Waveney District Council
Homelessness Strategy
2013-2018
Contents
Chapter
Page
Foreword by Councillor Sue Allen
3
Content – List of Stakeholders
4
1
Introduction - Legislative Context
5-8
2
Background
9-17
3
Review of Homelessness Strategy 2008-2013
18-26
4
Future Strategic / Operational Priorities
27-33
5
Conclusion
34
Glossary APPENDIX A
35-36
If you require this document in large print or another format please contact 01502 562111.
This document sets out the current and future arrangements to prevent and alleviate
homelessness within Waveney District Council.
Consultation
This strategy has been written following workshops and meetings involving key stakeholders.
This is followed by a six-week consultation period from 3rd June 2013 (subject to be signed off
by Homelessness Forum and HOBTS).
Consultation for this Homelessness Strategy:
Housing Options – [email protected]
Foreword
This strategy sets out the vision for the next five years to 2018, working across a range of
shared policies and objectives to ensure that those households facing homelessness are dealt
with in the most appropriate manner on every occasion.
For the last four years of the Homelessness Strategy 2008-2013, Waveney District Council has
been working hard at the prevention of homelessness and this will continue to be the focus of
our approach. The contribution of our key partners and stakeholders has been invaluable when
seeking to address and work with the root causes of homelessness. This work has led to a
significant reduction in both homeless acceptances and placements in temporary
accommodation. This approach is coupled with an increase in the number of housing options
open to applicants on the Housing Register.
Strategic Context
Since the general election in May 2010, the coalition government has implemented a
programme of fundamental change and reform. This reform agenda requires local
homelessness services to adapt more quickly to mitigate against the impact of homelessness. A
raft of policy changes will have a direct impact on the way in which local authorities deliver
allocations, lettings and homelessness services to their communities. In recognition of these
fundamental changes, the DCLG Working Group on Homelessness has produced a
homelessness strategy ‘Making Every Contact Count’. This strategy is therefore rooted in reality
and will shape and inform our course during the years ahead in what seems set to be a highly
challenging environment, but one in which our Councils are intent upon succeeding.
Signed
Councillor Sue Allen
3
CONTENTS
List of organisations invited to the Stakeholders Event
D.I. A.L
(Disablement Information and Advice Line)
DAAT (Drug and Alcohol Action Team)
Flagship Housing Association
Suffolk County Council Financial inclusion unit
Julian Support
North East Suffolk CAB
SCC Children and Young Peoples Services
SOLO Housing
SCC Adult and Community Services
Hope House (Adam Outreach Project)
SCC Personalisation and Development
(Suffolk Supporting People)
Eastern Landlords Association
Broadland Housing Association
Housing Benefits
Orbit Housing Association
Shechem House Trust
Orwell Housing Association
Leeway Project - Domestic Violence Services
Shelter
Liberty Project - Domestic Violence Services
St Johns Housing Trust
Anglia Care Trust
SCC Integrated Youth Service
Taylor Properties
JUMP-Peering Organisation for Young People
Ganaden Estate Agents
GENESIS Housing Association
Elizabeth Holdings
PCT Mental Recovery Services
Tenancy Services – WDC
YMCA
Anti Social Behaviour Unit - WDC
Crime Reduction Initiative CRI
Councillor Sue Allen – Portfolio Holder Housing
4
Chapter 1
Legislative Context
Section 1 of the Homelessness Act 2002 places a duty on local authorities to formulate a Homelessness
Strategy by carrying out a homelessness review of the District. The Homelessness Act 2002 requires
local authorities to formulate and publish a Homelessness Strategy based on the results of that review.
The life of the strategy should be no longer than 5 years and when the strategy expires or is due to
expire; the authority must publish a new Homelessness Strategy. Since the Great Yarmouth and
Waveney Sub-Regional strategy was written in 2008 both Councils have decided to a large extent to
go their own separate ways and ties have gradually been reduced. Prior to modifying an existing
strategy the authority must carry out a consultation. The Homelessness Strategy remains a stand-alone
statutory requirement. The DCLG also recommends that the Strategy is monitored by a partnership
such as a local homelessness forum or equivalent group with local partnership sign off and clear links
into the authority’s corporate framework, including other local strategies.
In reviewing the current homelessness strategy consideration was given to the following sources of
information and feedback
•
Homelessness Trends (Nationally and locally)
•
Stakeholder feedback
•
Analysis of the outcomes of the 2008-2013 Homelessness Strategy and Action Plan
•
Analysis of Customer Feedback
•
WDC Homeless Forum
•
WDC Housing Benefits and Tenancy Services Group
The current review and resulting Waveney District Council Homelessness Strategy will also need to
reflect changes in national policy and legislation. The Local Authority Code of Guidance identifies the
qualities that make an effective Homelessness Strategy. One of the key qualities is that the Strategy
should be consistent with other local plans and strategies. Listed below are some key changes that will
have a bearing on the delivery of local Housing Options and Homeless Prevention Services.
5
•
Emergency Budget-22 June 2010
•
Comprehensive Spending Review 2010
•
Budget-21 March 2012
•
Localism Act 2011-15 Nov 2012
•
No Second Night Out Nationwide-6 July 2011
•
Allocation Codes of Guidance for Local Authorities in England- 29 June 2012
•
Laying out the Foundations: A Housing Strategy for England 2011
•
The introduction of Local Authority Strategic Tenancy Policies
•
Affordable Homes Framework-15 Feb 2011
•
New Homes Bonus 2011
•
Welfare Reform Act-8 March 2012
•
Social Justice –Transforming Lives-3 Mar 2012
•
Budget -21 Mar 2012
•
Legal Aid, Sentencing and Punishment of Offenders Act 2012-1 May 2012
•
Homeless (Suitability of Accommodation) (England) Order 2012 -9 Nov 2012
•
Making Every Contact Count-6 Aug 2012
•
The Allocation of Housing (Qualification Criteria for Armed Forces) (England)
Regulations 2012-24 Aug 2012
•
Supplementary Guidance on the homelessness changes in the Local Act 2011 and on
the Homelessness (Suitability of Accommodation) (England) Order 2012-8 Nov 2012
•
The Housing Act 1996 (Additional Preference for Former Armed Forces Personnel)
(England) Regulations 2012 -30 Nov 2012
6
Localism Act
Various sections within Part 7 (Housing) of the Localism Act 2011 have commenced. The list contained
in the box below outlines seven key sections and are now in force and directly relevant to the provision
of allocations and homelessness prevention services. When developing new preventing homelessness
strategies, local authorities should have regard to the national agenda and specific legislative changes.
•
Section 150-Tenancy Strategies to be in place (15 Jan 2013)
•
Section 153-Relationship between schemes and strategies (7 Jun 2012)
•
Section 145-Allocation of housing accommodation (18 Jun 2012)
•
Section 146-Allocation only to eligible and qualifying persons: England (18 June 2012)
•
Section 148-Duties to Homeless Persons ( 9 Nov 2012)
•
Section 149-Duties to homeless persons (further amendments) (9 Nov 2012)
Section 153 of the Localism Act 2011 prescribes the relationship between schemes and strategies of
which local authorities must have regard to in developing or modifying their local preventing
homelessness strategies. Section 153 enshrines in legislation the relationship between a local authority
homelessness strategy, the allocations policy and the tenancy strategy.
