Scottish Government

Section 2: Outcome 3: Sustainable resettlement is secured for people who have become homeless

Introduction

67. Achieving sustainable resettlement is key to the successful delivery of homelessness services and obviously of utmost importance to homeless households. Although the securing of settled accommodation is a crucial element of a sustainable solution, a range of other supports may also be necessary depending on the circumstances of the household. At a national level it is difficult to consistently monitor some aspects of this approach in terms of outcomes for individuals.

68. National homelessness statistics indicate that the proportion of repeat ¹⁵ homelessness cases has stabilised at around 8% which suggests that the significant majority of households assessed as homeless receive a satisfactory outcome. However, there is some debate around measuring repeat cases and data on levels of tenancy sustainment for homeless households, which would be the most useful indicator of progress against this outcome, is not available at a national level.

69. Through the local outcome agreement and progress reports, most authorities indicated confidence that more sustainable outcomes for homeless households were being achieved. However one authority mentioned that reducing the duration of homelessness by ensuring households receive permanent accommodation more quickly had affected tenancy sustainment levels, perhaps because appropriate support was not in place due to speed of rehousing. In this particular authority this led to a reversal of the previous trend whereby homeless households were more likely than others rehoused from the general list to sustain their tenancy for a year or more.

70. A few authorities mentioned that they were in the process of developing better monitoring systems or focussing on particular scenarios to improve their information on tenancy sustainment, repeat homelessness and the most difficult cases in order to inform the commissioning of new services or development of existing ones. Other authorities quoted figures which illustrate that over 90% of homeless households retain their tenancy for at least 12 months and that, generally, higher sustainment rates are noted where furnished tenancies are provided. As noted above, more systematic recording of tenancy sustainment by landlords would help inform local planning and monitoring of outcomes.

71. Communities Scotland inspections have found that a number of councils have developed effective ways to help support homeless people they have rehoused, and inspectors have noted improvements in tenancy sustainment levels. Examples of activity include: provision of support services; settling in visits for vulnerable new tenants; independent living skills courses for young tenants; help with accessing furniture; mediation services; and homelessness advice lines.

Accommodation

72. Focussing on the provision of sustainable accommodation, national statistics indicate that the proportion of unintentionally homeless households in priority need who are offered permanent accommodation has increased from 58% in 2002/3 to 70% in 2006/7. When these households are offered permanent accommodation, the vast majority accept the offer of accommodation - 87% acceptance in 2002/3 rising to 92% in 2006/7. This may suggest that generally offers of accommodation are appropriate but there are alternative interpretations including concern that inappropriate offers might be accepted due to low expectation of more suitable accommodation. As noted below, homeless households do not always receive the same level of choice as other applicants for social housing.

73. The Task Force were clear that where permanent accommodation was provided this should be in a community in which the household would feel comfortable and included, where possible. Through the local outcome agreements and progress reports, all authorities stated that they take the household's preference and proximity to existing social networks, relevant educational establishments and employment into account when making an offer of accommodation - some making clear that this applies to both temporary and permanent accommodation.

74. A number of authorities stated that although they take these factors into consideration, they are not always able to make an offer which meets the applicant household's preferences. This was generally reported to be due to overall pressures on housing supply although the difficulty of providing adequate support in some locations was also mentioned. This disjunction between aspirations and the feasibility of meeting them may underlie concern expressed by Shelter Scotland that their clients' views do not support the picture of local authority practice outlined above.

75. In order to address these issues, authorities mentioned changing their assessment processes to ensure that relevant factors were taken into account; reviewing and amending allocations polices to allow greater choice and also to give greater prominence to the needs of homeless people; entering into protocols with local housing associations in order to broaden the pool of accommodation available; and carrying out research into the reasons for refusal of offers so that practice can be improved if possible. One authority reported that it looks to convert temporary accommodation into permanent in order to minimise disruption to households who have settled in temporary accommodation and to enhance support to households at risk of repeat homelessness.

76. However it was noted that progress in securing the most appropriate accommodation would be limited in some areas unless broader housing supply issues could also be addressed. This point was also made strongly by participants in the 2012 Homelessness Support Project.

77. Communities Scotland, in its current role as housing regulator, monitors the number and quality of accommodation offers through their inspections of local authority homelessness services. Inspections look at the level of allocations to homeless people compared with the level to other applicants and in the context of the number of people applying as homeless and in priority need. Inspections also look at the type of and location of lets, although the level of analysis that is possible is largely determined by the quality of information held by each local authority.

