PAPER D

 

 

                                                                                                                Purpose : for Decision

                        REPORT TO THE EXECUTIVE

 

Date :              30 JULY 2003

 

Title :               HOMELESSNESS STRATEGY

                       

REPORT OF THE PORTFOLIO HOLDER OF SOCIAL SERVICES AND HOUSING

                                                 IMPLEMENTATION DATE :  11 August 2003

 

 

SUMMARY/PURPOSE

 

1.                  This report recommends the approval of a homelessness strategy.

 

The draft strategy runs to some 75 pages and has been circulated to members of the executive separately from the agenda for this meeting, and to other members via the members room. Further copies are available from: http://www.iwight.com/living_here/housing/housing_strategy/Housing_Reports/Draft_Homelessness_Strategy/

 

URGENCY

 

2.                  This report was intended to have been taken by the Portfolio Holder for Social Services and Housing, but did not appear on the forward plan. As a key decision, in these circumstances, the report must be taken under rule 15 of the Access to Information Procedure Rules. The Strategy has to be adopted by 30 July and approval cannot be deferred until the decision has been published in the forward plan.

 

3.                  In order to ensure the maximum profile for the issues addressed by the draft strategy, and maximum openness about the use of the rule15 urgency provisions, the decision is being taken by the Executive collectively.

 

4.                  The implementation date falls after the date for submission of the strategy to the Secretary of State, and that submission will state that the adoption is subject to potential call in.

 

BACKGROUND

 

5.                  The Homeless Act 2002 came into force in July 2002.  It introduced a number of measures that have previously been the subject of committee reports in November 2002 and February 2003 to the Executive.

 

6.                  A further requirement of the Act was that all local authorities produce a homeless


strategy within a year of its enactment.

 

7.                  Members will also be aware that homelessness was subject to the CPA review in 2002 from which a Homelessness Improvement Plan was agreed.

 

8.                  Homelessness is also one of the Council’s PSA targets as set out below:

 

For each household, as described below, that is in bed and breakfast accommodation for more than 6 weeks in the period specified, the amount payable will be the potential reward grant, reduced by one third.

 

·          In the period, 1 April 2003 to 31 March 2004:  any household with children; and

·          In the period, 1 April 2004 to 31 March 2006:  any household, whether or not with children.

 

9.                  The removal of homeless families from bed and breakfast accommodation is also a target set by the ODPM’s Bed and Breakfast Unit.  This has been linked to funding totalling £165,000 over the last two years.

 

STRATEGIC CONTEXT

 

8.         In setting out a requirement for the production of Homeless Strategies, the ODPM have also set out guidelines about content and approach.  In particular, there is an expectation that the strategy development process will be based on a series of key stages:

 

a.      consultation

b.      needs assessment

c.      a service audit and resource assessment

d.      an implementation plan

 

9.         There is also a stated expectation that any strategic approach would promote a pro-active approach to prevention designed to reduce the number of households needing emergency housing over time.

 

10.       The draft Homelessness Strategy responds to each of these requirements, setting out a programme of action for the next five years.

 

11.       In line with the Housing Renewal Strategy recently approved by members, the measures contained in the Homeless Strategy reflect a cross-cutting corporate approach to respond to needs on the Island.  There can be no doubt that a reduction in the number of homeless households will significantly benefit not only individual households, but also a wide range of statutory services.  Research has indicated that homelessness and poor housing contributes directly to poor health, exacerbates potential child protection difficulties and impinges on educational attainment.  Positive achievements in this area may well lead to a reduced demand for acute services in the future.

 

12.       There is also evidence that homelessness impacts more directly on certain groups within the community.  Women are represented in the vast majority of households accepted and make up virtually all of those made homeless through domestic violence.  Elderly people, those suffering from mental health problems and an increasing number of young single people.  It is important to ensure that the needs of these groups are reflected where possible to limit the impact of homelessness.

 

13.       The Strategy clearly states that it will always be an objective to prevent homelessness rather than respond to emergency situations.  This is virtually always the best approach.  There are a wide range of possible approaches to prevention outlined in the document.  These will be delivered in partnership with organisations and agencies outside of the Council and the effectiveness of each evaluated.

 

14.       The strategy is intended not only to set the framework for delivering homeless services but also as a working document to manage the overall delivery.  Members will note the potential shortfall of 80-100 units of accommodation each year to provide for homeless and other urgent cases.  The majority of these units will be sourced through leases with private landlords and also through housing associations.  Efforts are also being made to maximise the number of empty properties brought back into use and the number of new build completions.

 

15.       Dealing effectively with homelessness on the Island and meeting the Bed and Breakfast Unit and PSA targets will undoubtedly be a considerable challenge.  Government statistics indicate that over the last three quarters, i.e. the nine months leading up to April 2003, that the Isle of Wight was ranked 10th out of 66 authorities in the South East for homelessness acceptances.  Most of the other nine constituted large urban areas such as Southampton, Portsmouth, Reading, Brighton, etc.