The Gateway to Homechoice Choice Based Letting Scheme Allocation Policy was amended to reflect
the above changes in October 2012. Although WDC has approved the continuation of an ‘open’ Housing
Register, the approach will be to continue with a triage Housing Options Service for households in
housing need. More specifically, the allocations policy was amended to reflect recent changes to the
Section 193 Main Homelessness duty. Appendix 1 details the guidance relating to the power to
discharge the main homelessness duty with a private rented sector offer. It is important to have clear
guidance so that any challenges will be minimised in relation to ending the main duty which prior to the
recent change meant that it normally ended with a Part 6 Social Allocations offer.
Section 153 of the Localism Act states that any tenancy strategy considerations regarding local provision
such as affordable rented accommodation and flexible tenure, should feed into the local preventing
homeless strategy and vice versa. WDC is included in the Haven Gateway Tenancy Strategy Policy.
The Tenancy Strategy includes Housing Options/Registered Provider Housing Options Protocol which
will need to be referred to when a household’s circumstance has changed to the point the Fixed Term
Arrangement is brought to an end.
Links to other Strategic Priorities
Local Authorities should also ensure that wherever possible the strategy links to local partner Registered
Provider Homelessness action plans, along with other local strategies. i.e. Empty Homes, Housing
Strategy, Welfare Reform and Financial Inclusion Strategies, Corporate Aims and Objectives, Health and
Wellbeing strategies, Domestic Violence Strategy.
WDC Corporate Aims and Objectives.
The Homeless Strategy contributes to meeting the strategic direction of the Council specifically in
relation to:
Priority Objective 1-Safe, healthy and inclusive communities.
‘Waveney needs all people to be kept safe from harm, to be able to live healthy lifestyles and to be
valued in the community, in which they live, work, grow up, and grow old. By 2028 Waveney will be a
diverse mix of proud, caring and supportive communities that value their rural and coastal heritage, are
aspirational for themselves and for the future, feel engaged and valued and where newcomers are
welcomed. They are communities where people’s needs are met and where they feel that, as individuals
they make a difference’.
7
Equality and Diversity
The service by its very nature works with some of the most vulnerable people in society. Waveney
District Council will continue to work with our partners to ensure our services users are treated fairly and
appropriately.
Housing Strategy
The Housing Strategy is currently being steered according to what works best in a rapidly changing
landscape. The strategy will be informed by a light touch Housing Market Assessment. The findings of
the review will be incorporated into both Housing and Homeless Strategies as appropriate.
Private Sector Renewal Strategy Empty Homes
There is an overwhelming importance attached to ensuring that empty homes are returned to use. New
Home Bonus is payable on all homes brought back into use and the Council is currently working to
encourage use and buying up empty properties to bring them into the Housing Revenue Account.
Welfare Reform and Financial Inclusion Strategies
Local Welfare Assistance Arrangements with the demise of the DWP social fund
WDC has been consulted on the local arrangements that will need to be in place after the DWP Social
Fund ceases to exist. The Housing Options Team will operate as a ‘fast track’ Gateway Organisation for
services users that it is actively involved with.
Waveney District Council Benefits & Revenues Service Discretionary Housing Payment Policy 2011
The purpose of this policy is to specify how Waveney District Councils Benefits & Revenues Service will
operate the scheme and to indicate some of the factors that will be considered when deciding if a DHP
can be made. Housing Options (including their in-house CAB money advice worker) are now an integral
part of the DHP application process (Appendix 4).
Suffolk County Council Supporting People: Personalisation and Partnership
Suffolk Supporting People Programme funds the delivery of short-term support to vulnerable people who
are unlikely to receive housing related support elsewhere. The aim is to enable people to live
independently, realise their potential and make a positive social and/or economic contribution to their
community. The focus of this support is on prevention and early intervention. The strategic statement
sets out the key objectives for the programme and how they should be delivered. Partnership working is
a fundamental part of the Supporting People (SP) programme with great emphasis on the active
involvement of a broad range of stakeholders. In keeping with the aims of the Localism Act this
partnership promotes collaborative working to improve the quality of life for local communities and to
deliver local people's priorities.
Seven themes provide the focus and direction for the SP Programme. These are Customers, Services,
Integration, Finances, Personalisation, Innovation and Partnership.
WDC is a Local Authority Member of the Suffolk County Council Waveney and Suffolk Coastal Locality
Group. The remit of the Locality Meeting is to work within the above framework of objectives. WDC
Housing Options are also represented on the Suffolk Coordination Service which is tasked with steering
through the introduction of an on-line system for identifying and allocating supported accommodation
across the County Council.
8
Drug and Alcohol Action team
WDC is also represented on the Mental Health Accommodation Sub-Group which is led by DAAT and
has also started to develop operational relationships with the Clinical Locality Manager of Suffolk County
Council as well as the Transformation Lead at James Paget Hospital.
Local Development Framework Core Strategy Adopted January 2009
The Core strategy is one of the first documents being produced as part of the Waveney Local
Development Framework. It sets out in strategic terms the Council's overall approach to future
development; generally where it should take place and the key factors that need to be taken into account
when considering proposals for development. The theme at the heart of the new system is ‘spatial
planning’ This means taking into account the economic,social and environmental requirements of other
strategies and programmes and integrating them within land use planning. Therefore, the key elements
of the Core Strategy are the long term spatial vision for the District, spatial objectives and the spatial
policies needed to deliver the vision. One of the objectives is to deliver new housing to meet the needs of
the community including addressing the need for affordable housing and homelessness.'
Norfolk and Suffolk Gypsy and Traveller Strategy adopted 2012
The Gypsy and Traveller Strategy will cover Norfolk and Suffolk, as the county councils have merged
resources making the service more efficient. The new merged service will continue to support Gypsies
and Travellers by providing a framework for:
•
Improving community cohesion by promoting good relations between Gypsies and Travellers and
settled communities.
•
Increasing awareness and understanding of Gypsy and Traveller needs, culture and lifestyle.
•
Managing unauthorised encampments in Norfolk and Suffolk, helping to ensure that
accommodation needs and other welfare issues are addressed.
•
Further generating knowledge and understanding of hate crime and incidents and encouraging
Gypsy and Traveller communities to report them.
•
Working to reduce and eliminate harassment and discrimination towards Gypsy and Traveller
communities.
•
Improving fire safety and personal welfare for Gypsies and Travellers in Norfolk and Suffolk.
•
Improving access to learning for pre-school children, young people and adults on Gypsy and
Traveller sites and encampments.
•
Reduce health inequalities, improve health and wellbeing, and promote health, education and
awareness amongst Gypsies and Travellers.
9
Chapter 2
Background
Shared Services with Suffolk Coastal District Council
Since the previous Great Yarmouth and Waveney Sub-Regional Homeless Strategy was published there
have been some significant changes at the Local Authority level. The shared services approach has
resulted in WDC being further integrated with Suffolk Coastal District Council. WDC also joined the
Gateway to Homechoice Choice Based Lettings Partnership in January 2011. Wherever possible both
Homeless Strategies will complement each other.