78. Since April 2006 Communities Scotland has published eleven inspection reports, two of which were for local authorities that had transferred all their housing stock to new registered social landlords. For the nine authorities that have housing stock, the levels of lets to homeless people as a percentage of all lets ranged from 31% to 58%. Six of these authorities measured what proportion of homeless people given permanent accommodation remained in that accommodation 12 months later, and reported sustainment levels from 72% to 96%.

79. However, inspectors found that none of the eleven authorities comprehensively monitored the outcomes for all homeless people who used their services, and only two always took account of homeless people's needs when allocating permanent accommodation. Six were able to demonstrate that they gave homeless people the same level of choice as other applicants in the location of permanent accommodation. Inspectors found that one authority gave homeless people fewer offers and a lower quality of houses than other applicants for housing.

Registered social landlords

80. It is clear from local authorities' outcome agreements and progress reports and from Communities Scotland's inspection that there are some areas where effective partnership working is taking place and achieving good outcomes for homeless people. However in other areas the relationship is more strained and a number of participants in the 2012 Homelessness Support Project commented upon this.

81. Communities Scotland also monitors the responsiveness of registered social landlords ( RSLs) to councils' requests for accommodation for homeless people made under section 5 of the 2001 Act. In 2004/05, RSLs let 14.5% of their house to homeless people in discharge of their duties under section 5. This increased to 16% in 2006/07, with a further 4% housed through nomination agreements (this was first measured in 2006/07). So, in total, around one in five lets by RSLs is to a homeless person to help councils to discharge their statutory duties. These figures include lets by the three whole stock transfer RSLs - two of these are currently using around the same proportion of lets for homeless people as other RSLs; the other is using significantly more.

82. In effect, RSLs' contribution to housing homeless people has changed little over the three year period since 2004. This contribution needs to be fully maximised to assist in reaching the 2009 and 2012 targets.

83. The Scottish Government is reviewing the operation of section 5, taking account of other studies on its local application, in order to determine whether further action is required. Research has been commissioned with the aim of improving understanding of how RSLs and local authorities are using section 5 and placing homeless people in RSL accommodation. The research will contribute to the evidence base on homelessness and is the first key step in the review. The lettings situation for whole stock transfer RSLs in comparison to the remainder will also continue to be monitored.

Private rented sector

84. Generally the outcome information available focuses on the provision of Scottish Secure Tenancies. However, there has been growing acknowledgement that sustainable resettlement is possible in a variety of tenures, and particular interest in the contribution that can be made by the private rented sector in Scotland. In its discussion document 'Firm Foundations: The Future of Housing in Scotland' the Scottish Government set out its view that the private rented sector has much to offer its tenants in terms of flexibility, choice of location and, in most cases, good quality housing and can therefore make an important contribution to meeting housing need.

85. The Scottish Government will consult shortly on amendments to the Homeless Persons Interim Accommodation (Scotland) Regulations 2002, with a view to allowing local authorities more flexibility in using the private rented sector to house homeless households. This will take into account the need for the sector to represent an appropriate and sustainable solution to homelessness.

86. To support this consultation, the Scottish Government is also carrying out a comprehensive review of the private rented sector. One of the main objectives of the review is to look at how best to increase the supply of private rented accommodation for homeless and low-income households. The review will look at how local authorities can best increase their engagement with the private rented sector and how best to tackle barriers which may prevent landlords from letting to homeless and low-income households. This may also help to progress the Task Force's recommendations on rent deposit schemes and lead tenancies.

87. In terms of current progress on rent deposit schemes, information received through the local outcome agreements and progress reports indicated that 29 local authorities had a scheme in operation, two were in the process of finalising a scheme and one authority is exploring alternative approaches following the failure of a pilot scheme. Schemes were either run by local authority staff or by local voluntary organisations and nearly all were able to provide figures on the number of households assisted.

88. A few local authorities reported difficulties including benefit rules; recruitment of landlords; matching of tenants; publicising the service effectively; sourcing private sector landlords willing to accept homeless tenants/tenants on benefits; and the current lack of flexibility in discharging duties under the homelessness legislation.

89. A national development officer has been funded by the Scottish Government to provide support to local rent deposit schemes. The development officer has established a network for schemes to share practice and in February 2008 published a report detailing the nature of schemes in Scotland, their cost effectiveness and their role in creating sustainable communities and preventing homelessness ¹⁶. Good practice guidance on the development and operation of schemes was also published in February this year ¹⁷.

Furniture

90. The Task Force also emphasised the importance of providing furniture as a factor in sustaining tenancies and this was reinforced by Glasgow Housing Association's study on tenancy sustainment in their stock ¹⁸. Targets set by the Task Force for 1,000 furnished tenancies a year for five years across Scotland have been exceeded, with local outcome agreements and progress reports indicating the creation of 4,000 such tenancies for homeless people in 2006/07 alone.

