Mr Emery said the groups had to go back to the beginning and ensure good quality services were in place to set a benchmark and plan properly for the future.
Already there were difficulties providing home-based care in some places, particularly in rural areas, and there were also inconsistencies across the country in what level of support people received, and how their needs were assessed.
Mr Emery also raised concern about a lack of mandatory standards in the industry, and recommended the Government consider setting them.
While there were very few official complaints about home-based care, Mr Emery said the lack of standards meant it was hard to judge what support people should expect from the care, and said the complaints system was hard to access.
"Our qualified view does not give us assurance that services are effective in all cases," he said.
Along with considering mandatory standards, the report made several other recommendations, including having DHBs work collaboratively to improve the complaints system, and collecting further information to ensure ongoing value for money and service quality.