Great Yarmouth and Waveney Housing Market Assessment
The Great Yarmouth and Waveney Sub regional Housing Strategy 2007 was the first joint document
produced and it acknowledged both the similarities and the differences between the two Districts and the
challenges in working and developing services across them that, at that time, were covered by different
county council and health structures. The Housing Market assessment 2007 informed the sub-regional
housing strategy. The Housing Market Assessment included an Assessment of Housing Need. A
review of indicators of housing need will be completed by March 2013. The main purpose is to consider
the ongoing rationale within planning policy in relation to affordable housing. The 2007 HMA analysed a
range of population, income, health, housing, economic and planning indicators. These were used to
identify how local housing markets worked and how they related to each other, and to wider housing
markets. The assessment looked at housing supply and demand and where there were shortfalls
continues to be a process of ongoing assessment and information collection.
The 2007 Housing Market Assessment showed that in both Districts the main urban areas tend to have
concentrations of deprivation. The pattern of the settlements in the rural areas is different, with Waveney
District Council having a number of market towns as well as the urban area of Lowestoft together with a
number of villages, whilst Great Yarmouth Borough Council has a concentration of development in the
urban areas of Great Yarmouth and Gorleston and a range of village settlements.
The 2007 HMA also showed a number of key factors that will affect the future demand for housing and
the ability of people to meet their own housing needs. The Sub Region has an older population than the
national average and a low population of children under 15. However, this varies within the area with
Caister in Great Yarmouth District Council and Southwold and Reydon in Waveney District Council
having an elderly population ratio of 1:3. Generally, rural areas have a lower proportion of older people
than this. The 2007 HMA also identified the following:
•
The highest proportion of young children are in urban areas.
•
There are a low percentage of people who do not classify themselves as white or white British,
1.2% for Waveney District Council (now 4.4%) with an increase in the number of migrant workers
drawn to the sub region.
•
Waveney District Council has engaged in the Suffolk County Council Gypsy and Traveller
Community Accommodation draft assessment and are actively working to meet the needs
identified in this research and the previously published report of the East of England Regional
Assembly. 4 additional pitches are planned for the Kessingland site.
•
The formation of new households in Waveney is increasing at a higher rate than the increase in
population. This reflects the number of single person and small households with an estimate of
27.8% of urban households consisting of a single person (2011 Census).
•
Waveney District Council is the 7th most deprived of the 48 districts in the Eastern Region. In the
Eastern Region Norwich City Council is the most deprived. Nationally Waveney District Council is
ranked 113th. Nationally Norwich City Council is ranked 61st and Ipswich District Council is 98th.
10
•
Waveney has low average incomes and house prices vary from locality to locality but, taking
average house prices (last quarter 2006) and average incomes, 10.7 times in Southwold and
Reydon. Based on research carried out for the Joseph Rowntree Foundation, 39% of households
in Waveney and 52% in Great Yarmouth will not be able to buy a home. In some areas, like
Southwold and Reydon, the problem is aggravated by the increasing demand for second and
holiday homes pushing up prices.
Profile of Waveney at 2011
Housing Need
•
Census figures show a net increase of 2% in the population (2001 census 112,500 v 2011 census
115,300). The number of Households have increased from 51,200 to 52,100. In Eastern England
the average growth rate was 8.5% between 2001-2011.
•
2011 Census indicates that 0.4% of households in Waveney were in shared ownership schemes;
66% of households are made up of Homeowners.
•
14% of households are in social rented accommodation and 14.9% of households are renting
privately.
•
27.8% of households are one person households.
•
The 2011 Census indicates that 6.6% of the local population considered themselves to be in bad or
very bad health.
•
A snapshot of the housing register taken on the 13 February 2013 indicates that of a total of 2812
applicants 4.29% is represented by ethnic minorities. This also reflects the profile of Waveney.
•
There are approximately 13,430 Private Sector Tenants who are in receipt of a benefit (Private
Sector Stock Condition Survey).
•
Of the 13,430 approx 31.5% live in accommodation that does not meet the Decent Homes
Standard.
•
The Waveney Core Strategy has indicated that 6,960 new dwellings are required between
01/04/2001-30/03/2025 (An average of 290 per year).
•
Building has commenced on 51 affordable homes which is a positive sign for the future.
•
Long term unemployment is on the increase. The number of Job Seekers claimants to continues.
Average earnings have risen but continue to be below county and national averages.
•
1 in 5 households live in areas within 25% of the most deprived areas in England. Areas include
Harbour, Kirkley, Normanston, St Margaret’s and Whitton in Lowestoft, and also include parts of
Pakefield and Beccles South.
•
Total Number of the Housing Register applicants (snapshot 05/02/2013) 2809.
Register is made up of the following:
Direct Applicants
2312
Transfers
497
Homeless
The Housing
6
•
77% of applicants on register in bands a, b and c have an income of under £10k.
•
A snapshot of the housing register taken on the 7 February 2013 indicated a total of 73 new
applications taken for that day, 24% were related to households wishing to downsize: 6% were
overcrowded; 13% were adequately housed: 13% were over the age of 60: 23% under 25 years of
age: 0.6% were of No Fixed Abode.
11
•
There were 364 LA and 191 RP Allocations of Social Housing in 11/12 excluding mutual
exchanges and transfers of existing social housing tenants.
•
Social rented housing makes up 15% of stock compared to 18% national average.
•
Proportion of households in private sector in receipt of benefit - 33% compared to national average
of 17%.
•
The Homeless trend to date has been positive with levels in 2012 less than a quarter of 2004/5
figures.
•
Some 111 Empty Homes were brought back into use between 2008-March 2012.
•
Additional affordable housing delivered in 6 years 06/07; 07/08, 08/09; 09/10; 10/11; 11/12 has not
achieved the need identified in Strategic Housing Market Assessment a dated 2007 (SHMA
indicated a need for 225 per year) Almost 20% of all housing completions in 2011/12 were
affordable. The numbers delivered are good compared to previous years but demonstrate the gap
between requirement and reality.
06/07
07/08
08/09
09/10
10/11
11/12
Total
37
47
109
90
100
38
421
•
Social rented housing makes up 15% of stock compared to 18% national average. 100% WDC
Housing Stock meets the Decent Homes Standard.
•
The local authorities adopting the Greater Haven Gateway tenancy strategy have agreed a
principle definition of affordability which measures whether a household can access and sustain the
cost of housing. This principle is based on key sets of data and an informed judgment of what is an
affordable ratio of housing costs to income. This common definition will enable local authorities to
assess affordability and ‘localise’ the housing market information and advice they give Registered
Providers working in their area. It will also provide the means to compare information across local
authority boundaries and identify ‘housing market area linkages’.
•
The median annual earnings full-time work based places is £20,974.00 25% of median gross
£5,243.50 to be used to pay for housing costs (Suffolk Observatory 2012).
•
In the first quarter of 2013 the average Property Values for NR32 was £135,755.00. There were
216 Homes and flats for sale in the same area along with 74 properties for rent. In IP18
(Southwold) the average property values was £330,594.00. There were 8 houses and flats to rent
and 70 for sale (Zoopla 13/02/2013).
Given the above socio-economic context the Housing Options (including Homechoice) Team have
performed well. The situation is going to be increasingly more difficult once the reforms take hold. The
performance levels are likely to be negatively impacted as some prevention options will not be viable in
the long term.
12
What’s changed since the 2008-13 Homelessness Strategy?
a)
Southwark Ruling
Southwark ruling reinforced Social Care’s primary responsibility for homeless sixteen and 17 year olds.
There are less single 16-18 year olds presenting to housing options but there continues to be a
continued demand for Under 18s with children/pregnant and under 18s refusing a service from the
Children and Young People Services. On average 15-30 under 18s present to the 12+ Team at
Lowestoft. The Child In Need Team receives on average 4-5 referrals a week from homeless 16 and 17
year olds. Approximately 30% of these cases involve an under 18 who has a child or is pregnant.
