Welcome to the 2024 Luton Market Position Statement for Older Peoples’ Services. This document presents Luton’s strategic approach to planning and supporting the care market for older adults, with a focus on 2024 and beyond.
Luton is a growing town around 30 miles to the north of London. Luton is a unitary Council covering an area of approximately 16.74 square miles (43.35 km2). Luton has a younger than average growing population with the older population expected to see the fastest growth over the next decade. Luton is a diverse area with over 100 languages and dialects spoken in the town.
Population:
- the estimated population of Luton is 231,100 with a younger than average population.
- Luton is densely populated with a higher population density than some London boroughs.
- Luton’s population has increased by over 6,000 people since 2021.
- Luton is an ethnically diverse town with more than half of the population not being white British.
- there are an estimated 150 languages and dialects spoken in Luton.
- population forecasting models have been projecting the town’s population to rise with the largest increases in the older age groups.
Luton is dedicated to collaborating with care providers to ensure the delivery of high quality services that address the evolving needs of older people. This statement outlines our current position, commissioning plans for 2024-2025, and upcoming market engagement opportunities. We encourage all providers to engage with us as we work together to address the challenges and opportunities ahead.
Our aspiration is to enable all adults with social care needs in Luton to remain in their own homes whenever possible, with care and support tailored to their individual environments. However, we acknowledge that some individuals may require or prefer accommodation-based care, whether for short-term or long-term needs. It is essential that we have the right accommodation options available.
To meet the needs of those who cannot be supported at home Luton requires care homes that are fit-for-purpose, staffed by highly skilled professionals capable of managing complex and long-term conditions. Currently, Luton offers Extra Care schemes and a range of care homes, ensuring diverse options for older adults.
This approach ensures that Luton can offer a comprehensive and adaptable care and support environment for its aging population.
The below shows the population distribution across wards by age group (Source: 2022 small area population estimates, Office for National Statistics), with a focus on areas with the highest proportions of children, young people, and older adults. For this Market Position Statement, particular attention is given to Bramingham, Poets, and Stopsley, which have the largest older populations.
Ward
Barnfield
2,744 = 0 to 15 (0 to 15% = 22.5)
7,529 = 16 to 64 (16 to 64% = 61.1)
2,025 = 65 and above (65 and above % = 16.4)
Total 12,328
Beech Hill
4,140 = 0 to 15 years(0 to 15% = 27.5)
9,771 = 16 to 64 years (16 to 64% = 65.2)
1,085 = 65 years and above (65 and above % = 7.2)
Total 14,996
Biscot
2,945 = 0 to 15 years (0 to 15% = 28.0)
6,679 = 16 to 64 years (16 to 64% = 63.4)
911 = 65 years and above (65 and above % = 8.6)
Total 10,535
Bramingham
2,555 = 0 to 15 years (0 to 15% = 19.1)
8,045 = 16 to 64 years (16 to 64% = 60.1)
2,785 = 65 years and above (65 and above % = 20.8)
Total 13,385
Central
2,060 = 0 to 15 years (0 to 15% = 19.5)
8,076 = 16 to 64 years (16 to 64% = 76.3)
450 = 65 years and above (65 and above % = 4.3)
Total 10,586
Challney
4,383 = 0 to 15 years (0 to 15% = 27.0)
10,374 = 16 to 64 years (16 to 64% = 64.0)
1,460 = 65 years and above (65 and above % = 9.0)
Total 16,217
Dallow
2,641 = 0 to 15 years (0 to 15% = 26.0)
6,937 = 16 to 64 years (16 to 64% = 68.4)
565 = 65 years and above (65 and above % = 5.6)
Total 10,143
Farley
3,588 = 0 to 15 years (0 to 15% = 23.6)
10,305 = 16 to 64 years(16 to 64% = 67.9)
1,288 = 65 years and above (65 and above % = 8.5)
Total 15,181
High Town
2,284 = 0 to 15 years(0 to 15% = 20.9)
