HHSRS fire safety assessments
Local authority duties to inspect and identify residential properties at risk of fire under the Housing Health and Safety Rating System (HHSRS).
What is a fire hazard
Under the Housing Health and Safety Rating System (HHSRS), a fire and explosion hazard can include:[1]
exposure to uncontrolled fire and associated smoke and fumes
an explosion
the collapse of the whole or part of a building as a result of fire or an explosion
Read more about the definition of hazards on Shelter Legal.
Vulnerable groups
Government guidance states that some groups are at particular risk from fire hazards. For example, over 60s and people with disabilities or sensory impairments.[2]
An HHSRS assessment does not cover the specific vulnerabilities of individual occupiers. Instead, vulnerable occupiers should be referred to the fire and rescue service for a home fire safety visit.[3]
Identifying properties at risk of fire
A local authority has a duty to keep housing conditions in their area under review. A full inspection and assessment might be necessary if properties are identified as potentially unsafe.
A fire hazard could also become apparent because of a complaint by a tenant, during the process of licensing a house in multiple occupation (HMO) or for another reason.
Read more about local authority duties to assess hazards on Shelter Legal.
Hazards in council housing
A local authority cannot take enforcement action against itself under the HHSRS. This means council tenants cannot benefit from local authority enforcement powers.[4]
A local authority must inspect its own properties, where required as a result of a complaint or its review of housing conditions.
Local authority homes must comply with the Decent Homes Standard, which requires that homes are free of category 1 hazards.
A local authority has duties to take action to fix emergency hazards in a fixed timeframe under Awaab's law.
Find out more about hazards in social housing on Shelter Legal.
Inspecting a property for fire risk
When inspecting a property under the HHSRS, the inspector considers the likelihood of a fire occurring, and the severity of the harm.
Factors affecting the likelihood of a fire
Factors that increase the likelihood of fire starting include:[5]
inappropriate position of heater or cooker close to flammable materials
defects or disrepair to heating appliances or systems
insufficient and/or inappropriately sited electric sockets
electrical defects to the supply, meters, fuses, wiring, sockets or switches
inadequate guarding of open fires and flames
Factors affecting the severity of a fire
The inspection will also consider factors that affect the severity of the outcome if a fire occurs, including:
defective or missing smoke/heat detectors and alarms
inadequate safe means of escape in case of fire
lack of adequate and appropriate fire fighting equipment
lack of fire stops to cavities or disrepair to walls, ceilings and/or floors
internal doors that are insufficient to stop fire spread or lack effective self-closers
Inspections for flats
As well as the individual property, the HHSRS inspection will consider:[6]
common areas, such as gardens, lifts, staircases and escape routes
services in the building for the detection, separation and fighting of fire
Enforcement of measures to reduce fire risk
The local authority can use any of the powers under the Housing Health and Safety Rating System to reduce any fire risks identified in an inspection.
Read more about local authority HHSRS enforcement on Shelter Legal.
Alongside the HHSRS powers, local authorities can take a complementary approach to enforcement, including:[7]
referral to the fire and rescue service for consideration under the Fire Safety Order or a community safety intervention
alternative powers such as HMO licensing
Risk assessments in purpose-built blocks of flats
A local authority should consider specific fire risks when inspecting a purpose-built block of flats under the HHSRS. For example, longer internal escape routes.[8]
Read the principles for fire safety in purpose-built blocks of flats from the Chartered Institute of Environmental Health.
Major accident scenarios
Major accident scenarios are high risk, low likelihood events that could harm many people beyond the affected area.[9] These scenarios must be considered alongside day-to-day risk management of fire and explosion hazards.
The HHSRS guidance gives three examples of major accident scenarios for multi-occupancy residential buildings:
fire spread as a result of combustible cladding systems
gas explosions
failure of fixed fire safety systems and equipment
For combustible cladding systems, a local authority can use HHSRS powers to request information about materials used and take samples.
Alternatively, the fire and rescue service can impose a requirement for the responsible person to assess fire risk posed by cladding systems.
Additional measures for high-rise residential buildings
The Fire Safety (England) Regulations 2022 impose additional responsibilities dependent on the height of buildings. The strictest requirements are for high-rise residential buildings, which are over 18 metres high or have at least seven storeys.[10]
These regulations are enforced by the fire and rescue service, so outside the scope of HHSRS assessments.
Last updated: 23 June 2026