Memorandum by the Office of the Deputy
Prime Minister (HOM 53)
INTRODUCTION
1. The Government is committed to tackling
the serious problem of homelessness and has made significant progress
since 1997.
2. Our approach has been to reduce the most
severe and damaging aspects of homelessness, while developing
a stronger and more strategic framework to address the wider problems
that cause homelessness. In 2002, we set out our approaches in
the report, "More than a roof". This placed a stronger
emphasis on addressing the personal and social problems faced
by homeless people. The approaches in "More than a roof"
were under-pinned by six key objectives. These were to:
— strengthen the help available to
people who are homeless or at risk of homelessness;
— develop more strategic approaches
to tackle homelessness;
— encourage new responses to prevent
homelessness;
— reduce the use of B&B hotels
for homeless families with children;
— sustain the two-thirds reduction
in rough sleeping; and
— ensure the opportunity of a decent
home for all.
3. The overall progress we have made is
summarised below and is then set out in more detail under each
of these objectives.
SUMMARY
4. Our first priority was to tackle the
most severe and visible problem of rough sleeping—helping
people who are literally roofless. Our strategy on rough sleeping
successfully reduced the number of people sleeping on the streets
of our towns and cities by two-thirds between 1998 and 2002. We
have sustained those reductions with just over 500 people sleeping
rough on any night now, 70% below the 1,850 who were sleeping
out in 1998.
5. We inherited legislation—the 1996
Housing Act—which had reduced the rights of homeless people.
We have amended the legislation to strengthen the statutory protection
available to people who face homelessness. The revised legislation
widens eligibility for local authority help, and adds to the duties
and powers local authorities have to tackle homelessness.
6. In the short-term, this has meant more
people being accepted by local authorities as homeless and has
added to the numbers in temporary accommodation. But many of these
are people who would have been left to fend for themselves under
the previous legislation. In particular, priority need for accommodation
has been extended to cover young people, people fleeing violence
and other vulnerable people, such as those with an institutionalised
background in the Armed Forces, in care or in prison, who had
previously been over-represented amongst those sleeping rough.
7. Of course, we are concerned about the
growing numbers in temporary accommodation. In particular, we
have acted to reduce the worst aspects of temporary accommodation
use—families with children forced to live for excessive
lengths of time in cramped B&B hotel rooms, with no room to
play or do homework, and having to share washing and cooking facilities
with strangers.
8. Since 2002, the number of families with
children in B&B hotels has been reduced from 6,700 to just
over 1,000. And we have strengthened the legislation so that,
with only a few exceptions, local authorities cannot discharge
their homelessness duties by placing families with children in
B&B for longer than six weeks.
9. We have also consulted on, and will include
in revised statutory guidance, the minimum standards that should
apply to all temporary accommodation used by local authorities
to re-house homeless households.
10. Every local authority in England has
been helped to develop a new homelessness strategy and we have
promoted prevention initiatives, with additional funding and guidance
on good practice. These strategies and prevention initiatives
go much wider than the narrower groups who are owed the main re-housing
duty in the homelessness legislation, and provide a more comprehensive
response to all forms of homelessness. They are helping to break
down the old distinctions between "statutory" and "non-statutory"
homelessness and between family and single homelessness. They
are also helping to forge stronger partnerships between local
authorities, housing associations and other voluntary and statutory
sector agencies.
11. These partnerships have been an important
part of our work to improve the links between housing and other
services that can help people to avoid or overcome homelessness.
12. The introduction of Supporting People
has been one aspect of that, providing a more strategic basis
for housing related support services that help vulnerable people
begin to live independently or to maintain independent living.
13. Work across Government has played an
equally important part including, for example, initiatives to
address the health needs of homeless households and better co-ordination
of housing and homelessness services with strategies to tackle
domestic violence and re-offending.
14. Action to prevent homelessness is beginning
to show results. The statistics over the last couple of quarters
show that the number of households becoming homeless has started
to fall. If this trend can be sustained, as we believe it can,
it will reduce the flow of households being placed in temporary
accommodation.
15. While there are more people in temporary
accommodation now, it is important to remember that these are
people who have been helped and re-housed as a result of our strong
homelessness legislation. At the end of June 2004, 18% were in
shared accommodation such as B&B hotels, hostels or women's
refuges—a lower proportion than in the past. The vast majority
(82%) were housed in private sector, council and housing association
homes, waiting for a more settled tenancy.
