of Covid-19
Experience of the Housing ■  ver one third (37%) of those surveyed said
O
Assistance Payment (HAP) the pandemic has affected their housing
situation.
and RS
■  ne in four participants (24%) were in
O Moving Back to the Family/
receipt of the Housing Assistance Payment
and 3% received RS. Parental Home
■ 8 6% of the HAP recipients and all RS
■  f those surveyed, five people reported that
O
recipients surveyed pay a top-up to their
they had moved home to live with family.
landlord.
■  hree out of five respondents living in a
T
■  hese top-up payments ranged from
T
parental home reported working full-time.
€50-a-month to as much as €1,210-a-month.
■  wo respondents wish to own a home in the
T
■  ver three quarters (77%) of those paying a
O
next five years and two respondents hope to
top-up were struggling to pay the bills, buy
be living in private rental accommodation,
groceries and pay the rent.
whilst one hopes to be living in social
housing.

Standards, Repairs and ■  ne person expects to remain living with

O
their family and two expect to be renting in
Overcrowding the private sector.

■  ix in ten reported poor standards or

S
outstanding repairs in the home, which
included mould, problems with heating
systems and faulty showers.
■  he majority of those surveyed (69%) had
T
reported the problem to the landlord.

46 T
 hreshold’s Annual Tenant Sentiment Survey 2023
 Threshold’s Annual Tenant Sentiment Survey 2023 47
 Recommendations
Right to Housing move from a dualist housing system to a unitary
housing system.
A key step to ensure we all have access to a home
The unitary rental market is an integrated rental
is the introduction of a constitutional right to
market, with direct competition between the
housing in Ireland. At present, with no right to
profit, non-profit and limited profit sectors. The
housing in the Constitution, there is no duty on
overall purpose of the not-for-profit sector is to
any government to ensure all people have access
house broad layers of the population. This can put
to adequate housing. By holding a referendum to
downward pressure on rents in the private rental
insert a right to housing into the Constitution, the
sector.
people of Ireland would be given the opportunity
to send a message to government about its role in
ensuring access to housing. A move to a unitary housing system requires an
increased investment role for the State to play
in building housing. The means increasing the
If the people of Ireland vote to insert such a
stock of housing owned by Local Authorities and
right, the current Government, and all future
Approved Housing Bodies to equal 25% of total
governments, will be obliged to use this as the
housing stock, based on a comparative analysis of
basis for their decision-making when it comes to
other EU Member States.
housing policy and legislation. This would mean
housing could no longer be used as a ‘political
football’ or be subject to personal interests or Affordable Purchase
ideological concerns. The right to housing would
become a catalyst for change that can bring about Given the demonstrated strong desire for home
a consistent approach to housing policy and ownership, it is vital that Government policy
greater long-term planning, moving the system continues to support and facilitate people to
away from the boom-bust cycles of provision purchase their own home. One current example
which have become the norm. aimed at achieving this is the Affordable Purchase
Scheme, which is to deliver approximately 15,000
Access to adequate housing is the basis from properties between 2021 and 2025 under “Housing
which other rights can be realised. Home is a for All”.
fundamental element of human dignity and must
be protected. With over 300,000 households renting19, there
is a high demand for these homes. While there
is support for people to buy their home on the
market, affordability remains an issue for many,
as well as availability, particularly for those
Provision of Housing households with only one income. Single people
not only face the financial challenge of affording
In Threshold’s opinion, the most viable and long- a home but also the lack of one-bed and two-bed
lasting mechanism to improve affordability of units. Further options are therefore required.
private rental accommodation is for Ireland to

Central Statistics Office of Ireland (2023), “Census of Population 2022 - Summary Results”, https://www.cso.ie/en/releasesandpublications/
19

ep/p-cpsr/censusofpopulation2022-summaryresults/dwellingcharacteristics/ (accessed 08/06/2023)

48 T
 hreshold’s Annual Tenant Sentiment Survey 2023
Cost Rental Threshold recognises the time required to deliver
new housing and understands there are growing
Cost rental can bring about affordability by having numbers in the pipeline. It is no small task to
a moderating impact on market rents, and this achieve what we are proposing, however it is
impact will increase as more units are built. If done essential if Ireland’s housing system is to stabilise.
correctly, and on a large scale, it can remove the
need for controls such as RPZs and reduce rents in A significant commitment by the Government
the private rental sector. at the lifting of the ban on evictions was to
expand the existing Tenant-in-Situ Scheme and
It is vital, however, that the rents are delivered at develop the Cost Rental Tenant-in-Situ Scheme.
an affordable level across a range of incomes. This The Government has directed Local Authorities
requires those who can pay more to do so, while across the State to buy 1,500 homes this year from
those who are on lower incomes pay less. landlords who have given notice to tenants. This is
a welcome initiative that will add to the State and
The first cost rental homes were delivered in the not-for–profit sectors’ housing stock. Threshold
2022, with multiple cross rental schemes now recommends that these approaches become central
in operation and more in development. The aim features of housing delivery as part of a long-term
of cost rental is to deliver secure homes with shift away from a reliance on the private rental
rents at at least 25% below market rents. Despite sector towards a more sustainable housing model.
the challenges faced in construction some have
achieved rents up to 50% below market.20 Private Rental
Approximately 7,500 cost rental homes are to be Landlords are providers of much-needed housing
delivered in the first four years of the “Housing and action is needed to keep them in the market.
for All” plan. Given the level of demand for secure This can be achieved through changes to the tax
affordable homes, more will be required. system, for example by applying a sliding scale
tax system on rental income generated from
Social Housing properties subject to long-term lease agreements
for 10, 15 or 20+ years. The motivator being the
longer the lease and guarantee of tenure, the more
An increase in social housing provision is also
beneficial the tax treatment.
necessary to meet the demand for long-term
security, particularly by lower income households.
While the HAP is available, it does not provide the
security and safety that comes with a home from
a Local Authority or from an Approved Housing
Body.
Improve Security of Tenure
Lack of tenure security is one of the crucial
Threshold recommends that Local Authorities and
factors that shapes people’s preference for home
Approved Housing Bodies increase their housing
ownership and negatively impacts people’s ability
stock to 20-25% of total housing stock by 2040,
to establish a home. While legislative changes were
and that this be done via direct build as opposed
made to create tenancies of indefinite duration
to purchasing or turn-key developments. Doing
in 2021, a landlord still has five grounds on which
so will positively impact the private market by
they can evict a tenant where there has been no
slowing prices, improving availability and choice
wrongdoing by the tenant. Landlords primarily
and by creating increased competition.