7,858 = 16 to 64 years (16 to 64% = 71.8)
795 = 65 years and above (65 and above % = 7.3)
Total 10,938
Leagrave
2,400 = 0 to 15 years (0 to 15% = 23.6)
6,264 = 16 to 64 years (16 to 64% = 61.5)
1,527 = 65 years and above (65 and above % = 15.0)
Total 10,191
Lewsey
2,366 = 0 to 15 years (0 to 15% = 25.0)
6.050 = 16 to 64 years (16 to 64% = 63.9)
1,055 = 65 years and above (65 and above % = 11.1)
Total 9,471
Northwell
3,290 = 0 to 15 years (0 to 15% = 23.9)
8,462 = 16 to 64 years (16 to 64% = 61.4)
2,037 = 65 years and above (65 and above % = 14.8)
Total 13,789
Poets
1,746 = 0 to 15 years(0 to 15% = 20.6)
5,288 = 16 to 64 years (16 to 64% = 62.4)
1,443 = 65 years and above (65 and above % = 17.0)
Total 8,477
Round Green
2,315 = 0 to 15 years (0 to 15% = 23.3)
6,533 = 16 to 64 years (16 to 64% = 65.7)
1,100 = 65 years and above (65 and above % = 11.1)
Total 9,948
Saints
3,444 = 0 to 15 years (0 to 15% = 26.1)
8,509 = 16 to 64 years (16 to 64% = 64.6)
1,224 = 65 years and above (65 and above % = 9.3)
Total 13,177
South
2,039 = 0 to 15 years (0 to 15% = 21.0)
7,608 = 16 to 64 years (16 to 64% = 69.5)
2,360 = 65 years and above (65 and above % = 9.4)
Total 9,696
Stopsley
2,542 = 0 to 15 years (0 to 15% = 20.3)
7,608 = 16 to 64 years (16 to 64% = 60.8)
2,360 = 65 years and above (65 and above % = 18.9)
Total 12,510
Sundon Park
2,005 = 0 to 15 years (0 to 15% = 23.6)
5,254 = 16 to 64 years (16 to 64% = 61.9)
1,225 = 65 years and above (65 and above % = 14.4)
Total 8,484
Vauxhall
1,633 = 0 to 15 years (0 to 15% = 21.8)
4,964 = 16 to 64 years (16 to 64% = 66.2)
904 = 65 years and above (65 and above % = 12.1)
Total 7,501
Wigmore
1,779 = 0 to 15 years (0 to 15% = 18.9)
6,150 = 16 to 64 years (16 to 64% = 65.3)
1,491 = 65 years and above (65 and above % = 15.8)
Total 9,490
These demographic insights help guide our planning and ensure that care services are appropriately targeted to meet the specific needs of Luton’s aging population, allowing us to better serve the communities most in need of support.
Our commissioning priorities
In order to deliver effective services that meet the needs of Luton residents, the Council will focus on the following commissioning priorities. These should be read in conjunction with our other Market Position Statements. We will:
- address local needs: Services will be commissioned to meet the specific needs of Luton residents.
- partner with quality providers: We will prioritise providers with a history of successful partnerships with LBC and those rated as ‘Good‘ or ‘Outstanding’ by CQC.
- manage demand and capacity: We will adjust market capacity in response to changing needs, reducing provision where appropriate while encouraging growth in specialist services.
- embrace innovation: The use of digital and assistive technologies will be promoted across services to enhance care.
- future-ready services: Care accommodations will be developed to meet future generations' needs, ensuring a balance between Extra Care housing and residential care homes.
- highly skilled workforce: We will ensure that home care, extra care and care home providers have well-trained staff capable of supporting residents with a wide range support needs, including those with complex, long-term conditions.
These priorities will help ensure that Luton's older people's services remain high quality, sustainable, and fit for the future.
Constraints and dependencies
Luton faces several constraints and dependencies in commissioning home care services, extra care schemes, and care homes. Financial pressures are a significant challenge, with tight budgets requiring careful prioritisation of resources to meet growing demand and increasingly complex care needs. Additionally, workforce shortages in the care sector and rising operational costs are constraining market capacity and impacting service delivery. The council must balance these constraints while ensuring high-quality care for residents, focusing on cost-effective solutions like innovative technology and strategic partnerships with trusted providers.