16. But we accept that this growing number
reflects a shortage of accessible, settled housing in some regions
and areas, and we are determined to tackle this issue too.
17. In 1997, we inherited a backlog of disrepair
in social housing of £19 billion. And the housing capital
investment budget had been halved between 1993 and 1997. We have
already more than doubled the housing capital investment budget,
but we were determined as a first priority to tackle disrepair
in the existing housing stock. As a result, a million homes have
already been made decent. We will continue this programme to bring
all social housing into a decent condition by 2010.
18. Our priority for new action and investment
is to increase housing supply where it is needed and, as a result
of SR04 will, together with efficiency improvements, produce 75,000
social rented homes and 40,000 homes for essential public sector
workers and low cost homeownership over the three years to 2007-08.
19. Our strategy is reducing the most damaging
aspects of homelessness, providing a stronger statutory safety
net, promoting more strategic and preventative approaches and
improving the supply and condition of social housing. There is
further to go, but we believe this combination of approaches will
work to reverse the rising trends in temporary accommodation use
that we have seen in recent years.
20. We welcome the Select Committee Inquiry
as an opportunity to review these approaches and the views of
stakeholders to inform our future strategy and work.
STRENGTHENING HELP
TO PEOPLE
WHO ARE
HOMELESS, OR
AT RISK
OF HOMELESSNESS
21. The homelessness legislation provides
statutory under-pinning for action to tackle homelessness. It
places a general duty on authorities to ensure that advice about
homelessness and preventing homelessness, is available to everyone
in their district free of charge. Under the legislation, certain
categories of household, for example, families with children and
households that include someone who is vulnerable, for example
because of pregnancy, old age, or physical or mental disability,
have priority need for accommodation. Local authorities must ensure
that suitable accommodation is available for people who have priority
need, if they are homeless through no fault of their own. The
local authority can provide accommodation in their own stock or
arrange for it to be provided by another landlord, for example
a housing association or a landlord in the private rented sector.
22. In 2002, the Government amended aspects
of the 1996 Housing Act which had reduced the rights of homeless
people. We strengthened the homelessness legislation through the
Homelessness Act 2002 and the Homelessness (Priority Need for
Accommodation) (England) Order 2002 to:
— strengthen the assistance available
to people who are homeless or threatened with homelessness; and
— ensure a more strategic approach
to tackling and preventing homelessness, in particular by requiring
a homelessness strategy for every housing authority district.
23. The Homelessness Act provided greater
certainty for homeless households by amending key provisions in
the 1996 Act. The Act ensures that councils must take steps themselves
to ensure that suitable accommodation is available for everyone
in priority need who becomes homeless through no fault of their
own—and that this continues to be available for as long
as necessary until a settled home becomes available.
24. The Homelessness (Priority Need for
Accommodation) (England) Order, (PNO) extended priority need to
homeless 16 and 17 year olds (with certain exceptions), care leavers
aged 18, 19 and 20; people who were vulnerable because of time
spent in care, the armed forces, prison or custody; and people
who are vulnerable as a result of having to leave their accommodation
because of violence.
25. Taken together, these legislative changes
have ensured that more people are assured of homelessness assistance
and will receive help when they need it. In the short-term, this
has meant more people being accepted by local authorities as unintentionally
homeless and in priority need and so has added to the numbers
placed in temporary accommodation pending a settled home. But
many of these are people who would have been left to fend for
themselves under the previous legislation.
26. Statistics show that the number of households
accepted by local authorities as unintentionally homeless and
in priority need increased by around 16% between 2001-02 and 2003-04,
although numbers have fallen slightly in the first half of 2004.
DEVELOPING A
STRATEGIC APPROACH
27. Success in meeting the Prime Minister's
rough sleeping target demonstrated the benefits of a strategic
approach to tackling homelessness. In addition to strengthening
the assistance provided for homeless people the Homelessness Act
therefore required all housing authorities to have a homelessness
strategy based on a review of all forms of homelessness in their
district. The first strategies had to be published within 12 months
of the Act coming into force, ie by 30 July 2003 and must be renewed
at least every five years.