91. Guidance issued in 2007 highlighted the following priorities for furnished tenancy development as indicated by monitoring of practice from 2003 onwards: the creation of permanent rather than temporary tenancies; the use of furniture recycling projects; and the elimination of service charges.

92. Where information was provided through local outcome agreements and progress reports, it appears that approximately three quarters of tenancies created were recorded as permanent, with the other quarter either temporary or unrecorded. The large majority of these tenancies were in the local authority sector, with fewer RSL tenancies and only very few in the private sector.

93. Twelve local authorities indicated their use of, and financial support for, furniture recycling projects. This reflects broader growth of the furniture recycling sector. In 2006 furniture projects estimated that the number of people assisted had more than doubled since 2003/04 and 55% of their clients were moving out of homelessness, up from 50% in 2003/04. The number of people employed in the furniture reuse sector has more than doubled in this period. The National Furniture Reuse Projects Co-ordinator, funded by the Scottish Government and based at Community Recycling Network Scotland ( CRNS), has produced a toolkit ¹⁹ for Local Authorities and RSLs that want to purchase furniture packs from furniture projects and will provide practical support to housing providers.

Housing supply

94. As noted above it is not possible to achieve sustainable resettlement for homeless people without an adequate supply of socially rented or alternative affordable housing. Through local outcome agreements and progress reports a number of local authorities have indicated that aspects of availability of affordable housing has detrimentally affected their ability to achieve sustainable resettlement for homeless people. In some areas this is an issue of overall quantity, in others it relates to the type, size, quality or location of affordable housing available. The impact of available supply on local authorities' ability to meet the 2012 target is considered further in Section 3.

95. In the period since the Task Force reported, Local Housing Strategies ( LHS) have been at the centre of the framework for planning the supply of affordable housing. The first round of LHS were completed in 2003/04 and assessment by Communities Scotland found that while links with homelessness strategies were generally good, the analysis of, and responses to, the housing supply dimension of homelessness required to be properly developed.

96. The Scottish Government has made clear that the LHS should play an enhanced role at the heart of a reformed delivery framework for achieving a step change in housing supply, and should set out the requirements and targets for housing across all tenures. Homelessness will remain a key national housing priority to be fully addressed in the next round of LHS, which are currently scheduled for completion in 2009.

97. The Government expects that LHS developed in the next round will be shorter, strategic, and outcome-focussed. In addition, in line with the Government's aim to streamline the requirements placed on local government, it is proposed that housing and related strategies are rationalised. New guidance on Strategic Housing Need and Market Assessments to be published in spring 2008 will ensure greater consistency and a more robust approach to the assessment of future housing need and demand across all tenures.

98. In its discussion paper, 'Firm Foundations', the Scottish Government set out reform proposals to increase the output of social housing from available public investment. The Government is considering how the current Strategic Housing Investment Framework should evolve further in light of the responses to the proposals put forward in Firm Foundations. The indicators used to assist Ministers determine priorities at a national level for affordable housing from 2009/10 onwards will include a housing supply indicator which combines measures of housing demand and homelessness. Work to refine this indicator is currently ongoing.

99. As is noted above, the provision of accommodation, although crucial, may not be sufficient to ensure sustainable resettlement for all homeless households. Alongside the provision of furniture, the Task Force also focussed on the following elements as being central to sustainable solutions to homelessness:

• The provision of appropriate support to homeless people;
• Action to improve the health of homeless people;
• Action to improve the employment prospects of homeless people; and
• Strengthening the social networks of homeless people.

Support

100. In terms of providing support to households resettling from homelessness, 17 authorities stated through their local outcome agreements and progress reports that they are meeting the terms of the relevant Task Force recommendations with 12 authorities making progress towards it. Many authorities have specialist teams or provision established to cater for the needs of particular groups - these include former rough sleepers; single people; young people; families/single parents with babies; ex-offenders; people with mental ill health; people with addictions; and people with multiple and complex needs.

101. The voluntary sector is regularly mentioned as a support provider, with less frequent mention also made of partnerships with RSLs who provide support. It is clear that there are a number of different models of accommodation and support provision in place with mention being made of supported lodgings and residential projects for example. At the other end of the scale, some authorities highlighted starter pack projects developed to offer the most basic assistance.

102. A number of authorities highlighted work which has been done to develop effective tools for measuring the impact of support provision, whilst one authority emphasised the need to develop this as a priority. In one case there was a reference to a shared approach to monitoring with the voluntary sector in order that a consistent approach can be taken.