Future risks to homeless prevention will be Government proposals to end payment of Housing Benefit for
all people under the age of 25.
b)
Welfare Reform
Changes to the Local Housing Allowance
Changes to the LHA, (Shared Room Rate is now applied to single households under the age of 35,
Reduction in the Local Housing Rate being set from the 50th to the 30th percentile). LHA will not be paid
for properties with more than 4 bed rooms. All the above changes have impacted on affordability of
private sector housing options. The Government is now considering ending Housing Benefit being paid
to all people under the age of 25 – to be implemented in 15/16 (which will be within the term of this new
strategy).
Changes to Social Housing Size Criteria and payment of Housing Benefit for tenants in Social Housing
(Size criteria)
The changes planned are likely to have a significant impact on social landlords and their tenants, with
the ‘size criteria’ element of welfare reform posing a particular challenge for landlords who have working
age tenants claiming housing benefit and living in homes which are larger than the legislation states that
they need. Please refer to the CIH document relating to this issue that sets out a number of
actions/strategies. It is important that WDC are up to speed on what Housing Associations are doing in
preparation for this change as there is likely to be an impact on homelessness. Please refer to page 15
of the DWP Impact Assessment –on likely scenarios and behaviours. Interestingly it is predicted that
about 25% will choose to move into alternative accommodation. The Impact Assessment will be
discussed at the Gateway to Homechoice Project Board Meeting.
Contact has already been made with one Association and they have reported that approx 23 households
will be affected out of a total stock of 197 (11%). Clearly this information is a ‘moving feast’ and is likely
to change. The Association concerned has employed an officer to look at the impact of changes in
Welfare Reform. They have also employed an under-occupation officer to promote mutual exchange
and the tenant incentive scheme, they are also planning to ascertain the type of accommodation
required (1 bed/ 2 bed traditionally the under occupation relates to singles and couples in 2 bed flats).
The officer will go out to the neighbourhoods and pro-actively contact households that will be affected.
They do not intend to take a blanket approach as some tenants may be able to afford the shortfall.
WDC Estate Management Team are currently in the process of identifying those households who will be
affected by the under occupancy rules which come in to effect on 1 April 2013. They have been supplied
with a list, from the housing benefit department, of all WDC tenants who are of working age and in
receipt of housing benefit (this was around 1600 properties). WDC compared this information to the
bedroom size and have made preliminary identification of those tenants who we believe are under
occupying and by what amount. So far around 470 properties will definitely be affected by the under
occupancy rules. There are around a further 145 properties on which we are awaiting further information
from HB on to see whether they will be affected. This means that between 10-13% of all WDC
properties will be affected by the changes. As a rough estimate around 2/3 of those identified have one
bedroom spare and 1/3 have 2 or more bedrooms spare.
13
Management has also been provided with the details of all WDC tenants who will be affected by the
benefits cap. This is around 12 households in the whole District.
Firstly, Tenancy Services (TS) will need to ensure that those households affected are aware that they
will be affected. TS initially hoped that Housing Officers would be able to visit all properties affected but
due to the high number identified they may need to prioritise this. In the first instance they hope to visit
those with 2 or more bedrooms spare as they will be at greater risk and then, time permitting, visit those
with one bedroom spare. At the visit they are hoping to provide basic practical advice on how the
changes will affect our tenants and advice on ways they can limit the impact. TS plan to put together a
leaflet which will provide this and also create a page on the WDC website giving details.
Ultimately, the housing officers are not trained welfare and debt advisors. TS also have to balance their
current workload against the ability to provide advice to this number of households. To this end TS are
looking to put together a business case for an in-house welfare and debt advisor, which we can refer,
affected tenants to. This is in the very early stages and we therefore cannot say whether this will be an
option.
Benefit Cap for families claiming out of work benefits
The cap will apply to the combined income from “out of work” benefits such as:
•
Jobseeker’s Allowance
•
Income Support
•
Employment & Support Allowance (Work component and assessment Phase only)
•
Housing Benefit
•
Child Benefit
•
Child Tax Credit
•
Universal Credit (from October 2013)
•
Maternity Allowance
•
Carer’s Allowance
•
Incapacity Benefit
•
Guardians Allowance
The cap will come into effect in April 2013. The DWP have written to all households affected by the
change. If a household is receiving more than £500 in benefits the adjustment will be made by reducing
the amount of LHA/Housing Benefit that the applicant receives. The total indentified as affected so far in
SCDC area is 41 and WDC area is 93 (These figures could be slightly lower as the initial scans do not
take out those with disabled children that will not actually be affected).
Introduction of Universal Credit (UC)
Universal Credit (UC) will be a single integrated means-tested benefit payable to people of working age
whether in work or not. A joint claim will need to be made if one of a couple. Universal Credit will replace
the following benefits:
•
Child tax credit
•
Housing benefit
•
Income related employment support allowance (ESA)
•
Income based jobseekers allowance (JSA)
14
In order to get UC certain responsibilities need to be met and these will be recorded in a ‘claimant
commitment’. The requirements will depend on a persons circumstances. Sanctions may be imposed
for failure to meet a work – related requirement – hardship payments may be available.
UC will include a standard allowance to cover basic living costs and additional elements will cover the
following:
•
Responsibility for children and young people.
•
Sickness or disability (two elements).
•
Caring responsibilities
Housing Costs - includes rent and mortgage interest payments. Unless the claimant has a
disability, mortgage interest support payments will be limited to two years.
UC will have a taper to reduce benefit at a constant rate as earnings or other income increases.
UC will be limited to £500 week if a lone parent or part of a couple or £350 is single. The cap will not
apply if the claimant or partner or child is receiving Disability Living Allowance or Personal Independence
Payment.
From October 2013 any new claimants will receive UC. From the end of 2015 to end of 2017 all
claimants will have been moved onto UC.
Direct Payment Demonstration Projects
A number of LA and housing association partnerships are working with the Government on changing the
way Housing Benefit (HB) is paid in the social sector. LA’s involved in the Direct Payment Demonstration
Project have started paying HB directly to some social housing tenants, rather than to their landlords.
The project is trialling how tenants can manage monthly payments ahead of the introduction of Universal
Credit from October 2013.
The projects started running in June 2012 and will continue until June 2013. Around 12,000 social
housing tenants across six LA areas are taking part. The six areas taking part are Edinburgh, Oxford,
Shropshire, Southwark, Torfaen and Wakefield.
Learning from the projects is ongoing and is being proactively shared with stakeholders. LAs and
housing associations can access an online Learning Network hosted by the Chartered Institute of
Housing for this.
Early learning from the first month of the project has been:
•
engaging with and assessing the needs of tenants has taken longer than anticipated.
•
Landlords do not have immediate access to the information needed to assess tenants’ readiness for
direct payment.
•
the role of support partners in the project is crucial.
•
there is a general lack of awareness among tenants of wider benefit reforms.
•
developing appropriate safeguards has helped to reassure landlords.
•
Project learning will help inform the development of Universal Credit including how and when it would
be appropriate to consider a payment of housing costs directly to a landlord in the case of arrears.
The projects will also help LA’s and housing associations to prepare for the introduction of Universal
Credit.