28. To assist local authorities with this
process the ODPM issued good practice guidance, "Homelessness
Strategies, a good practice handbook", as well as statutory
guidance through the "Homelessness Code of Guidance for Local
Authorities". Both documents made clear that an effective
homelessness strategy will:
— provide information on the scale
and nature of homelessness in the area;
— identify the additional accommodation
and support required to meet those needs;
— identify the services needed to prevent
homelessness occurring or recurring;
— identify the resources currently
available to meet these needs;
— identify additional resources required;
— involve other public, voluntary and
private agencies in partnership work; and
— spread best practice among agencies.
29. Every local housing authority in England
now has a homelessness strategy in place to ensure that accommodation
and support are available to all those who are homeless and at
risk of homelessness. Put simply, this means that local authorities
no longer concentrate solely on those who are accepted for a rehousing
duty. Strategies should ensure that advice and assistance are
available to those households who might not be owed a statutory
duty for accommodation, including those who are homeless intentionally,
or those whose housing circumstances are unsettled and therefore
put them at risk of homelessness in future.
30. The Homelessness and Housing Support
Directorate within ODPM provides practical help and assistance
to local authorities in drawing up their strategies and continues
to work with them as they are implemented. The Directorate has
provided individual feedback to all 354 local housing authorities
in England and will shortly be publishing the results of an independent
evaluation of the strategies, undertaken by Housing Quality Network
Services (HQNS).
31. Their evaluation confirms that the Homelessness
Act has made a real difference in the way in which local authorities
now approach their homelessness duties. Although there are some
acknowledged gaps in the coverage of some strategies, the overall
message is that local authorities found the process of undertaking
the homelessness review and putting together their strategy a
very positive one. For the first time authorities were asked to
take a wholesale look at their homelessness services and consider
where it fitted into the corporate aims of the authority. As never
before, local authorities drew on the views of service users,
other agencies and other local authorities, and other council
departments. HQNS concluded that most authorities had gained a
good understanding of the causes of homelessness in their areas
which were reflected in their prevention strategies. We are considering
a number of recommendations made by HQNS on ways in which local
authorities, housing associations and Government can work together
to further improve local authorities' homelessness strategies.
EVIDENCE BASED
POLICY
32. The HQN work is part of a large and
varied programme of work ODPM is carrying out to improve the evidence
base on homelessness and to help to understand these issues better.
33. Statistics and research play an important
part in informing the development of homelessness policy. "More
than a roof" identified the following priorities for improvements
in the evidence base:
— Improvements in statistics about
homeless families and individuals;
— Investigating the underlying causes
and trends of homelessness, including a better understanding of
Black and Minority Ethnic issues;
— Better information about cost effective
measures to reduce and prevent homelessness.
34. ODPM is carrying out a programme of
work to address these issues. This includes enhancements to statistical
reporting from local authorities on operation of the homelessness
legislation, while current research projects include a survey
of homeless families and homeless 16 and 17 year olds; homelessness
amongst Black and Minority Ethnic groups; and identification and
promotion of effective homelessness prevention initiatives.
IMPROVEMENTS IN
STATISTICS ABOUT
HOMELESS FAMILIES
AND INDIVIDUALS
35. Local Authorities report a comprehensive
summary of homelessness information to ODPM on a quarterly statistical
return (P1E), published as National Statistics. This return monitors
local authority operation of the homelessness legislation and
the range of data is regularly reviewed to ensure that it reflects
and informs policy development. Further improvements in the collection
of statistical data are planned for 2005 about which we will be
consulting local authorities shortly.
36. Recent additions to the data collected
include information about ethnicity according to Census categories.
The list of reasons why people are assessed as being in priority
need due to vulnerability was extended to include drug and alcohol
abuse, and whether applicants are former asylum seekers. The return
now also seeks information on levels of repeat homelessness; any
secondary categories of priority need; and the numbers of children
in each type of temporary accommodation.
37. Attention over the past two years has
focussed on improving both response rates and the quality of data
received. Recent significant changes and expansions to the range
of data collected have been drawn up following consultation with
local authorities who have generally been very co-operative and
supportive of our aims.
38. The use of Interform—the secure
submission of statistical returns via the Internet—has simplified
the task for authorities and incorporates validation checks at
source, saving time and effort for ODPM's data collection team
in Bristol. Improved data quality and response levels have reduced
the degree of imputation needed for missing data, and enhanced
the reliability of our analyses—around 95% of authorities
now submit returns compared with 90% one year ago. Statistical
Releases and other outputs are available via the ODPM website
(www.odpm.gov.uk) and more detailed data is freely made available
on request.