LBC is actively assessing future demand, market capacity, and the financial stability of older people's services, with findings contributing to the 2025 Council Budget proposals. We look forward to continued collaboration with all stakeholders as we work to enhance the quality and availability of services for older people in Luton.
Current services
Home care
Luton delivers high-quality home care, regulated by the CQC, to support 610 clients, with 153 clients receiving double up care. A substantial number of home care hours are commissioned weekly, managed through a 7-year contract (5 years with two potential 1-year extensions) with 11 key providers on an framework contract, established on 1 April 2024.
The contract operates on a tiered system based on a combination of quality, performance, and financial capacity:
- tier one: Providers with a turnover of £1 million or more, ranked in the top 4 for quality and price (total weighted score). These providers are expected to deliver up to an average of 250 hours, equating to 60% of packages.
- tier two: Providers with a turnover of £500k to £1 million, also ranked in the top 4 for quality and price. These providers are expected to deliver up to an average of 104 hours, equating to 25% of packages.
- tier three: Providers with a turnover below £500k, ranked in the top 4 for quality and price, are expected to deliver up to an average of 62 hours, covering 15% of packages.
Providers have the flexibility to move between tiers, allowing them to grow and sustain their business, supporting Luton’s 2040 vision of fostering a thriving local economy.
Luton’s home care services provide personal care and support to adults in their own homes, addressing a range of needs from low-level assistance to complex care, including challenging behaviour. The service does not cover supported living, highly complex care, or tasks requiring medical professionals. It focuses on supporting recovery, enabling independence, reducing social isolation, and offering respite for carers. Care is personalised to meet individual needs and preferences.
Luton is transitioning from a time-and-task model to an outcome-based approach, measuring both Individual outcomes and service outcomes. Individuals are supported in regaining skills and confidence, with progress tracked through small milestones, helping them achieve long-term goals. The primary aim is to keep people in their own homes, whether through short-term recovery or managing long-term conditions.
Clients can select from Council-commissioned providers, which are regularly monitored for quality, or opt for direct payments to manage their own care. The Luton direct payments team is available for support, including assistance in recruiting personal assistants. More information is available on LBC’s website.
Quality assurance and monitoring
LBC prioritises high-quality, safe, and effective home care services to ensure individuals receive the right support to meet their goals. Our Quality Assurance team conducts regular monitoring visits using the Provider Assessment and Market Management Solutions (PAMMS) tool to rate services, guided by data and local intelligence. This is supplemented by both announced and unannounced visits to assess progress on action plans and review compliance.
If serious concerns arise, we work transparently with providers to improve quality and ensure safe care. Providers are expected to collaborate proactively, addressing issues before they escalate. In more serious cases, we partner with the Procurement team to implement immediate support plans.
Our focus remains on ensuring all necessary visits occur and maintaining high standards, with individuals’ feedback playing a key role in decision-making.
The latest Care Quality Commission (CQC) ratings for our commissioned providers are detailed in the below.
CQC Ratings for homecare providers on the FRAMEWORK
Good = 72.7%
Requires improvement = 27.7%
PAMMS Ratings for homecare providers on the FRAMEWORK
Good = 36.4%
Requires improvement = 9.1%
PAMMS inspection yet to be completed = 54.5%
Luton ensures all home care workers are paid at least the national living wage, monitoring compliance through the CM2000 electronic call system and Finance Manager software. This system also addresses issues like shortened visits and maintains service quality. In partnership with the NHS Integrated Care Board, LBC works with the same home care providers to deliver weekend and out-of-hours care, particularly for patients discharged from hospitals, helping to prevent unnecessary admissions during peak demand periods.
Extra care
Extra Care Housing refers to residential developments that provide private, self-contained homes combined with on-site care and support services, allowing residents to maintain their independence while receiving the tailored care they need. These schemes promote self-care and well-being, offering a flexible approach to care that adapts to individual needs.