The project is actively encouraging LA’s and housing associations to join the Learning Network to find
out more. Over 500 people have already signed up and are benefiting from being part of the network.
15
Social Fund
Social fund, community care grant and crisis loans (other than those made pending payments of
benefits) will cease and are to be replaced by a localised service.
Budgeting loans and crisis loans (made pending payments of benefits) will be replaced by UC ‘payments
on account’.
The Social Fund will cease to exist after April 2013. The funds will be devolved to First Tier Authorities
(SCC). SCC is currently developing a multifaceted scheme (no single entry point) and is currently in
discussion with District and Borough Councils as to how this will be administered etc. There have been
initial discussions with the Suffolk Homeless Officers Group on how this could be delivered at the local
level whilst at the same time ensuring consistency of service. Further information will be provided in due
course. There is a question about whether the resource could be used to pay Rent In Advance? There
are staffing implications and the administrative arrangements and detail still need to be worked through.
WDC and SCDC have agreed to work with SCC on the scheme and its roll out.
Other Benefit Changes
Personal Independence Payment (PIP) – will replace Disability Living Allowance from 2013 for people of
working age.
c)
Reform of Social Housing
The Localism Act 2012 enabled Social Housing Providers to introduce flexible tenancies –in effect the
end of ‘lifetime tenancies’ as a default position. The Localism Act 2011 requires Local Authorities to
publish a strategic tenancy. The Act specifically sets out the scope of a tenancy strategy:
“A local housing authority in England must prepare and publish a strategy (a “tenancy strategy”) setting
out the matters to which the registered providers of social housing for its district are to have regard in
formulating policies relating to:(a)
(b)
(c)
(d)
the kinds of tenancies they grant,
the circumstances in which they will grant a tenancy of a particular kind,
where they grant tenancies for a term certain, the lengths of the terms, and
the circumstances in which they will grant a further tenancy on the coming to an end of an
existing tenancy.”
This strategy refers to flexible and affordable rent tenancies arrangements for Housing Associations.
Local Authorities with their own housing stock, who are part of this agreement, will be developing their
own strategic housing policies to address these flexibilities. The Waveney Tenancy Strategy has been
developed and jointly written by a partnership of nine local authorities in Essex and Suffolk plus
Registered Providers (RPs) that work within the broad geographical area. The ten authorities are:
Babergh DC, Braintree DC, Colchester BC, Ipswich BC, Maldon DC, Mid Suffolk DC, Suffolk Coastal
DC, Tendring DC and Waveney DC. The Tenancy Strategy is provided as a separate document to this
report.
The exit of Flagship Housing in 2011 from the affordable housing programme left a huge vacuum in the
supply of new schemes. A lot of energy has been directed at encouraging new providers into the District
with a view to re-establishing the supply pipeline.
This has proved to be successful with a good response from Orbit and Saffron in particular. Most recent
figures anticipate that 268 new affordable homes will be completed over the next 4/5 years. Work
continues to develop on a further pipeline of affordable homes for future years. Smaller units will be
encouraged as they will assist in planning for the welfare reforms.
The Housing Revenue Account Business Plan also factors in for new and additional stock to be provided
as new Council homes over the first five years of its operation.
16
d)
Discharge of the Statutory Homeless Duty through a Private Rented Sector Offer
The Localism Act 2012 has made significant changes to the way in which Local Authorities can deal with
applications for social housing and homelessness applications under Parts 6 and 7 of the Housing Act
1996. This change came into force in November 2012.
Local Authorities owe applicants who are homeless, eligible for assistance, in priority need and not
intentionally homeless the main housing duty to secure suitable accommodation (unless a referral to
another Local Authority can be made under the local connection provisions). Applicants could previously
remain in temporary accommodation for a long period while they waited for a permanent offer of social
housing.
Please see separate document that sets out the arrangements for discharging the homeless duty into
the private sector.
e)
DCLG Making every contact Count-A joint approach to preventing homelessness
A Ministerial Working Group on Homelessness has set a 10 point challenge to Local Authorities in the
prevention of homelessness. The government has prioritised homelessness prevention and to this end
has passed on £400m of funding for preventing homelessness to local authorities and voluntary sector
partners over this Spending Review period. The key message in the guidance is that if homeless
prevention is to be delivered then agencies must work together to support those at risk of homelessness.
That is a challenge for all of us.
Although the Government Working Group focussed on the most visible aspects of homelessness (Rough
Sleeping) it has now turned its attention up-stream to think about how services can be managed in a way
that prevents all households, regardless of whether they are families, couples, or single people, from
reaching a crisis point where they are faced with homelessness.
Although no new targets or statutory duties have been introduced the Government has highlighted that
there:
•
is a duty to provide advice and assistance to all those who are threatened with homelessness
regardless of whether there is likely to be a statutory duty.
•
Duties in relation to health, care and support mean that local authorities should be engaging with
and co-operating with others and promoting service integration to achieve wider outcomes
1.
The report has a simple aim - to make sure that every contact local agencies make with vulnerable
people and families really counts. It brings together Government commitments to:
tackle troubled childhoods and adolescence - through interventions to turn around the lives
of the most troubled families; and by promoting innovative approaches to youth homelessness.
improve health - including improving outcomes for homeless people with dual drugs / alcohol
and mental health needs; and helping to ensure medical professionals discharging patients
know who to approach for help to meet housing needs.
reduce involvement in crime - through support to the new Police and Crime Commissioners;
improving offender access to private rented sector accommodation; and measures to help
those on short sentences retain their tenancy.
improve skills; employment; and financial advice - through new housing demonstration
projects which help claimants budget and manage rent payments; a commitment to explore a
payment by results approach for those some distance from the labour market; and piloting
community learning trusts.
pioneer social funding for homelessness - through a world first Social Impact Bond for
rough sleepers and support to other local commissioners to turn social investment propositions
into reality.
17
The Government has acknowledged that this is not a problem that can be fixed from the centre
alone. They need local authorities and their partners to bring these commitments to life. So
Government is setting ten local challenges that, if adopted, should lead to all local
homelessness teams delivering a gold standard service and aspiring to the achievements of
the best.
2.
The ten local challenges this report poses to the sector are to: adopt a corporate commitment to prevent homelessness which has buy in across all local
authority services.
actively work in partnership with voluntary sector and other local partners to address support,
education, employment and training needs.
offer a Housing Options prevention service, including written advice, to all clients.
adopt a No Second Night Out model or an effective local alternative.
have housing pathways agreed or in development with each key partner and client group that
includes appropriate accommodation and support.
develop a suitable private rented sector offer for all client groups, including advice and support
to both clients and landlords.
actively engage in preventing mortgage repossessions including through the Mortgage Rescue
Scheme.
have a homelessness strategy which sets out a proactive approach to preventing
homelessness and is reviewed annually so that it is responsive to emerging needs.
not place any young person aged 16 or 17 in Bed and Breakfast accommodation.
not place any families in Bed and Breakfast accommodation unless in an emergency and then
for no longer than 6 weeks.
A key tension is a delivery of service that provides generic housing advice and assistance balanced
against targeted support for more vulnerable households. The challenge will be to find the right balance
between the two given the investment of finite resources that will need to yield longer savings to the
public purse. The average cost of nationally of accommodating a homeless household and providing
rehousing services is £5,300.
