Scottish Government

John Scott & Katy MacMillan - ODS Consulting

ISBN 0 7559 2949 7

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The Scottish Executive commissioned a study to prepare 10 case studies of Common Housing Registers ( CHRs) in Scotland that were either at developmental or operational stage. The study explored the experiences of partners and identified key issues that may require to be addressed in developing, implementing and operating CHRs. It is intended that the study
will provide a resource for practitioners and complement other Scottish Executive publications that support the development of CHRs.

Main Findings

• The case studies demonstrate clearly that CHR development is primarily an exercise in joint working.
• The importance of harmonisation of policy and practice and compromise in the development of a CHR is highlighted by many of the case studies.
• Many of the case studies highlight the length of time which must be dedicated to CHR development before clear outcomes are produced, due to initial need to focus on the CHR model rather than tangible outputs.
• Generally locally based landlords or those with significant stock numbers have taken the lead in CHR development while regional and national associations have been less involved in the initial development. Few examples of different partnership models such as buddying were identified.
• The case studies identified that it is possible to establish a CHR based on partners offering a range of allocations systems, including needs based systems, choice based systems and a mixture of both, but that where all partners use the same approach to the application process the resulting CHR model is simpler.
• Effective support and project management is very important throughout the CHR development, implementation and management process.
• The primary aim of all the CHRs has been to improve the process of applying for a house for the applicant but at times the focus on the end result has been somewhat lost in technical discussions.
• In some areas, the creation of an ICT solution to enable the delivery of a common applicant database has dominated discussions and has led to the CHR model being determined by the ability of the ICT system to deliver.
• The prioritisation of ICT issues has sometimes led to less consideration being given to co-ordinated housing information and advice provision.
• The process of developing and implementing CHRs has been strongly assisted by funding from the Executive.

Introduction

A Common Housing Register ( CHR) consists of a group of landlords devising a single route through which all those seeking social housing can apply; a single database of applicant details; and co-ordinated housing information and advice provision.

The development of CHRs in Scotland has been driven by a range of different factors including the realisation by many landlords that CHRs have potential benefits to applicants, the requirements of the Housing (Scotland) Act 2001 and the expectations of Communities Scotland as regulator.

Development has also been facilitated by funding provided by the Scottish Executive through both the Modernising Government Fund and the dedicated CHR Development Programme 2004/06.

This study aims to build on existing guidance through providing practical examples of CHR development and operation.

Ten case studies were selected to include both operational and developing CHRs that included a range of different characteristics - including a mix of urban and rural areas, large and small CHR partnerships, and areas where local authority stock transfer has occurred or is in progress. Most importantly, the case studies include a wide variety of CHR models.

The case studies chosen were:

• Aberdeen City - operational
• City of Edinburgh - operational
• Glasgow Royston - operational
• Inverclyde - operational
• Perth & Kinross - operational
• Scottish Borders - operational
• Argyll and Bute - in development
• Dumfries & Galloway - in development
• Fife - in development
• Highland - in development

KEY THEMES & LESSONS LEARNED

Partnership Working

The case studies demonstrate clearly that CHR development is primarily an exercise in joint working. Where partners present a positive view of CHR development, the single common factor has been the extent to which they have worked together to establish the CHR.

The successful establishment of a CHR appears to strongly revolve around relationship building, compromise, shared vision, trust and commitment - all essential components of working in partnership.

There are five key areas where partnership working has proven particularly important in the case study areas:

• ownership and commitment have proven easier where an environment exists in which partners wish to work together to jointly improve services;
• existing positive relationships and experience of joint working generally make the CHR development process easier;
• developing relationships is an important building block in subsequent development activity;
• involving the right people and maintaining consistent involvement are critical to developing positive joint working relationships;
• positive impacts on other joint working relationships have been achieved through effective CHR development activity.

Harmonisation & Compromise

Many of the case studies highlight the importance of harmonisation of policy and practice, for example in allocations, in the development of a CHR.

Partners in almost all of the case studies had undertaken some form of standardisation of their existing policies and procedures to assist with CHR development. This ranged from slight adaptation of procedure or policy with the aim of creating a common application form to the creation of a common method for assessing housing need.