103. The majority of support appeared to be funded via Supporting People although this has been supplemented by homelessness funding; the Housing Revenue Account; delayed discharge monies; and throughcare and aftercare funding. Local authorities and other support providers will wish to take new funding arrangements into account in the future provision of support.

104. Most local authorities provide support for both households who have been homeless and are resettling and households who are currently in tenancies or other accommodation but need support to avoid the threat of homelessness. However a number of authorities stated that they currently have insufficient resources to offer the full range of support services required - this was commonly related to reductions in Supporting People funding. A lack of specialist services or appropriate services for those with complex needs was mentioned by some authorities - while some others stated that they are currently only providing support to those in temporary accommodation and not to those in permanent tenancies.

105. In 2005/06 £71.6 million was spent on housing support services assisting over 32,000 homeless people from the Supporting People programme. This was a 15% increase in expenditure and a 17% increase in client numbers supported over the previous year. Supporting People client statistics for 2006/07 will be published by the end of March.

Health

106. At present there is no consistent information on health outcomes for homeless people. However the importance of ensuring access to health services is well understood, as are the links between homelessness and poor health. Compliance with the Health and Homelessness Standards is monitored through NHS Boards and the majority now report overall compliance of 90% or above - 7 boards report overall compliance of 95% or more. However, feedback from local partners would suggest that work needs to continue at local level to minimise variability in performance within and across the Standards at both national and board levels. Future monitoring of compliance against the Standards should be considered.

107. To assist boards in continued development locally, options are being explored with key stakeholders for the establishment of a health board Health and Homelessness Leads Network. The network would act as a platform for mutual support and the sharing of good practice across boards on health and homelessness issues.

108. The Scottish Government is setting out its agenda to challenging health inequalities - describing it as the single most pressing and demanding challenge we face today. The focus is on helping people, particularly in disadvantaged communities, to sustain and improve their health through better diet, better ways of tackling alcohol and drug misuse, mental health and wellbeing; all of which is intrinsic to the health and homelessness agenda.

109. Through the local outcome agreements and progress reports, local authorities reported specifically on recording the GP registration of homeless households and developing co-ordinated local action to tackle substance misuse and homelessness. The majority of authorities reported good progress in both these areas. The majority stated that information on the applicant's GP registration is recorded routinely as part of the homelessness assessment and some have revised their applications forms to include this. Roughly one third of local authorities reported providing information on accessing a GP, transferring to another practice and accessing other community health services where appropriate (including operating a referrals system). One authority stated that GP information is only recorded where an applicant has a medical condition or when a housing support assessment is being carried out.

110. Some authorities advised that local service contracts are in place to provide dedicated clinical staff for homeless applicants; this is generally provided at hostel accommodation or at drop in centres or clinics. Others reported partnership working with the health sector: examples include advising the local health board of any problems experienced by homeless applicants in registering with a GP; and the creation of a health and homelessness officer post to work in partnership with the local board in agreeing communication and access frameworks. One authority reported good links between homelessness and health services due to a central heath care team being remitted to deal with the homelessness client group.

111. In relation to developing co-ordinated local action to tackle substance misuse and homelessness, the majority of authorities mentioned specific partnerships with a variety of organisations (including Alcohol and Drug Action Teams ( ADATs), the NHS, Child Protection teams and the voluntary sector); corporate working arrangements were mentioned frequently as were arrangements with neighbouring authorities. Some local authorities reported strong partnership working and integration of homelessness, housing, health and addictions strategies and services; others indicated a need for further work to ensure appropriate linkages are in place.

112. A number of authorities highlighted improved homelessness assessment procedures to help identify substance misuse issues at the point of presentation. Many mentioned protocols on referrals to appropriate services, some of which were provided by external partners under service level agreements. Training and awareness raising for staff members was also mentioned.

113. Other action taken to meet the needs of homeless people living with addiction included the use of support workers; dedicated supported accommodation and clinical staff; needle exchange; and drop-in centres. The main challenges identified included the lack of supported accommodation facilities, funding and supply issues around clients accessing services at the point of crisis and limited access to specialist floating support.

114. One third of authorities referred to work being carried out - or planned - to improve knowledge about the housing and support needs of homeless people with substance misuse issues and identify gaps in provision. This includes research, evaluation of existing services and ongoing review of local strategies. One authority mentioned a pilot project being undertaken with ADATs and Child Protection working with families with children affected by substance misuse which has the aim of a more coordinated approach to identifying and meeting needs.

115. Research has been commissioned from the Centre for Housing Policy at the University of York to identify and review available evidence on models and approaches that produce positive outcomes for people with substance misuse problems who are homeless or at risk of homelessness. The research is exploring the nature of the relationship between substance misuse and homelessness and aims to develop potential outcome indicators for homeless people who misuse substances. The final report from the research is expected in summer 2008.

