Select Committee on Office of the Deputy Prime Minister: Housing, Planning, Local Government and the Regions Third Report


7 Moving on

Support in transition

183. In order to succeed when moving into permanent accommodation, many people may need a tenancy support service to ensure that they access the right services and advice. For many, it may be their first solo tenancy; others may not have adequate English or may suffer from ill health. We are not convinced that the valuable role of tenancy or floating support services in preventing repeat homelessness has been adequately appreciated. Reducing levels of repeat homelessness is now a requirement for all local authorities receiving over £50,000 from the Homelessness and Housing Services Directorate. Shelter's Homeless to Home service was set up to meet the need for tenancy support; it achieves a tenancy sustainment rate of 90% after nine months. Shelter told us

Preventing repeat homelessness

184. The prevention of repeat homelessness is part of each local authority's homelessness strategies. One way of measuring the success of this aim is to look at the statistics provided by the Annual Rough Sleepers Summary Report for London 2003, conducted by Broadway. This reported that 64% of the street contacts made were assisted off the streets by outreach teams, compared to 69% in 2002. 62% of those had not been assisted off the streets before 2003, and 3% had been assisted off the streets more than ten times before 2003. At the end of 2003, 53% of those contacted were on the streets, compared to 43% in 2002. This would appear to show that 17% of the contacts were assisted off the streets and had returned by the end of the year. This compares to 12% in 2002. It could be that it becomes less easy to find people to move off the street each year. This snapshot shows however that a sizeable proportion of rough sleepers in London are returning to the streets.

185. The problems we have outlined with temporary accommodation and support services may account for this. We have no statistics for those returning to the streets outside London, although we have seen some anecdotal evidence regarding those who do return to the streets. Although we have discussed prevention work, many of the schemes are not designed to prevent repeat homelessness. Until these problems are sorted out, people will continue to return to the streets who might otherwise find a permanent home.

The real size of the problem?

186. Until the Government has a clearer idea of how many homeless people there truly are in England, it is hard to know how it can assess the success of its strategies. However many people move out of homelessness, there remain those who have never been counted who are still without a permanent home. These people go unsupported and may be developing complex needs as a result of their situation. ODPM should commission a census of the hidden homeless in a selection of areas, to assess the scale of the problem. This will require lateral thinking about ways to discover who is without a permanent home. A public information campaign informing people of their rights under the Homelessness Act and encouraging people to contact their local authorities could potentially bring a proportion of the hidden homeless into the system. Although this may well increase the existing pressure on temporary and permanent accommodation, it would enable local authorities to make more useful assessments of the scale of the problem and the housing needs of those living in the area.

Lettings policies

187. There are real problems re-housing homeless people which go beyond the supply of housing. We have heard repeatedly of the barriers that local authorities have come across in re-housing large numbers of homeless people. Local lettings policies are designed, as advocated by ODPM policy, to create mixed and sustainable communities. All social landlords would like to have more balanced lettings, with more new tenants in employment and fewer vulnerable people with complex needs. In high demand areas, the people with highest priority are predominantly people who have been through the mill of homelessness, often have multiple needs and are unlikely to have sustained employment through the ordeal of temporary accommodation. In these circumstances it seems very unlikely that anything significant can be done to create more balanced communities on existing social housing estates, although there is clearly more scope in new development.

CHOICE-BASED LETTINGS

188. Homeless people are often stereotyped as 'problems' when in fact most homeless people go through the trauma, eventually are re-housed, and then get on with the rest of their lives. Many local authorities are now introducing choice based lettings schemes in line with Government policy.[240] There are national concerns about how the schemes will work and whether they will discriminate against vulnerable people, who find it hard to operate the system, and lead to them getting the poorest accommodation. In districts with choice based lettings schemes, all the public agencies providing services for homeless people including social services, health organisations and voluntary sector bodies need to ensure that homeless people have the information and facilities to put together a bid for a home and subsequently to live in it. With the increasing use of choice based letting schemes, the Government must provide guidance to local agencies to ensure that homeless people benefit from them and are not disadvantaged.

189. In our Report on Social Cohesion, we raised concerns about choice based letting schemes. Freedom of choice can lead to greater segregation if tenants' choices are constrained by limited information, fear and safety.[241] These concerns were reflected in evidence to this inquiry. Councillor Tony Newman, representing the ALG, told us

    "we have seen how housing can be misused in London in terms of outfits like the BNP in Barking, Dagenham and other areas playing off people's fears around housing and choice-based schemes with wild allegations about who may or may not move into an area, and it is a very sensitive area. I think before getting much more ambitious than one or two well-working borough schemes in London, we need a lot more work on this in terms of how we are going to tackle it. It must be done, as I said, in relation to supply because, without sufficient supply, it simply will not have any credibility". [242]

190. In its Response to our Social Cohesion report, the ODPM said it was conducting a Race Impact Assessment of the allocation legislation.[243] The ODPM needs to review regularly the implementation and practical effect of choice based letting schemes to ensure that they promote integration of different cultural groups rather than increase segregation.

Anti-social behaviour

191. Those homeless people who have previously been associated with anti-social behaviour can put local authorities into quandaries. There is a statutory duty to re-house them, if found unintentionally homeless, but a reluctance on the part of landlords and other tenants to accept them. There is no easy answer to this problem. Mr Les Williamson, of the Yorkshire and Humberside Housing Forum, told us that probationary tenancies could be used in these cases but support packages were part of this and Supporting People funding might not be available.[244]

Young people

192. The large number of young people in need of homes presents its own problem. We have heard that 16 and 17 year olds have expectations of what housing they can be placed in that does not reflect reality. We asked if sharing would be a solution to the lack of one person units. Mr Jeremy Drew, of the Foyer Federation, said one issue lay in

Mr Howard Sinclair, from Broadway, added

    "when people are in unsupported, shared accommodation, they are very vulnerable. They do not know who is moving next door to them, they have no right to say who is living next door to them and actually I think that leads to some of the difficulties and exacerbates the situation for some people".[246]

We realise that people who have become homeless so young are likely to be in need of high support and shared accommodation would not be appropriate. We feel however that local authorities with a surplus of family housing might consider converting such accommodation into bedsit accommodation for adults with low support needs.


239   Ev 194 Back

240   ODPM has set Choice Based Lettings targets for local authorities. By 2005 some 25% of all local authorities are to have adopted some form of choice based letting scheme; and that all authorities will offer choice to applicants by 2010. Back

241   Social Cohesion House of Commons ODPM: Housing, Planning, Local Government and the Regions Committee, Sixth Report of Session 2003-04 (HC 45) Back

242   Q 81 Back

243   Government Response to the ODPM Select Committee Report on Social Cohesion Cm 6284 July 2004 Back

244   Q 188-189 Back

245   Q 235 Back

246   Q 235 Back


 
previous page contents next page

House of Commons home page Parliament home page House of Lords home page search page enquiries index

© Parliamentary copyright 2005
Prepared 27 January 2005