39. The Housing Data and Statistics division
continues to emphasise the benefits, for both ODPM and local authorities,
in obtaining timely and accurate P1E data, and are considering
further ways to feedback customised analyses to authorities to
meet their research needs and inform further development of their
homelessness strategies.
40. The timely and accurate collection of
robust data is essential for informing policy decisions by giving
us a picture of the scale and nature of current levels of homelessness.
However in order to understand more clearly the reasons for homelessness
we have a programme of research to investigate in more detail
key issues. Current projects are:
— Investigating the underlying causes
and trends of homelessness, including a better understanding of
Black and Minority Ethnic issues
— Identifying and promoting effective
measures to reduce and prevent homelessness.
41. Other recent research undertaken to help
improve the evidence base on homelessness policy includes:
— A report on the support needs of
homeless households, which was published in 2003.
— An evaluation of homelessness strategies,
which will be published later this year.
— A research project on the costs of
homelessness, which will report by the end of this year.
42. All published research reports are available
free of charge on the ODPM web-site at www.odpm.gov.uk.
JOINED-UP
GOVERNMENT
43. Preventing homelessness is a key area
of our work in tackling disadvantage and creating sustainable
communities. Joint action across Government to reduce homelessness
should have a positive and significant impact on reducing the
prevalence of these problems and the wider costs that they impose
on people, communities and society.
44. The ODPM's Homelessness & Housing
Support Directorate is leading the work of the Accommodation sub-Board
of the Home Office Reducing Reoffending National Action Plan.
Building on the work initiated by the former Rough Sleepers Unit
(RSU) and developed by the Directorate to deliver Housing Advice
Services in prisons. The sub Board has commissioned the testing
of a modular housing needs assessment for prisoners at induction
which will feed into a Key Performance Target and an existing
Key Performance Indicator to measure the success of prisons in
addressing the housing needs of prisoners at induction and upon
leaving prison
45. In December 2003 the Directorate and
Comic Relief (who each invested £1 million in the project)
and leading domestic abuse charities Women's Aid and Refuge, launched
a new, national, round-the-clock freephone helpline for all women
experiencing domestic abuse. The helpline is underpinned by the
UKRefugesOnline service, which provides up to date information
for helpline providers on the availability of refuge accommodation,
as well as other important contact information and availability
of services.
46. In 2003 the Government announced major
investment in refuge provision in England in 2003-04. A total
of £18.8 million capital has been allocated (£9.9 million
through the Housing Corporation and £8.9 million from the
Homelessness and Housing Support Directorate). The Government
has also committed a further £7.5 million nationally in 2004-05
and 2005-06 to fund provision for additional refuge schemes, with
an additional £5.8 million provided through the Housing Corporation
programme. Priority has been given to projects arising from local
authority housing and homelessness strategy reviews to meet gaps
in service provision. On current plans this should provide 427
units of accommodation.
47. In March 2004 the Directorate, in partnership
with the Department of Health produced guidance for local authorities
and Primary Care Trusts (PCTs) on shared positive outcomes in
health and homelessness, to help tackle the health inequalities
that homeless people face. Leicester is the first PCT/housing
authority to sign up to all five shared outcomes. The Directorate
is also working with the National Institute for Mental Health
in England (NIMHE) to research and promote best practice on joint
mental health and homeless solutions.
48. The Directorate has worked closely with
the Department for Work and Pensions (DWP) to prevent homelessness
by influencing new policies and Housing Benefit administration
and by aligning voluntary sector employment schemes with the DWP's
agenda to improve the employability of homeless people. The Directorate
is also scoping work to test policies to reduce the work disincentive
for households in temporary accommodation and worked in partnership
with Jobcentre Plus in London to provide outreach benefits advice
in hostels, emergency shelters and day centres.