In areas where partners have been prepared to compromise on existing policy and practice, they have found the process of establishing a CHR much simpler than in areas where organisations have sought to retain existing procedures.

Where harmonisation of allocation policies and procedures has been undertaken, many felt that the experience was much easier than anticipated. It also greatly simplified the ICT solution required to deliver a common database of applicant details.

Lack of standardisation has often led to long application forms and complex ICT solutions, which partners realise in retrospect could be much simplified by increased harmonisation.

Demonstrating Success

Many of the case studies highlight the length of time which must be dedicated to CHR development. In addition, due to the (necessary) initial focus on the CHR model, much of the early activity is based on vision and principles, rather than tangible outputs.

This has, in some areas, led to concern that although time and effort is dedicated to CHR development in the early stages, it is a long time until partners are able to produce clear outcomes.

Many CHR partners have stressed the importance of simple tasks in the development stages, which can give the process a sense of momentum and achievement, such as the development of draft common application forms.

Varying Roles of Partner Landlords

The case studies demonstrate that generally locally based landlords or those with significant stock numbers have taken the lead in CHR development.

However, regional and national associations are having to participate in a number of CHRs across Scotland, resulting in many taking a back seat during initial development activity with the aim of fitting into the model once it has been developed by the larger or more local players.

Whilst many regional and national associations anticipate becoming involved in the future as a partial partner, the case studies found few examples of where national and regional landlords had considered the different levels at which they could participate, thus ensuring their earlier involvement in the development of a CHR.

Where buddying arrangements had been used this tended to be as an interim measure to cope with difficulties in accessing the central database.

In areas where CHRs are still in the development stages, the focus is primarily on the establishment of an operational CHR with the core partners, without considering in detail how other partners will join at a later date.

Choice Based Lettings and CHRs

The case studies identified that it is possible to establish a CHR based on all partners operating a needs based points system; based on some partners using a choice based system; or based on all partners using a choice based system.

While all approaches are possible, the case studies demonstrate that again, harmonisation is the key. Where all partners use the same approach to the application and assessment process the resulting CHR model is far simpler, and partners demonstrate a higher degree of satisfaction with the end result.

Project Co-ordination & Support

The case studies demonstrate the importance of effective support and project management throughout the CHR development, implementation and management process. In most cases, a CHR Co-ordinator has been appointed to undertake this role which is viewed as a positive way of driving the development process and stimulating activity.

In order to develop an effective CHR, an understanding of a wide range of concepts and processes is required which will rarely be found in one individual.

CHR Co-ordinators need to draw on the knowledge of each of the partner organisations in order to understand current processes and evaluate future options. The support offered by partner organisations in sharing this knowledge has proven a key factor in CHR development.

Raising Standards and Sharing Best Practise

The primary aim of the CHR partners in all ten case studies has been to simplify the process of applying for a house for the applicant themselves, with any potential organisational benefits generally seen as secondary objectives.

Due to the range of factors involved in CHR delivery, there do appear to have been times where the focus on the end result has been somewhat lost in technical discussions, on occasion resulting in potentially confusing procedures for applicants.

Consideration of ICT

In some areas, the creation of an ICT solution to enable the delivery of a common applicant database has dominated discussions. CHR development has often been seen as a technical issue - one which the right ICT system will resolve. This has led, in some places, to ICT driving the process with the CHR model being determined by the ability of the ICT system to deliver.

This situation has often arisen due to partner perceptions that ICT will be the most complex element of the CHR to deliver. While this is true in many cases, the range of different CHR models in the ten case studies demonstrate the very different types of ICT solution required to suit each area.

Consideration of the ICT solution before taking decisions on what partners aim to deliver has, in some cases, meant that the overall objective of simplifying access to housing has been lost or forgotten.

Developing a Customer Focus

The prioritisation of ICT issues in some partnerships has led to a focus of the development of a common database and common application form, with less consideration given to co-ordinated housing information and advice provision.

Joined up information and advice is central to the CHR from the applicant's point of view. The database of applicant names is essentially a 'behind the scenes' issue with the real benefits to applicants coming from a common form and co-ordinated information and advice provision.

Funding

The process of developing and implementing CHRs has been strongly assisted by funding from the Scottish Executive. The case studies of CHRs still in development highlight uncertainty regarding the future of those CHRs after March 2006.

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