Extra Care housing plays a crucial role in reducing demand for social care services, offering a lower-cost alternative to both residential care and intensive domiciliary care packages for older people. It also widens housing options for older adults and individuals with long-term conditions, such as dementia, by providing a supportive environment that balances independence with care.
In Luton, there are currently six extra care schemes, providing a total of 295 units. Of these, one scheme consisting of 41 units is privately owned and managed, limiting the council's influence over their allocation. The stock of extra care housing where Luton Borough Council holds full allocation rights stands at 254 units.
Details of the schemes are as follows:
Name: Abigail Court
Address: Abigail Close, Luton LU3 1ND
Owner/care provider: Owned by LBC, care provided by LBC
Description: Complex with a mixture of 58 flats and bungalows. Mix of 1 and 2 bedrooms.
Name: Applegrove
Address: St Kilda Road. Luton. LU4 0UP
Owner/care provider:Owned by Home Prime, Care provider LBC
Description: Complex with a mixture of 56 flats and additional bungalows. Mix of 1 and 2 bedrooms. The site is wheelchair accessible throughout.
Name: Betty Dodds Court
Address: 39 Grange Road, Leagrave, Luton. LU4 9AS
Owner/care provider: Owned by BPHA, Care provider – OneCare Ltd
Description: A complex of 47 flats with a mixture of 1 and 2 bedroom flats over two floors. The site is wheelchair accessible throughout.
Name: Bushmead Court
Address: Hancock Drive,Bushmead, Luton. LU2 7GY
Owner/care provider: Privately Owned. Leasehold Care provided by Bushmead Court Management Ltd
Description: Complex of 41 flats. There is a mix of 1 and 2 bedroom units with lifts and a stair lift available to access all floors.
Name: Colwell Court
Address: 104 Colwell Court, Colwell Rise. Wigmore Luton. LU2 9TW
Owner/care provider: Owned by LBC Care provided by LBC
Description: 33 properties. This building is old and is not easily accessed by a wheelchair. There have been wet rooms installed within some rooms of the building, however due to the age of the build accommodation is more suitable for the ambulant individual.
Name: Jill Jenkins Court
Address: Whipperley Ring, Luton. LU1 5QY
Owner/care provider: Owned by BPHA, Care provider – Westminster Home Care
Description: 60 properties available over two floors
LBC also commissions onsite care services at two key extra care schemes: Betty Dodd Court and Jill Jenkins Court. These services offer on-site staff to deliver background care, support, and emergency response within an extra care housing setting. Available to all residents, care is accessible around the clock, ensuring support whenever needed.
The council has commenced a strategic review of its extra care housing model. The review will assess the existing care model, including care provision, resident profiles, and future considerations such as integrated care, flexibility, and a focus on prevention. Innovative approaches will also be considered, along with partnerships with the Integrated Care Board (ICB) for joint commissioning, shared resources, and pilot programs.
A future digital strategy will focus on technology-enabled care (TEC), digital inclusion, and data integration. The review will also benchmark national models of excellence and design a new model that reflects local needs, with a strong focus on equity, diversity, inclusion, and culturally competent care.
The council is aware of proposals to develop new care home provision. Engagement with developers has begun and will continue throughout 2025 to ensure future housing needs are met.
Residential and nursing care homes
Residential care homes for older persons provide accommodation and personal care for people who need extra support in their daily lives, which cannot be delivered in their own home.
Nursing care homes offer a higher level of personal care and will have a qualified nurse on duty, to reflect the complex nature of the support they will have a higher ratio of staff to residents.
Luton commissions nursing care placements for people who require nursing care, in instances where their social care need is greater than their health care need. Continuing health care placements are made when a person’s health needs prevail over their social care need.
OP Residential
Number of homes: 16 TBC
Number of beds: 527 TBC
OP Nursing
Number of homes: 7 TBC
Number of beds: 368 TBC
Source: LBC March 2023.
All homes are all registered with the CQC. The table below shows the current CQC ratings for the care homes for Older People in Luton.