49. The Directorate has worked with the
Ministry of Defence (MOD) and ex-Service Benevolent Sector to
tackle and prevent homelessness prior to, at the point of, and
after discharge. The Directorate, in partnership with the MOD,
Business Action On Homelessness and key corporate defence partners
set up Project Compass to improve the employability of ex-Service
Personnel. The ODPM has contributed funding to Kings College to
develop a feasibility study to establish what proportion of rough
sleepers and homeless households are ex-service personnel. In
addition, the Priority Need Order and capital schemes to develop
additional bedspaces have strengthened the safety net and amount
of supported accommodation for vulnerable ex Service personnel.
50. Examples of positive joint working with
the Department for Education and Skills (DfES) include joint guidance
on Careleaving strategies and Connexions guidance on to join up
agencies working with vulnerable young people. The Directorate
and DfES have contributed funding to the "Safe Moves"
research, pilots and toolkit linked to Foyers work to prevent
youth homelessness. In addition the Directorate also brought together
key players and negotiated a rescue package for the Children's
Refuge in London which provides respite care and support for young
runaways. The Directorate is also working closely with colleagues
from DfES to focus assistance to help the many children and young
people living in families that have experienced homelessness.
ENCOURAGING NEW
RESPONSES TO
PREVENT HOMELESSNESS
51. There are a wide range of policies and
services that can tackle homelessness which authorities can either
provide themselves or commission others to deliver. The causes
of homelessness can be complex and involve a mix of personal problems
such as tension between family and friends, relationship breakdown
(often associated with domestic violence) or debt. The Homelessness
& Housing Support Directorate has encouraged innovative responses
to help people overcome these problems and prevent them from leading
to homelessness. We have worked to achieve this in a number of
ways. Direct funding has helped authorities to pump-prime schemes
targeted towards the main causes of homelessness in their particular
areas. Around £100 million was available in 2002-03; £60
million in 2003-04; and £60 million in 2004-05. Of this around
£15 million-£20 million was allocated direct to voluntary
sector agencies who were providing national or cross-borough services.
Local authorities have used this funding to reduce rough sleeping
and use of B&B hotels for homeless families and for a range
of prevention projects including:
— improved housing advice teams;
— services for young people;
— rent deposit and bond schemes; and
— mediation services for singles and
young people.
52. The Directorate has been assisting local
authorities in developing these schemes and spreading awareness
of good practice, including working with seven Beacon Councils
(Trafford, Rochdale, Bolton, Camden, Harrow, Colchester and Leicester).
53. The Directorate has also issued advice
to local authorities about positive outcomes that we would like
local authorities to achieve through effective delivery of their
homelessness strategies: reduced levels of repeat homelessness;
reduced levels of homelessness against the main causes; and reduced
inappropriate use of temporary accommodation. Details are given
in "Achieving Positive Outcomes on Homelessness", issued
in April 2003. Since then we have been encouraging local authorities
to sign up to achievement of these objectives through our funding
agreements with them.
54. The Directorate has also issued several
publications which give additional examples of best practice around
specific themes. Publications include a quarterly briefing on
a different policy issue, timed to coincide with the release of
quarterly homelessness statistics. In addition we published a
Handbook in July 2003 containing good practice examples to help
assist local authorities in reducing their use of B&B hotels.
A second handbook will be published later this year. Both handbooks
show sensible and effective approaches to reduce homelessness,
providing case study examples and contacts. A list of the Directorate's
publications is attached.
55. The emphasis in the good practice handbooks
is on the "people" factors associated with homelessness.
The Government's Supporting People programme, which took effect
from 1 April 2003, complements these aims through provision of
housing related support services to a wide range of vulnerable
people. The programme is designed to ensure that vulnerable people
have the opportunity to live independently in their own home.
56. The 2004 Spending Review has announced
funding for Supporting People for the next three years of £1.72
billion in 2005-06 and around £1.7 billion in each of the
following two years. This is the first time that there has been
a three-year settlement for this programme, creating stability
and enabling Administering Authorities and providers to plan more
strategically to deliver housing-related support services. In
line with the Gershon Efficiency Review we are taking forward
some of the value for money recommendations of an independent
review of Supporting People services (undertaken by Eugene Sullivan
of Robson Rhodes) which identified wide variations and costs of
services and levels of inefficiencies. We know from our research
that there is scope for efficiency savings to be found, whilst
enabling Administering Authorities and providers to deliver good
quality, value for money, strategically relevant services.