18
Chapter 3
Review of the Homeless Strategy 2008-2013
Methodology
•
•
•
•
•
•
•
Review of 2008 Strategy
Achievements and success recognised
Work to be carried forward
Current challenges
Stakeholder Event held on the 12th December
Customer Feedback and Consultation
Needs identified
The changes that have been set out in Chapter 2 present a challenge for any new strategic direction and therefore it is important to review what has been
achieved to date and in turn what hasn’t worked so well. The 2008/13 Strategy set out a number of strategic priorities that were underpinned by 5 action
points. The themes were Housing Advice and Prevention, Support and Settlement, Temporary Accommodation, Enabling, Temporary Accommodation, and
Youth Homelessness.
Housing Advice and Prevention
Temporary Accommodation
1. Provision of a clear and
coordinated pathway to
homelessness advice and
prevention service?
Generic Housing Options
Pathway/specific client groups will have
pathways agreed through local
agreements –i.e. Julian Support.
2. Ensure that the current and
future support provision works to
prevent repeat homelessness.
Still issue of disproportionate
percentage of intentional homeless
cases-linked in with ASB Unit.
Landlords may want to send a strong
message out for tenants who won’t paywith little room for negotiation-in
preparation for Universal Credit etc
Not effective as mediation cannot be
used as a ‘quick fix’ and requires both
parties to agree.
3. Establish a mediation scheme
across the sub region.
1. Meeting Communities and Local
Government Department target in
temporary accommodation (10
Households in TA) –CLG target 68
households households).
2. Ensuring all temporary
accommodation provided meets the
standards and guidelines for
temporary accommodation
Procurement.
Achieved.
3. Reducing the time spent in TA
28.8 weeks (05/06) 15 weeks
(11/12).
Likely to be undermined because of
potential increase in homelessness
(households will have to wait longer
to be housed) but could be offset by
being able to discharge the duty into
the private sector.
Random inspection by the Private
Sector Housing Enforcement Teamawaiting to procure TA Pending DWP
position on HB Subsidy.
19
4. Advertising services to ensure
that people are aware of the
services available to help them,
including developing a Housing
Options website for the SubRegion.
5. Continually review the need for
advice and prevention services and
take appropriate action to meet any
newly arising or changing needs.
This will be achieved through the
Gateway to Homechoice web –based
system (integration of
Employment/Housing and Advice being
integrated more closely-due to go live
early in 2013.
Achieved- through working with new
partners to meet new demands i.e. In
House CAB Advisor.
Support and Resettlement
4. Reduction in the number of
intentionally homeless households.
As above- re Advice and Prevention
Strategy.
5. Reduce the no of single people
in B&B.
No’s are increasing- specifically
households with mental health
issues. Under 35s SRA.
Private Sector
1. Review hostel provision and
access to ensure a common
gateway and links between
different service provisions.
Lead authority Suffolk County Councilhost web based matching service
provider (Capita) to be in place early
2013 + Locality arrangements in place.
1. Actively work to bring empty
properties back into use in the Sub
region.
2. Ensure provision of resettlement
move-on toward planned
independent living.
Lead authority Suffolk County Council
Dedicated County wide Resettlement
resource through SCC.
3. Ensure proper comprehensive
provision of sub-regional floating
support service.
The Sub –Regional Partnership of
GYBC and WDC is no longer operating
(two separate administering authorities
(Norfolk and Suffolk CC).
2. Set up a private sector leasing
scheme as part of a tool kit of
opportunities to support action
point.
3. Promote the private sector as
another housing option.
4. Create befriending and
Most Supported Accommodation
mentoring schemes as a third stage Schemes have services in place- but
in homelessness prevention and
will need to conduct a survey on this.
resettlement.
4. Improve the standard of
properties in the private sector.
08/09 42 properties then an average
of 10 per year. Utilisation of the New
Homes Bonus at 10 properties per
year. Funding secure through the
Empty Homes Programme 12/13
WDC/Orwell Grant and Lease
Scheme and In-House Scheme via
tenancy services. Both schemes to
have Housing Options nominations.
Housing Action-have folded but other
smaller PSL Schemes in Place i.e.
Genesis. These will be used very
sparingly in future.
Homefinders and Bond Scheme have
been major strands to Homeless
Prevention but not for households
accepted as statutory homeless. The
localism Act 2012 now changes this
position but there are issues relating
to affordability.
Above schemes are linked with
Private Sector inspections + in-house
procedure for reporting disrepair.
20
5. Increase accommodation and
support services for all specialist
services.
Lead authority SCC balance between
adult and young people’s
accommodation has been changed to
reflect demand. Pilot re Alcohol
Recovery Services has now been
mainstreamed. Still issue applicants
with behavioural issues i.e. Autism.
This will be difficult to achieve in the
face of significantly reduced revenue
funding from SCC.
Enabling
1. Deliver targets for developing
units of affordable accommodation.
Deliver S106 targets for affordable
housing on each site.
5. Work with landlords to ensure
that they follow good practice.
Accreditation Scheme-decision on
whether to become a member of the
Haven Gateway Accreditation
Scheme to still be decided. This is not
likely to be at cost to the Council but
there is a question about it’s viability
as Landlords will be charged for
joining the scheme. Reaction from
the Eastern Landlords Association
has been very cool.
Youth Homelessness
Rather than set a target in the current
climate, it is more useful to aim to
maximise the number of Affordable
Homes being developed in the District.
Whilst the market for S106 properties
was very difficult 12 months ago, there
is now a renewed appetite to purchase
these properties by Housing
Associations and the HRA will look to
acquire some in certain locations.
Identify potential sites to deliver the This work has concentrated on sites
number of affordable housing units within the Council’s HRA holdings and
needed.
has shown that a number of them have
potential subject to Planning status.
Investigate the potential to
Size criteria rules in social housing may
encourage people under occupying give more impetus to households down
social rented housing to move to
sizing but will also present significant
smaller accommodation and
risk with regard to homelessness due to
encourage households to move into rent arrears.
homeownership where affordable.
1. Review of existing services and
the way these operate in relation to
each other and work towards
provision to meet gaps in services.
2. Supported Lodgings and Night
Stop provision. These services
need to be developed and
extended.
Changes in primary responsibility
reaffirmed with Southwark ruling- still
issue of teenage pregnancies and
emerging demand fro young people
with Behaviour Problems.
Supported Lodgings is now funded
through CYPS. Crash pad in place at
St Johns.
3. Develop a mediation service.
Developed but little take up.
4. Develop services that provide
support and enable access to
training.
No activity on this but supported
housing schemes have developed this
service area to fit their own client
needs.
21
Maximise the capital available to
deliver new affordable
accommodation targets.
The exit of Flagship Housing in 2011
from the affordable housing programme
left a huge vacuum in the supply of new
schemes. It is pleasing to note that
since then, several other players have
entered the District and have taken up
where Flagship left off.
5. Develop a local youth protocol
involving early intervention.
Under review.
All Councils have been required to
publish a tenancy strategy that will help
to address the issue of affordable
tenancies. The G2H Web based system
is being updated to reflect this new type
of tenancy. Most likely impact on
affordability relates to larger sized
properties and the more expensive
market towns. Issue of where the
funding is invested (cross border).
22
Caseload analysis
Housing Options offer three Housing Options Surgeries a week as well as a telephone advice line. This
arrangement offers a flexible open door approach with more detailed casework being followed up
through a second interview. Each Housing Options Advisor leads on a specific area of service delivery
i.e. single homeless, domestic violence, Mortgage Rescue. Homechoice also offer two surgeries per
week and applications can be completed on line or with assistance via a telephone call back service.