CQC ratings for care homes in Luton – figures TBC
Outstanding = 1
Good = 11
Requires improvement = 3
Inadequate = 1
Total = 16
We aim to improve the quality of the local care homes by working alongside care providers and to purchase a higher portion of the beds locally for our residents.
Commissiong intentions
Our intentions
Luton’s goal is to help individuals stay in their own homes for as long as they wish, supported by continued investment in community and preventative services. For those who prefer or need accommodation-based care, we aim to provide timely access to the most appropriate setting that meets their needs.
As people live longer with more complex health conditions, we recognise that when they do require accommodation with care, their care needs are likely to be higher than in the past. Our focus is on ensuring they receive the right level of support at the right time, with a clear understanding of the options available.
We are committed to working collaboratively with the NHS, CQC, and care providers to offer a full range of high-quality accommodation and care options. This approach ensures that residents have a comprehensive understanding of the services available to meet their social care needs.
Our aim is to develop diverse, high-quality home care, accommodation and care schemes across Luton, offering real choices for older people. Seamless coordination between hospital discharges and accommodation-based care is vital, ensuring smooth transitions that promote physical and mental well-being.
We will continue with service development within our existing extra care schemes, which provide a bridge between independent living and residential care homes.
Demand and future need
Growth in the older population high migration scenario, Luton: 2021 to 2036:
The population of older adults in our area is projected to grow significantly between 2021 and 2036, with increases in two key age groups. For residents aged 65–84, the population is expected to rise from 22,738 in 2021 to 32,971 by 2036, an estimated increase of around 45%. For those aged 85 and above, the population is projected to grow from 3,691 to 5,417 over the same period, an increase of approximately 47%.
We are already seeing the early stages of this growth, with steady increases in both groups. These trends highlight the importance of planning now to ensure services can meet the future needs of an ageing population.
Data on current and forecasted supply suggests that care home provision in Luton is sufficient until at least 2025. However, there are challenges in nursing care for people with complex needs, which will be addressed through a procurement of nursing beds in partnership with health colleagues. Efforts are also being made to ensure the market can handle short-term demand spikes, such as those caused by winter illnesses.
Looking ahead, Luton's older adult population is expected to grow significantly, and work from 2024/25 will focus on ensuring the long-term sustainability of the care home market. Vacancy levels remain a concern, with some homes having high vacancy rates, which could affect the stability of the market and limit the availability of suitable places. Currently, voids in homes accepting local authority rates are at 4.39%, but overall, voids stand at 16.8%. There is also a relatively low level of self-funders compared to neighboring areas, with a higher proportion of placements coming from other local authorities.
A larger number of providers in the market does increase choice and reduces the impact of provider failure, but it would make market management more complex for the local authority. As shown in the map above, Luton’s care home provision is spread across the borough. Whilst there are some areas that do not have any care home provision, overall travel distances to the nearest care home are short.
Key focus areas for future provision:
- reduced demand for residential placementsas more individuals explore alternatives like extra care and in-home support.
- increased demand for specialised dementia carefor those with complex needs and challenging behaviours, reflecting longer life expectancies.
- more early-onset dementia placementsdue to a rise in earlier diagnoses.
- prioritised contracted care homes: The Council will focus on working with contracted providers for all placements.
- additional nursing placementsfor residents with the highest care needs, where current supply is insufficient.
- expanded care for people with multiple conditionsas the aging population increasingly presents with complex, overlapping health issues.
- more forensic history placementsto meet specific needs for this group.
- targeted support for older people with learning disabilities, where age-related needs are paramount.
Luton will continue to develop a diverse mix of high-quality residential and nursing care services to meet these evolving needs.
Technology
Luton is committed to helping individuals achieve the best possible health and well-being outcomes, enabling them to live independent and fulfilling lives. This is supported through the integration of digital innovation and technology, focusing on:
- empowering individuals: Implementing smart technologies that enhance personal health and well-being, allowing individuals to take control of their own care and easily access necessary services.
- building workforce capacity: Equipping care staff with the tools and skills to provide high-quality support, fostering a confident and capable workforce in both the Council and the care sector.