REDUCING THE
USE OF
B&B HOTELS FOR
HOMELESS FAMILIES
WITH CHILDREN
57. Many households accepted as homeless
will be placed in temporary accommodation until settled (usually
social) housing is available. Temporary accommodation includes
council or housing association stock but let on a short term basis,
property leased by the council (or a housing association) from
a private landlord, hostels and bed and breakfast hotels.
58. The number of households in temporary
accommodation has increased in recent years, and stood at 99,000
at the end of June 2004. Around 82% of these are in homes let
on a temporary basis in the private or social rented sectors.
The number in shared accommodation (B&B hotels, hostels and
women's refuges) has remained fairly steady in recent years but
has fallen to around 18% as a proportion of all temporary accommodation
used.
59. Within these figures, the use of B&B
hotels by local authorities to accommodate homeless households
increased to just over 13,000 at the end of September 2002 (marginally
below the peak of 1991) but has been falling consistently since
then and stood at 7,220 at end of June 2004.
60. One of the Government's main concerns
when the Directorate was set up, was to ensure that children from
disadvantaged backgrounds had a better start in life. It was recognised
that living in poor conditions, such as in B&B hotels, increases
the likelihood of poor health and lack of educational attainment.
61. The Government therefore set a challenging
target in March 2002, that by the end of March 2004, no homeless
family with children should be accommodated in a B&B by a
local authority, except in an emergency and even then for no longer
than six weeks. The Directorate undertook positive action providing
advice and support to local authorities developing and implementing
action plans to reduce the use of B&B and also played a key
role in enabling good practice to be shared between authorities.
The Directorate also worked with the Department for Work &
Pensions (DWP) on important changes to Housing Benefit rules and
subsidy regulations enhancing the opportunities for accessing
good quality self-contained alternatives to B&B.
62. From the Directorate's funding, around
£35 million in 2002-03 and £15 million in 2003-04 was
targeted to help local authorities be innovative, proactive and
effective in meeting the B&B reduction target. In 2004-05
local authorities were allocated £45 million to sustain the
B&B target, sustain the rough sleeping target and tackle homelessness
more effectively.
63. The B&B target was met with the
number of homeless families with children in B&B for over
six weeks falling by 99.3% between March 2002 and the target date
of March 2004. Estimates show this represents a reduction of around
6,000 in the number of children living in B&B for longer than
six weeks over the last two years. Out of 354 local authorities
only 17 failed to meet the March 2004 target. All London Boroughs—traditionally
the highest users of B&B—successfully met the target.
64. We are not prepared to see the use of
B&B for families with children become the norm again. The
target will be reinforced and sustained through the Homelessness
(Suitability of Accommodation) (England) Order 2003 which came
into force on 1 April 2004. The Order means that local authorities
are no longer able to discharge their homelessness duty to secure
accommodation by placing families with children in B&B for
longer than six weeks. If authorities fail to comply with the
Order, their decision can be subject to review and then can be
challenged in the courts.
SUSTAINING THE
TWO-THIRDS
REDUCTION IN
ROUGH SLEEPING
65. The most visible form of homelessness
is that of people sleeping on the streets. In 1998 the Prime Minister
set a target that by 2002 the numbers of rough sleepers should
be reduced by at least two thirds from the then level of 1,850.
The Prime Minister announced on 3 December 2001 that the Government
had met this target and estimates published since then show that
reductions are being sustained, with levels in 2004 being more
than 70% lower than in 1998. Reductions in the centre of London
have not been as great—though they are over 57%—and
the highest concentration of rough sleepers are still found there.
The Directorate continues to work closely with local authorities
to reduce this number still further.
66. Reductions have been achieved, and sustained,
through advice and support from the Homelessness and Housing Support
Directorate in implementing rough sleeping and single homelessness
strategies. Our action includes encouraging partnership working
between local authorities, voluntary sector agencies and other
statutory bodies.
67. One issue which we have targeted our
action towards is substance misuse amongst rough sleepers and
single homeless people which we know in hostels runs as high as
90% in some areas and is a major barrier in preventing people
from moving away from the street. The ODPM, together with the
Home Office and Department of Health, successfully targeted treatment
funds for this group. The Department continues to work closely
with the Home Office and National Treatment Agency to ensure Drug
Action Team Treatment Plans are aligned with local authority homelessness
strategies (in areas where there were historically high levels
of rough sleeping).