Caseload
Waveney District Council
2010/11
2011/12
Jan-Dec 12
No of people contacting Housing Options
2219
3100
3488 (12%)
Face to Face
1219
1380
1771
Generic Tel Advice of which
1000
1720
1717
Homeless queries
105
110
120
Housing Advice/Prevention casework
interventions
257
218
245 (12%)
Number of homelessness applications
123
138
101
Number of households accepted as homeless
64
66
33
Number of families found intentionally
homeless
48
54
49
Number not in priority need
3
8
4
Number not homeless
5
13
15
Statistics showing main causes of homelessness
Main cause of homelessness
Waveney District Council
Jan-Dec 12
2010/11
2011/12
Parents no longer willing to accommodate
8
18
8
Other relatives unwilling to accommodate
10
18
4
End of an assured shorthold tenancy
19
16
7
Domestic violence1
1
6
2
Mortgage Arrears
2
7
3
Snapshot of TA
18
20
6
23
Priority Need Categories
Priority need
Waveney District Council
Jan-Dec 12
2010/11
2011/12
Families with dependent children or a
pregnancy
42
59
19 (57%)
Applicants aged 16/17
0
0
0
Physically disabled
9
16
7 (33%)
Mental illness
8
11
4
Customer Feedback April/May/June 12
What did your query relate to?
How did you make contact with our
0%
Housing Options team?
8%
Housing Opt ions
0%
Issues around
Homelessness
Temporary
Accommodation
Ot her Council
Services
Ot her
0%
46%
54%
By Phone
In Person
92%
Was your issue treated with with courtesy
Were you prov ided with the help that
and professionalism?
you needed?
yes
3%
no
18%
yes
no
82%
97%
How would you rate the serv ice that you
Appear knowledgeable?
Very Good
receiv ed?
0%
5%
Good
0%
Average
No
Poor
12 %
38%
Very Poor
57%
Ye s
88%
24
…and finally are there any further Comments you would like to add?
keep up the good customer service! Fantastic!
Happy with customer services but not with Homechoice, said that HC
would not let her have the property she wanted - feedback from HC, the
lady had bid on a property outside of her requirements so was therefore
refused (she had medical needs)
Very happy with service
Thought the Homechoice system was disgusting - neighbours were
complaining about her children and the noise from her house. (....Couldn't
hear all of her complaints as the children were screaming and crying).
The Housing Options Team has managed to sustain its performance levels on Housing Advice and
Prevention and in particular has achieved the following:
•
Winner of WDC/SCDC Customer
Services Award 2011
•
Surpassed the DCLG TA target for
December 2010
•
Significant reduction in the use of B&B
and associated expenditure with
reinvestment back into prevention
assistance and intervention (Spend to
Save)
•
76% of all households who consider
themselves as homeless or threatened
with homelessness have been assisted
to remain in their accommodation or
provided with assistance to access
suitable alternative accommodation
•
Membership of the Gateway to
Homechoice Partnership CBL
Allocation Scheme in January 2011.
Both Front-facing Teams of
Homechoice and Housing Options are
based in the same building and this
itself engenders effective working i.e.
Social Welfare Panel, Sharing
information on common cases
•
Working closely with private landlords,
RPs and the Private Sector Housing
Team to enable applicants to access the
private rented sector
•
Good Partnership Working with
Supporting People i.e. re
Commissioning, and engagement with
various service development initiatives
i.e. Coordination Service, STARS
Service, MARAC. Providing assistance
to non statutory homeless applicants
through various schemes i.e Solo
Lodgings
•
Well established working relationship
between the Housing Benefits and
Customer Services Department, InHouse CAB Money Advice Worker and
Housing Options. This has resulted in
the DHP being allocated to applicants
that ‘can’t pay as opposed to ‘won’t
pay’.
•
Range of Housing Options and
Interventions offered by working with
the following organisations:
25
Rainbow Credit Union Homefinder Savings and Loans Scheme and Home-Loan Plus (to clear
Mortgage and Rent Arrears up to £3,000)
Mortgage Rescue Scheme in partnership with NE Suffolk CAB, Orbit Housing and Waveney
District Council Tenancy Services
In-House CAB Money Advice Worker
Julian Support-Acute Services Link Worker
Solo Lodgings Scheme- for 18+ single homeless
YMCA Supported Lodgings Scheme
St Johns Bond Scheme
Waveney Assisting Rough Sleepers Partnership
Referral routes into Coppice Court, Haven Court Avenue Mansions, Trafalgar Street, Jasmine
Green, and Hope House, Genesis PSL Scheme
Housing Options Nomination Rights to Empty Properties that have been brought back into use
WDC/Access Community Trust Crash Pad
Homeless Prevention Fund
Current plans for the remainder of 2013
The current Service Plan and accompanying risk register is detailed in Appendix 5.
There have been however some service gaps and these are as follows:
•
Home Visits are not carried out as a matter of course in cases of family and friend eviction. This
particular cause of homelessness has always dominated the statistics but this particular cause of
homelessness has increased dramatically over the last year. Given the limited staffing resources it
is very difficult to operate in a ‘trouble shooting’ capacity and mediation does not offer a long term
solution to issues around family breakdown especially when the intervention has been refused. At
present an Officer has been assigned to carry out Home Visits and we will keep a watching eye on
whether this will assist in homelessness prevention.
•
Lack of Outreach Services in the Market Towns and surrounding rural areas. Only 2% of the
Advice and Prevention Caseload (including homelessness) is made up from applicants from these
areas and because of this there would have to be some consideration regarding best use of
resources. At present if an applicant is unable to come into Lowestoft a Home Visit will be arranged
or an appointment will be set up at one of the local offices.
•
Protocols need to be reviewed as some of the arrangements are not working in practice. In
particular there is still no protocol that has been agreed on intentional homeless families. The Joint
Protocol on Homeless 16 and 17 Year Olds is currently being reviewed by the SCC Young Persons
Housing Action Group with an event being planned in December. WDC participates in this group.
No protocols in place for ex-offenders (patchwork of responses).
Current Service Gaps and challenges:
The service is experiencing an increased number of ‘walk- ins’ usually because of the following:
•
Service Users have been excluded from supported accommodation/areas due to substance/
alcohol/rent arrears/violence and anti social behaviour leading to a breach of tenancy Applicants
who are arrested and have nowhere to be released to Hidden homeless/sofa surfing who may have
‘burnt their bridges or outstayed their welcome Parental evictions on a Friday afternoon -16.30 pm.
•
Increase in the number of single people with dual diagnosis issues that have been banned from
specific areas and cannot return home Requests for Emergency Relief (Food and Fuel).
26
•
Temporary Accommodation. There is a high risk to this provision as there is still doesn’t seem to be
any resolution to household in temporary accommodation being treated in the same way as people
in supported housing. There are also ongoing discussions nationally regarding the payment of the
management fee through the DHP pot. This issue stills need to be concluded but is likely that the
£60 management fee will be reduced to £40 per week.
•
Where cases have been referred to supported accommodation the needs have been assessed as
too high for the service to meet. Any allocation of housing has to be sustainable or else the person
will come back as repeat homeless.
•
Linking assistance with Homeless Households to assistance with employment and training. This is
been run as a pilot with Access Community Trust Bond Scheme. Please see Appendix 4 for report.