- collaborative partnerships: Engaging with key stakeholders across the region to foster innovation, share knowledge, and improve care outcomes for residents.
The council expects all care accommodation providers to actively invest in and utilise digital technologies to enhance service delivery. This includes:
- assistive technology: Supporting frail and vulnerable individuals to maintain their independence through devices like remote monitoring systems, falls detection systems, and assistive aids.
- digital care management: Using electronic care plans and online medication records to ensure accurate and timely care provision.
- technology for well-being: Facilitating virtual communication and social connections through devices that enable video calls and other digital interactions, enhancing residents' quality of life.
Through the adoption of these technologies, providers can deliver more personalised, efficient, and effective care for residents.
Provider expectations in Luton
Luton seeks partners who deliver services centred on outcomes, empowering individuals with greater choice, control, and the support needed to reach their personal goals. We require providers capable of addressing complex care needs, where residential care may be the most appropriate solution. Collaboration with innovative developers, housing providers, and social care experts is key to ensuring a wide range of high-quality accommodation and services.
We expect our providers to:
- align with Luton’s core values and strategic objectives.
- foster wellbeing, independence, and recovery for service users.
- encourage the development of social connections and relationships.
- facilitate smooth transitions to appropriate housing or care settings.
- provide adaptable services that meet evolving individual needs.
- ensure care worker compatibility to improve outcomes and satisfaction.
- uphold rigorous standards of care quality.
Providers should also integrate with local services and ensure residents, and their families are kept informed. Strong community involvement through collaborations with schools, local organisations, and voluntary groups is encouraged.
We look for providers to aim for ‘Good’ or ‘Outstanding’ CQC ratings, employ a diverse workforce representative of the local community, and demonstrate:
- responsiveness and adaptability in service delivery.
- professionalism and sound business operations.
- dedication to meeting the specific care needs of Luton residents.
- effective business continuity planning and commitment to staff well-being.
- open and transparent collaboration with Luton Council and other providers.
- investment in technology to enhance care delivery, communication, and reporting.
By meeting these expectations, providers will help deliver the high-quality, person-centred care that Luton’s population is entitled to.
Social value
LBC is committed to ensuring that our spending delivers significant community benefits, improving the economic, social, and environmental wellbeing of the borough. Under the Public Services (Social Value) Act 2012, we consider not only the cost of services but how they can positively impact Luton before procurement begins.
We encourage providers to:
- contribute to Luton’s wellbeing: Services should support the borough’s broader goals, such as improving economic opportunities, social inclusion, and environmental sustainability, helping us achieve our 2040 vision and Net Zero goals.
- add value beyond the contract: Providers should look for ways to deliver additional benefits—whether through employment opportunities, community engagement, or environmental initiatives—beyond the basic contract requirements.
Social value pillars
Social:
- a balanced community - where equality, diversity, inclusion, and cohesion matter
- wellbeing
Economic:
- COVID-19 recovery
- tackling economic inequality
Environmental:
- fighting climate change
By embedding social value in service delivery, we aim to maximize the positive impact of our resources, ensuring they benefit the people of Luton and the local environment. Providers are key partners in this effort, contributing to outcomes that support a thriving and sustainable community.
Our promise to providers
Luton is committed to working with contracted providers of accommodation with care & support who demonstrate strong partnerships. We focus on co-producing services, setting meaningful performance measures, and aligning contracts with our market goals to drive continuous improvement. Providers can expect timely payments, fair pricing, and strategic relationships with both local and national providers.
This market position statement outlines our commitment to engaging with the care market through 2024/25. We offer platforms such as the home care and nursing & residential care provider forums, specialised events, and procurement engagement opportunities. LBC invites all eligible providers to participate, and our quality assurance team regularly informs providers about training opportunities.
We support a diverse range of services, ensuring equal opportunities for all providers. Our approach addresses market challenges, prevents failures, and ensures access to quality care in all circumstances. Partnering with us offers a fair, growth-focused collaboration to deliver the best care for Luton’s residents.