Memorandum by Bury Metropolitan Borough
Council (HOM 15)
THE OVERALL
LEVEL AND
THE NATURE
OF NEED
FOR HOUSING
FOR HOMELESS
PEOPLE
Levels of Need
Annual figures of Homelessness cases for the
last two years:
1.4.02—31.3.03: 921 people presented,
382 were accepted.
1.4.03—31.03.04: 1,157 presented,
483 were accepted.
The numbers of Homelessness people approaching
the council for assistance are clearly rising; although there
could be some under-recording in 2002-03 due to inadequate record
keeping prior to improved systems being introduced in Spring 2003.
Homelessness must however be set in the wider
context of local housing need and future projections of demand/supply
are vital in attempting to forecast future levels. Therefore,
our Review of Homelessness (2003) included a study by Salford
University, which evaluated the findings of the 2001 Housing Needs
Study in Bury.
The key issues they found which would affect
homelessness levels until 2005 were:
— Increase in population migration
into Bury would occur causing increase in demand for housing
— There was a significant number of
"hidden households" ie single adults/lone parents living
with family/friends, suggesting a potential for homelessness levels
to increase
— On the basis of past trends over
1,000 households living in the social rented sector will need
to move as their home would no longer meet their needs
— On the basis of local income profiles
and high demand due to a buoyant housing market (resulting in
price increases) people in the private sector (both home ownership
and privately rented) may have problems in affording their homes.
All of the above suggests that housing need
is rising and, therefore, this will increase the potential for
homelessness occurring. Clearly improved access to and supply
of more affordable homes is needed.
Nature of Need
Statistical data (ie P1E submissions and statistics
from non statutory agencies working with homeless people) shows
that the reasons for homelessness in Bury mirror national trends
and that the three main causes of homelessness therefore are:
— Relationship Breakdown (Violent and
non violent).
— Ending of assured shortholds.
— Family/friends unwilling to continue
to accommodate homeless people.
The council and its partners therefore are working
hard to tackle these causes and preventative activities/services
currently in place will be outlined in the section on preventing
homelessness.
Other needs of local homeless people identified
in the Homelessness Strategy were:
— More advice on legal matters and
money/debts issues.
— Help with substance misuse issues.
— More assistance with health problems
especially mental health.
— Better signposting/information on
help/agencies available to homeless people.
Some of these needs have been met through our
Strategy's delivery mechanism, The Multi-agency Action Plan, but
resources need to be increased to continue to focus on the risk
factors of homelessness if it is to be prevented/minimised in
Bury.
The success of policies meeting the needs of
homeless households, in particular; families, single people and
those who are intentionally homeless.
Families/Vulnerable Singles owed the full homelessness
duty
In Bury we strive to balance the need to rehouse
homeless people quickly with the desire to also offer them as
much choice as possible. Therefore statutory homeless people are
made two reasonable offers of accommodation and for a period of
four weeks they are able to limit their area choices to whichever
of the Borough's six townships they prefer. After that time however,
their choices are extended to cover all areas in order to maximise
their rehousing chances. We would not of course rehouse a homeless
person in areas where they may be at risk or where special needs
(eg health, education) cannot be met.
Temporary Accommodation for Families/Vulnerable
Singles
In line with our policy on offering as much
choice in all housing matters, the Council's homeless hostel,
Southview, comprising of 20 units, has been considerably remodelled
to both improve staffing levels and provide quality support (including
floating support) to residents. Additionally, the physical premises
are currently being enhanced to provide a disabled flat, ensuite
facilities and a communal area for residents. The consultation
process for the Homelessness Strategy, however, highlighted the
need for dispersed self contained lets for temporary accommodation.
This need was identified during a focus group with Southview residents.
Therefore, there are now six furnished, council properties available
to homeless households who need temporary accommodation but who
can cope without the high level of support offered at the hostel.
Single/Non Priority Homeless People
There are a range of homeless projects providing
short and medium term accommodation for single homeless people
in Bury, provided mainly by the voluntary sector. These range
from a nightshelter for under 18 year-olds, to a new supported
project for single homeless men and women aged 18 and over, through
to a Bond Scheme enabling single people and childless couples
to access the private rented sector. There is however a significant
shortage of permanent independent social rented accommodation
for single homeless people in Bury due to demand pressures. Therefore
blockages often occur in projects providing medium term provision.
There is also no Direct Access facility in Bury for non priority
homeless groups.
Intentionally Homeless People
At the present time, for intentionally homeless
families in our Southview Hostel, there is a procedure in place
whereby the hostel key worker liaises with social services to
make them aware that the family will become street homeless in
the near future. The key worker works with the family to assist
them in obtaining accommodation.
There is a need to develop liaison mechanisms
with social services regarding intentionally homeless families
not in the hostel and vulnerable singles.
The Homeless and Homeless Hostel Managers are
working to set up a user group meeting for residents of the hostel.
This has two objectives:
(i) to improve services and make them more
user led, and
(ii) to reduce repeat homelessness by providing
information to the client group.
THE ADEQUACY
OF INVESTMENT
IN HOUSING
OF HOMELESS
PEOPLE AND
THE QUALITY
OF ACCOMMODATION
AVAILABLE FOR
THEM
There is a gap on the availability of facilities
for:
— people with high dependency and chaotic
lifestyles;
— better facilities for drug users;
— women-only accommodation (we only
have this for domestic violence victims); and
— Direct Access accommodation for over
18s who are not "priority need".
Changes to the allocation of ADP monies have
also hit Bury, with no award in 2004-05 and a minimal amount in
2005-06, with little future prospects. This has severely affected
our abilities to meet housing needs.