Eolas Housing Magazine (2022), “Delivering Housing for All”, https://www.housing.eolasmagazine.ie/forward-the-common-goal-of-housing-for-

20

all/ (accessed 16/06/2023)

 Threshold’s Annual Tenant Sentiment Survey 2023 49

 evict tenants as they wish to sell the property with
vacant possession, under the belief that this will
Improve Affordability
attract a higher price on the open market.
While there are rent regulations in place, rents
have continued to climb. As demonstrated in
Threshold has advocated for a restriction on all no-
this survey, many renters are struggling to pay
fault evictions and asks again that the Government
the rent and manage their day-to-day finances.
act on this. In other European countries, good
Strict enforcement of the rent regulations will
tenants who pay their rent on time and maintain
have some impact on keeping increases in check.
their home cannot be evicted. Such security
Enforcement, however, will not reduce rents. Only
provides renters with the opportunity to establish
an increase in affordable supply, across multiple
themselves in their communities.
tenures, including rental, will achieve this.
The incentivisation of long-term lease agreements,
as explored above, is another mechanism to create Changes to HAP and RS
greater security of tenure. Such lease agreements
could not contain grounds to evict a tenant, except Measures can be taken to address the affordability
in cases where the lease agreement has been gap for those on HAP and RS. This can be done by
breached. reviewing HAP and RS rates annually to link them
to the rents on new tenancies in the relevant Local
Authority. This is proposed to ensure affordability
and that a share of rental properties is available
within the limits for those reliant on HAP.
Improve Standards
A landlord is permitted to increase the rent
The current system of Local Authority inspections every 12 months in a RPZ and every 24 months
of minimum standards is ineffective, due to low elsewhere. Changes were made to the HAP
inspection and compliance rates, as reported in discretionary uplift and the level of payment
the National Oversight Audit Commission’s Annual available for a single person, while the base rates
Performance Indicator Reports. have remained static since 2014. At present, a large
cohort of HAP and RS recipients are paying top-
Threshold proposes the creation of an NCT-style ups to their landlord to meet the shortfall in the
system of certification to safeguard against private payments. This leaves these renters in the unusual
renters living in sub-standard housing. Under this position of subsidising social housing.
system:

■  he landlord would be required to provide a

T
certificate of fitness, issued by a recognised
building professional, e.g., an engineer,
surveyor, prior to the property being rented.
■ The certificate would be valid for four years.
■  he landlord would be required to submit
T
this certificate the RTB as part of the
registration process.
■  he landlord could not lawfully rent the
T
home without a certificate.

50 T
 hreshold’s Annual Tenant Sentiment Survey 2023
 Threshold’s Annual Tenant Sentiment Survey 2023 51
 Conclusion
A key takeaway from this report is that most of those surveyed do not rent out of choice. Given their
experience of renting, set out in their own words throughout the report, it is easy to understand why this
is.

Private renters face numerous struggles in today’s housing market. The rising cost of rent, limited security
of tenure and the ever-increasing challenge of finding suitable and affordable housing creates significant
burdens.

Many of Threshold’s clients grapple with precarious living conditions, the constant fear of eviction, rent
increases and even difficulty in accessing assistance. These struggles can have a profound effect on
individuals and families, affecting their financial stability, mental wellbeing, and overall quality of life.

We all want a home that is secure, affordable and of a good standard. “Generation Rent,” those
experiencing homelessness, those at risk of losing their home and “Generation Stuck-At-Home” desire the
same thing. The recommendations set out in this report are designed to ensure that this is available to all
people seeking to make a home.

Addressing the challenges faced by private renters is crucial for creating a fair and equitable housing
system that ensures everyone has access to safe, affordable, and stable housing. A safe, secure, and
affordable home should not be out of reach; it is a right.

The definition of rented or rent-free accommodation includes the private rental market and the social rental sector.
i

52 T
 hreshold’s Annual Tenant Sentiment Survey 2023
 Threshold’s Annual Tenant Sentiment Survey 2023 53
Threshold
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