68. We are now turning our attention to
improving hostels which have been instrumental in achieving rough
sleeping reductions. However we know that over half of rough sleepers
move out of first stage hostels as a result of either eviction
or abandonment. The ODPM is now taking the opportunity to improve
both their operation and physical layout to improve outcomes for
homeless people. A Hostels Pilot was undertaken to gain a greater
understanding of high turnover and a toolkit to improve the effectiveness
of hostels is under consideration by local authorities and the
voluntary sector. Our capital investment programme will support
physical improvements such as the removal of dormitory provision
and the creation of training and "keyworking" rooms
in existing projects to improve work with residents.
ENSURE THE
OPPORTUNITY OF
A DECENT
HOME FOR
ALL
69. The availability of a settled, affordable
home is a vital part of our work to tackle homelessness and in
build sustainable communities. ODPM has therefore been taking
action to improve the quality of existing housing and to maximise
its use, as well as increase new provision.
70. We are still living with the legacy
of dramatic cuts in housing investment under the last administration.
Between 1993 and 1997 capital spending on housing was halved,
falling from £3.2 billion to £1.65 billion. The Government
moved quickly to reverse this trend and since 1997, we have tripled
total housing capital investment which will reach nearly £5
billion in 2005-06. This previous lack of investment not only
impacted on the number of affordable and social housing units,
but also on the condition of the existing social stock.
71. Many of the issues we are now confronting
are a result of economic success. The Government's economic policies,
creating the right conditions for low interest rates, and avoiding
a return to "boom and bust", have ensured confidence
in the housing market. A strong economy has also produced significant
economic in-migration, which has put pressure on the housing market
particularly in London and the South East, whilst other areas
of the country are suffering low demand.
72. The provision of more affordable housing
is key but we should not neglect the need to ensure that our existing
stock of social housing is properly looked after and that it offers
decent housing conditions to tenants.
73. In 1997, we inherited an estimated £19
billion backlog of repairs and maintenance work in council housing.
This reflected significant under-investment over a number of years.
Investment in the existing council housing stock in 1997-98 was
only around half that of 10 years earlier in real terms.
74. We have set a target to bring all social
housing up to set standards of decency by 2010, and to reduce
the number of social tenants living in non-decent homes by one
third between April 2001 and March 2004, with most of the reduction
taking place in deprived areas.
75. We have backed this target with some
significant increases in investment. For example, in 1997-98,
planned central government support for local authority housing
capital investment was £750 million. We have increased this
year on year to £1.9 billion in 2000-01, and to £2.6
billion in 2002-03 (excluding funding through the Private Finance
Initiative and through local authorities' own contributions).
The funding is now bearing results and have reduced the number
of non-decent social homes by one million.
Adequacy of existing supply and the level of resources
available
76. We are acutely aware that, in many housing
hotspots, in London and the South East especially, high demand
for housing means many people face difficulties in securing good
quality housing at an affordable price whether it be for rent
or to purchase. A supply of good quality affordable housing is
essential in maintaining balanced and successful communities.
Delivering new affordable housing where it is needed, in more
sustainable forms, is one of our key priorities.
77. To make progress in tackling this issue,
we are increasing resources for housing generally, and for affordable
housing specifically. By 2005-06, central government support for
capital investment in housing will have risen to more than £5
billion compared with planned spending of £1.5 billion in
1997-98. Investment through the Housing Corporation rose to over
£1.6 billion in 2003-04 with promised investment of £3.3
billion over the two years 2004-06.
78. We are also concerned about the ability
of key workers to buy their own homes in areas where high house
prices are undermining staff recruitment and retention. These
workers support the communities in which they live. Following
our investment of £250 million through the Starter Home Initiative
we have developed the Key Worker Living programme which is part
of the ADP investing £690 million over the two years in areas
of high demand.
79. Despite the increase in investment,
the number of new affordable homes being built is still below
that of the mid 1990s, due to a huge rise in development costs,
and the private sector has not been building enough houses to
keep up with demand. Investment through the Housing Corporation's
approved development programme provided over 16,100 homes for
rent in 2003-04 along with over 6,100 homes for low cost home
ownership.
The balance of allocation of new resources between
social housing and low cost home ownership schemes
80. The Government is keen to meet the needs
both of those in priority housing need who require rented accommodation,
and of those, especially key workers, who are unable to achieve
their aspirations to home-ownership without assistance. But we
must be realistic about our ability to resolve every housing problem
through public funding.