Employment

116. The Scottish Homelessness and Employability Network ( SHEN) ²⁰ was created in 2004 and continues to gather evidence on the implications of benefits and employment policy for homeless people in Scotland and to encourage cross sector partnership working in this area. Evidence is gathered through engagement with stakeholders partly through focus groups based around the themes of Task Force recommendations on employment but taking into account the impact of UK and Scottish policies on welfare reform and employability which have relevance for homeless people in Scotland.

117. This has been a particularly active area of policy development in 2006/7 in the context of the Welfare Reform Act (2007) and the associated Green Paper: In work, better off: next steps to full employment²¹ and the launch of initiatives such as the City Strategies. These build on previous progress in developing an Employability Framework for Scotland ²² and the piloting of Working Future. ²³

118. Improved links between the Department for Work and Pensions ( DWP) and the Scottish Government are key to the promotion of employability as a route out of homelessness. SHEN focus groups involving Jobcentreplus and DWP have identified a number of issues which would benefit from future discussion, including the potential for more flexibility around housing benefit. The Government Economic Strategy highlights the need to focus on reducing inequality in Scotland and influence the UK Government to ensure welfare reform addresses Scotland's social equity issues ²⁴. A discussion paper on Tackling Poverty, Inequality and Deprivation in Scotland has also been published ²⁵.

119. Twenty one local authorities made reference to employment initiatives or broader approaches to employability in their local outcome agreements and progress reports. Most councils referred to investing in training to increase employability and approaches such as therapeutic and supported employment are also referred to.

120. There appears to be a clear focus on partnership working in the majority of councils, reflected in the setting up of multi-agency forums and the development of local employability frameworks. Such approaches bring together members of local authority departments, voluntary sector providers of services, social enterprises, Scottish Enterprise, private sector employees and the DWP. It is important that this co-ordinated approach is maintained to ensure partnership plans include a focus on homelessness.

121. A number of local authorities reported statistical outcomes such as number of service users assisted and break down outcomes in relation to education, training and employment.

Benefits

122. Few local authorities specifically mentioned benefits in their local outcome agreements and progress reports, aside from provision of advice on maximising income. Nationally within Scotland, section 12 of the Homelessness etc (Scotland) Act 2003 came into force in July 2004 and requires courts to take into account delays or failures in payment of housing benefit in cases of repossession. Significant improvements have also been seen in the time taken to process Housing Benefit claims.

123. It is particularly important that the ongoing Housing Benefit reform agenda takes account of issues such as Single Room Rent, rent levels in Temporary Accommodation and benefits for prisoners as these continue to have a considerable impact on homeless people. Homelessness charities have expressed support for recent announcements regarding flexibility around the 16 hour rule in Housing Benefit and it is to be hoped that further changes can be progressed in light of the Government Economic Strategy and the discussion paper on Tackling Poverty, Inequality and Deprivation in Scotland.

Social networks

124. A Scottish Social Networks Forum has been established with a national co-ordinator funded by the Scottish Government to provide support and guidance to local authorities in developing social networks projects and share good practice. A number of events have been held to raise awareness of the importance of social networks in preventing homelessness and sustaining tenancies, including a national conference. The Forum has a web presence ²⁶ to help share information about projects and practice and an online database came on stream early in 2008. Two resource packs have been published: a social networks training pack and a toolkit on development of successful mentoring, befriending and mediation projects.

125. Through the local outcome agreements and progress reports, all local authorities but one stated they are making progress on working to build or rebuild homeless people's social networks. The one authority not currently progressing this issue advised that it is to be addressed in their revised homelessness strategy.

126. Approximately one third of authorities indicated that social networks are considered as part of homelessness assessment and resettlement. The majority mentioned the existence of specific social networks projects or posts; mediation was mentioned most frequently, particularly mediation aimed at rebuilding the family networks of young people. Other projects mentioned included befriending, peer support and education/training (most commonly associated with living skills).

127. Some local authorities reported the opportunities provided by volunteering or initiatives such as social clubs or participation in sports or leisure activities in helping to build social networks. A number of local authorities provide free school transport for children in temporary accommodation to allow them to continue at their school while accommodated elsewhere. Many local authorities use service contracts with the voluntary sector to provide social networks projects or training to their staff in mediation skills.

128. A number of authorities indicated that the (re) building of social networks is part of the work undertaken by Housing Support workers; others make a direct link to work on health and homelessness. Some authorities indicated they are actively seeking to develop protocols with existing services to facilitate better access for homeless households.