In Bury, demand for most social rented housing
does outstrip supply.
FACTORS AFFECTING
THE SUCCESSFUL
IMPLEMENTATION OF
THE HOMELESSNESS
ACT 2002
The extended priority needs categories have
increased pressures on all resources, that is staff, temporary
and permanent accommodation. We have, however, increased staffing
levels and temporary accommodation facilities within the council,
but still need more affordable settled homes in Bury.
The lack of money for development work has increased
blockages within the system. Therefore, people, even with high
priority, are experiencing longer waiting times on our Housing
Register and residents in short/medium term accommodation projects
are unable to move on.
THE LOCATION
OF PROVISION
FOR HOMELESS
PEOPLE RELATIVE
TO WHERE
THEY LIVE
Certain townships have very high demand. This
has led to people being unable to be rehoused where they grew
up and have networks and family.
Regarding council temporary accommodation, as
our homeless hostel is close to the Metrolink and bus terminal/the
town centre and its amenities, together with the fact that we
also now have dispersed lets throughout Bury, provision has improved.
Some homeless projects are more dispersed around
the Borough, but mostly are centrally based. In the south of the
Borough, that is Whitefield and Prestwich, and in the more outlying
rural areas of Ramsbottom and Tottington there is little or no
provision.
THE BALANCE
OF PUBLIC
INVESTMENT IN
HOUSING FOR
KEY WORKERS
AND HOMELESS
PEOPLE
Not applicable to Bury.
PRIORITY FOR
THE HOMELESS
WITHIN THE
OVERALL ALLOCATION
OF SOCIAL
HOUSING
Statutory Homeless cases receive Band A which
is the highest priority.
Non priority and intentionally homeless people
receive Band B. With regards to these two groups however, their
priority banding is to be reviewed as it may be creating a perverse
incentive for people to present as homeless.
WHETHER THE
NON-HOUSING
SERVICES ARE
PROVIDED FOR
HOMELESS PEOPLE
ARE ADEQUATE
AND ARE
CO -ORDINATED
WITH HOUSING PROVISION
There are a range of non-housing activities,
mainly provided by the voluntary sector, ranging from a drop in
centre, through to an advocacy service and learning/training sessions.
Most of these projects however are grant funded and the challenge
is to secure resources on a permanent basis. The council has its
own Housing Advice Service and there is a law centre and money
advice available from the Citizens Advice Bureau (CAB). There
is, however, a need for a debt worker employed by the council
who would be able to work more closely with Housing Benefit and
Landlord Services than the CAB.
There are a wide range of agencies providing
floating support to people who have been homeless and although
these focus mainly on singles or those with special needs the
council has a scheme specifically for families. Better linkages
and coordination between all these floating support schemes is
needed and the Council's Housing and Support Needs Service management
team are looking at ways to develop this. Additionally, the council
has arranged joint training for all agencies in the Homelessness
Forum and a common referral form for all homeless accommodation
projects in Bury is being developed.
WHETHER PUBLIC
AGENCIES ARE
EFFECTIVE IN
PREVENTING PEOPLE
BECOMING HOMELESS
Bury Council in partnership with the Homelessness
Forum has worked hard to develop a more preventative approach.
Examples of this include:
— A Women's Aid drop-in surgery has
been set up (from 31.8.04) in the East Bury initiative area. This
has helped to tackle BME and "hidden" homelessness;
has made the service more accessible; has promoted social inclusion
(one of our corporate aims).
— A Women's Aid Outreach Worker who
aims to prevent domestic abuse survivors becoming homeless by
supporting them to remain in their home.
— The Child Protection Team is working
with the Asylum Seekers Team to prevent family breakdown and resulting
homelessness.
— Housing services works with the Asylum
Seekers Team to rehouse people directly from our register rather
than them going via the homeless route.
— Staff at the Council's Housing Advice
Centre undertake landlord mediation for people presenting with
a two month notice, to help them to try and retain the tenancy.
— The Council's Homeless Young Persons
Advisors for under 18s will, when appropriate, negotiate a return
home for young people presenting as homeless.
— The Homelessness Team undertakes
home visits for people presenting as threatened with homelessness
to ensure appropriate checks are made.
There is, however, much work still to be done
to prevent homelessness in Bury as statistical evidence shows
homelessness is not decreasing. People need to be given appropriate
advice/assistance or keyed into services they need at an earlier
stage.
Preventative measures being considered in Bury
include:
— Developing joint procedures/protocols
for people leaving institutions (currently there is a protocol
at draft stage).
— Provision of debt advice by the Council.
— More focussing on mediation/advice/home
visits to prevent homelessness and reduce the need for lengthy
homelessness assessments.
— Further develop positive relationships
with Housing Benefit to prevent homelessness.
— Investigate the use of demoted tenancies
as an alternative to possession proceedings for tenants with nuisance/arrears
issues.
To conclude, therefore, we feel that the Homelessness
Act 2002 provided us and all housing authorities with a framework
in which to tackle homelessness strategically, measure and quantify
homeless levels more accurately, and start to put in place a preventative
agenda. In Bury, however, our Strategy 2003 was only the starting
point we need to continue to take forward all key actions in our
multi agency plan and also to review the Strategy in the light
of changing needs in Bury. We will carry out a full review next
year, in advance of the five year statutory requirement.
However, in order for the Council and its partners
to be able to prevent homelessness, minimise its effects when
it does occur and provide affordable settled accommodation for
those who need it, resources for prevention, accommodation and
support are essential.
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