81. The key action in tackling affordability
is to ensure a better balance between supply and demand. We have
expressed our determination to address this issue, ensuring delivery
of the housing numbers set out in regional planning guidance,
accelerating proposals for the growth areas, and creating a more
efficient planning system. But the Government recognises that,
even where supply and demand are well balanced, there will still
be some who will need assistance to gain access to a decent home.
82. Where existing social tenants aspire
to home ownership and can sustain this, assistance through the
use of low cost home ownership products can release existing properties
for use for rent to others in priority need.
83. As part of the Spending Review we have
a clear remit to turn around the growth in homelessness by 2008.
The funding provided in the Spending Review will, along with efficiency
improvements, produce 75,000 social rented homes and 40,000 homes
for essential public sector workers and low cost homeownership
over the three years to 2007-08.
84. Decisions have not yet been taken on
how Regional Housing Pot funding for 2006-07 and 2007-08 (including
the additional funding for affordable housing) will be split between
regions. This needs to reflect the different pattern of needs
across regions and the Government's national housing priorities,
including development of the growth areas, and targets. We are
aiming to complete this work, which raises some complex issues,
by the end of the year. We then intend to announce decisions on
allocation of funding within regions next summer in the light
of recommendations from Regional Housing Boards, which are due
in May next year.
85. It is important to see the package as
a whole, with increased housing numbers, along with reforms to
the planning system, a more responsive house building industry,
more affordable housing, and increased resources to support investment
in infrastructure and social housing.
86. We must not forget that the management
of existing stock also has a key role in reducing the levels of
homelessness. The Housing Corporation not only has an investment
role in the provision of more affordable housing but also influences
letting policies of housing associations through their regulatory
regime.
CONCLUSION
87. We have made significant progress since
1997 in tackling the worst manifestations of homelessness and
have met, and are sustaining reductions in rough sleeping numbers
and in the use of bed and breakfast accommodation. We have provided
a stronger statutory safety net and will continue to promote effective
homelessness prevention measures. Coupled with investment to increase
housing supply where it is needed, we believe this will reverse
the rising trends in temporary accommodation use that we have
seen in recent years.
ODPM
September 2004
ODPM Homelessness Publications
Homelessness code of guidance for local authorities
http://www.odpm.gov.uk/stellent/groups/odpm_control/documents/contentservertemplate/odpm_index.hcst?n=869&l=3
More than a roof: a report into tackling
homelessness http://www.odpm.gov.uk/stellent/groups/odpm_homelessness/documents/page/odpm_home_601520.hcsp
Housing associations and homelessness briefing
http://www.odpm.gov.uk/stellent/groups/odpm_homelessness/documents/page/odpm_home_027314.hcsp
Homelessness Act 2002_summary of provisions
http://www.odpm.gov.uk/stellent/groups/odpm_homelessness/documents/page/odpm_home_601519.hcsp
ODPM advice note Achieving positive outcomes
in homelessness http://www.odpm.gov.uk/stellent/groups/odpmhomelessness/documents/downloadable/odpm_home_609541.pdf)
Homelessness strategies: a good practice
handbook http://www.odpm.gov.uk/stellent/groups/odpm_homelessness/documents/page/odpm_home_601517.hcsp
Reducing B&B use and tackling homelessness:
What's working www.odpm.gov.uk/stellent/groups/odpm_homelessness/documents/page/odpm_home_023783.hcsp
Achieving positive shared outcomes in health
and homelessness http://www.odpm.gov.uk/stellent/groups/odpm_homelessness/documents/page/odpm_home_027792.hcsp
Homelessness Policy Briefings
Policy Briefing 1: BME issues.
Policy Briefing 2: Domestic violence
Policy Briefing 3: Bed and breakfast
Policy Briefing 4: Prevention of homelessness
Policy Briefing 5: Improving employment options
for homeless people.
Policy Briefing 6: Repeat homelessness.
Policy Briefing 7: Addressing the health needs
of homeless people.
Policy Briefing 8: Improving the quality of
hostels and other forms of temporary accommodation.
All found at: http://www.odpm.gov.uk/stellent/groups/odpm_control/documents/contentservertemplate/odpm_index.hcst?n=855&l=1
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