HOMELESSNESS STRATEGY
REPORT OF THE HEAD OF HOUSING SERVICES
1.
This paper is to inform members of the contents of a new
strategic approach to homelessness on the Island. The development of a new Homeless Strategy is a statutory
requirement for all local authorities.
ACTION REQUIRED BY SELECT COMMITTEE Members are asked to debate the
content and approach of the Homeless Strategy and make recommendations |
2.
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 Executive.
3.
A further requirement of the Act was that all local
authorities produce a homeless strategy within a year of its publication.
4.
Members will also be aware that homelessness was subject to
the CPA review in 2002 from which a Homelessness Improvement Plan was
agreed. This is the subject of a
further report on this Committee agenda.
5.
Homelessness is also one of the Council’s PSA targets. The two objectives are to remove all
families from bed and breakfast by April 2004 and all other households by April
2006.
6.
The removal of families from bed and breakfast 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.
7.
The attached document presents the framework for the
Island’s new Homeless Strategy.
STRATEGIC
CONTEXT
5.
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
6. 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.
7. The Homeless Strategy contained in appendix 1 responds to
each of these requirements, setting out a programme of action for the next five
years.
8.
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.
9.
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.
10.
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.
11.
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.
12.
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.
13.
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
14. 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 2). A half day seminar
was also held which was attended by over sixty delegates and included speakers
from Shelter and the ODPM.
FINANCIAL
IMPLICATIONS
13.
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.
14.
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.
15.
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.
16.
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.
17.
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.
18.
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
19.
The Council is under a duty to produce a Homeless Strategy
within the terms of the Homeless Act 2002.
20.
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.
21.
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
22.
The Homeless 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.
23.
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
18.
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.
19.
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.
20.
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.
21.
Homelessness targets have been agreed as part of the
Council’s PSA agreement. Failure to
achieve these targets will lead to grant having to be repaid and the final
reward settlement being reduced.
22.
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.
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
APPENDICES
ATTACHED
Appendix 2 Strategic Steering Group membership
Contact Point : Martyn
Pearl, Head of Housing Services Tel 823061
M PEARL
Head of
Housing Services