 

16.       It is intended that the new strategic framework as set out in the attached document will act as a vehicle for co-ordinating local resources, generating innovative and effective means of dealing with homelessness, managing the implementation process and attracting additional funds to the Isle of Wight to deal with the problem in a coherent and sustainable manner.

 

CONSULTATION

 

17.       The Strategy was developed as the result of wide ranging consultation.  This involved service users, statutory agencies, the voluntary sector and Council members.  The development process included the establishment of a Strategic Steering Group comprising a diverse membership (see Appendix 3).  A half day seminar was also held which was attended by over sixty delegates and included speakers from Shelter and the ODPM.

 

 

 

FINANCIAL IMPLICATIONS

 

18.       The full implications of the Homeless Strategy over its five year life are not clear.  Although detailed action plans have been set out for the first three years of the Strategy, the potential findings from the research to be undertaken into the needs of specialist groups may identify new requirements.

 

19.       The introduction of the new prevention strategy is also something of an unknown quantity.  What is clear from other authorities is that the initial investment in resources, both staffing and other mechanisms, is repaid many times over in the reduction in bed and breakfast costs.

 

20.       At present, there is a single officer devoted to homeless prevention.  However, this will not be sufficient and will need supplementing.  This will be partly funded by a grant from the ODPM.

 

21.       Other project costs relating to the development of mediation, resource packs and rent deposits will also require funding.  At present some money has been received from the Bed and Breakfast Unit as a contribution to these costs.

 

22.       It is anticipated that some or all of these costs may be covered by the savings made in not placing families in bed and breakfast.  However, these savings remain speculative at present as do the exact costs of an effective prevention strategy.  However, option appraisals will be conducted with each of the options outlined in the Strategy to ensure value for money and effectiveness.

 

23.       Members will also be aware that the costs of containing homelessness are not only the revenue costs related to service delivery.  The main requirement is for permanent affordable housing so that households can be moved out of temporary housing.  This is not only more cost effective in the medium and long terms, but also offers a wide range of spin-off benefits relating to social inclusion, the creation of stable communities and socio-economic well-being.  It is therefore crucial to maintain a credible funding programme for social housing.  This is particularly important in the light of opportunities offered by the Pan Village site and other similar land holdings.  It is also important for the Council to maximise its realisation of social housing through the planning system.

 

LEGAL IMPLICATIONS

 

24.       The Council is under a duty to produce a Homeless Strategy within the terms of the Homeless Act 2002. 

 

25.       There are indications that the requirement to stop using bed and breakfast for homeless families with children except for short term emergency use will be made statutory.

 

25.       Members will also be aware from previous reports of the statutory requirements to provide housing for priority homeless households.  The definition of priority was extended to include certain categories of single people under the Homeless Act 2002.

 

OPTIONS

 

26.       The Homelessness Strategy sets out a range of options for tackling homelessness on a broad front.  Not all of these will be appropriate or cost-effective.  A number will also need further sophistication in the light of further research and data collection.

 

27.       It is not an option for the Council to continue with its current policies and practices.  These will breach Government guidance and prospective legislation.  The current approach has also been found to be in need of improvement.

 

EVALUATION/RISK MANAGEMENT

 

28.       Homelessness presents significant risks to the Council.  It has been identified by the Audit Commission as an area needing improvement, but with the potential to do so.  This will be tested by a re-inspection of the service during 2004.

 

29.       The below average rating for the Homeless service has been a contributory factor in the downgrading of the Housing Strategy and reduction in capital allocation.

 

30.       The ODPM have made it clear that they intend to legislate to ensure that families with children cannot routinely be placed in bed and breakfast post April 2004.  Councils breaching this requirement will therefore be subject to legal action.

 

31.       Homelessness targets have been agreed as part of the Council’s PSA agreement.  Failure to achieve these targets will lead to the final reward settlement being

 

32.       Failure to adequately deal with homelessness will also be to the ultimate detriment of the Island community and result in a consistent drain on Council resources.

 

 

RECOMMENDATIONS

 

Members are asked to agree the Homelessness Strategy.

 

BACKGROUND PAPERS

 

Homelessness Strategies - A good practice handbook, DTLR 2002

More Than Just a Roof, DTLR 2002

Homeless Act 2002 – Select Committee November 2002

Homelessness and the Common Housing Register – Select Committee February 2003

 

ADDITIONAL INFORMATION

 

Draft Homeless Strategy

 

 

Contact Point :           Martyn Pearl,  823061 e-mail [email protected]

 

M PEARL

Head of Housing Services

G KENDALL

Portfolio Holder

 For Social Services and Housing