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.
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
|