Waveney has also volunteered to be part of an online advice and assistance Triage pilot linked into
Gateway to Homechoice.
•
Whatever challenges have presented the service has responded and developed appropriate
solutions/interventions. It is difficult to say with any confidence that the above achievements will be
sustained given the magnitude of change and its resulting impact on homelessness. Inside
Housing have described the above changes as a ‘perfect storm’ Given that the Service has to
operate within very finite resources and the Government’s expectations re the 10 point challenge
consideration will need to be given to the Service’s future strategic priorities.
Meeting of the Homelessness Review Group
The Review Group has had two meetings and both meetings covered the Review of 2008-13 Strategic
themes and the Homeless Prevention Strategy Health Check.
Homeless Prevention Strategy Health Check
Although the DCLG Self Assessment Toolkit was published in September 2006 it still provides a focus
for the review of Homeless Strategies. The results of the health check have identified gaps which were
identified as a point of discussion at the stakeholder event. The event was held on the 4th December
2012 (Council Chamber). The agreed strategic priority action plans also reflect the 10 point challenge of
Central Government. The Review Group agreed some very broad overarching strategic priorities which
are underpinned by SMART Action Plans. The Stakeholder Event focussed on future actions linked to
the agreed strategic priorities which will be covered further on in this document.
27
Chapter 4 – Strategic/Operational Priorities
1.
Welfare reform
The government’s fuel poverty advisory group has made the claim that 300,000 homes were pushed into
fuel poverty last Christmas. The group has also warned that unless the government tackles the problem
of people being forced to choose between heating and eating, 9 million households could fall into fuel
poverty by 2016. With Welfare reforms reducing people’s income and other rising household costs the
issue of extreme deprivation has never been more serious. For example the latest DWP scan identifies
41 affected families in Waveney area with an average loss of £63.84 per week. The majority of affected
have 4 or more children. The largest family affected has 7 children. 15 of the affected families are living
in the Social rented sector, 10 of which are living in Waveney Council Homes. The remaining 26 are
living in the Private Rented sector.
The Welfare Reforms that will still take effect include the following: -
Welfare Changes
Likely Impact on Services
Social sector size criteria– 50,000 in East of
England-approx 900 households in Waveney.
•
Predict increased overcrowding.
•
A quarter of households affected are likely
to approach LA as homeless. In the
Waveney context this could mean a
minimum of 250 households that will
approach the Council.
•
Universal Credit/Benefit Cap may be an
issue for families placed in TA and B&B
because of the maximum cap of £500 for
families and housing costs not being
protected through direct payments to the
provider.
•
Additional DHP payments will not
compensate for all HB cuts.
•
Families affected by Cap unable to pay
their rent in appropriate sized and
affordable housing. Ethos of Cap to make
work pay.
•
Unlikely that assisting with downsizing will
combat the issue as probable that the
families will be in the right sized properties
already.
•
Landlords refuse to renew tenancies.
•
Lack of one and two bedroom properties.
Link to people trying to downsize in social
housing because of the size criteria.
Overall benefit cap for families and single
households.
LHA rates linked to CPI, only updated on an
annual basis.
Further non-dependant deduction rises.
Universal Credit, landlords both private and social
predict that rent arrears are likely to increase.
Council Tax changes: Council Tax Benefits will be
abolished from April 2013.
On average 20 applicants for every job in Q1
2012.
28
Key Government Challenges
The DCLG continues to recognise the importance of preventing homelessness and set out 10 “Local
Authority Challenges” in the recently published “Making Every Contact Count: A Joint Approach to
Preventing Homelessness”.
The key local authority challenges that are applicable in relation to welfare reform are:
actively work in partnership with voluntary sector and other local partners to address support,
education, employment and training needs.
actively engage in preventing mortgage repossessions including through the Mortgage Rescue
Scheme.
have a homelessness strategy which sets out a proactive approach to preventing homelessness
and is reviewed annually so that it is responsive to emerging needs.
WDC Welfare Reform Key Strategic Priorities
1.
In partnership with WDC Revenues and Benefits Prioritise DHP budget.
2.
Act proactively to identify those that are affected/encourage households to apply for DHP.
3.
Intensive Employment Support/Link to Employment and Training Link cases to Money Advice and
Other relevant Support Groups (signposting) Partnership working on Priority Debts.
4.
Continue working with Private Sector Landlords re direct payments and homeless prevention
measures.
5.
Target most vulnerable households first in liaison with specialist agencies/partners.
6.
Work in Partnership with Social Landlords and Third Sector Partners to facilitate downsizing or
remaining in the home i.e. rent a room.
2.
Partnership Working
At the time the 2008/13 Strategy was drafted the current global economic crisis was still only just on the
horizon, and passing reference was made to preparing for such an eventuality. The crisis has impacted
on many households ability to maintain their accommodation. The Department of Communities and
Local Government has developed a number of funding initiatives and guidance on preparing for the
increased demand on housing advice, prevention and housing options services. WDC has used this
funding for joint initiatives including the in house CAB money advice worker which has been really
effective in enabling households to sustain their accommodation. The action plan sets out how we will
capture the emerging demand for housing related services and what plans need to be put in place to
meet any of these changing demands. The above Government interventions are just one aspect of
homelessness prevention and it has strongly encouraged local authorities to take collaborative action
with money advice services, housing associations and private landlords to prevent repossessions.
Key Government Challenges
The challenges that are applicable to Partnership Working are as follows:
adopt a corporate commitment to prevent homelessness which has buy in across all local authority
services.
actively work in partnership with voluntary sector and other local partners to address support,
education, employment and training needs.
adopt a No Second Night Out model or an effective local alternative.
have housing pathways agreed or in development with each key partner and client group that
includes appropriate accommodation and support.
have a homelessness strategy which sets out a proactive approach to preventing homelessness
and is reviewed annually so that it is responsive to emerging needs.
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WDC Key Strategic Priorities
1.
Review all Joint Protocols to ensure they are fit for purpose and to identifying gaps.
2.
Participation in Multi-agency Case Conferences, Meetings and Planning Groups.
3.
Develop joint working with partner agencies so there is a named homelessness contact or
champion within LA’ services and within each key partner agencies.
4.
Work with local Health Services to develop partnership working and contribute to integrated
working relationships that prevent homelessness and improve the health and wellbeing of local
people.
Homelessness Prevention
Unfortunately a high proportion of households are not engaging earlier enough with Housing Advice and
Options to address their impending homelessness. The current arrangement is that Registered Providers
/WDC Tenancy Services will notify the Council when notice seeking possession is actioned. Housing
Options will invite the household to a Housing Advice interview so that prevention interventions can be
explored. Invariably some households wait until the ‘11th hour’ before engaging with the Council in the
mistaken belief that the Council will always have to rehouse them. The Council also continues to receive
applications linked to family evictions. An increasing trend is for applicants to move back with their
families who then proceed to evict. The Council also receives a number of applications from people who
‘have burnt their bridges’ because of their own chaotic behaviour which is fuelled by issues relating to
anti-social behaviour which is often linked to offending and substance misuse.
Key Government Challenges
The key challenges that are applicable to advice and prevention are:
actively work in partnership with voluntary sector and other local partners to address support,
education, employment and training needs.
offer a Housing Options prevention service, including written advice, to all clients.
actively engage in preventing mortgage repossessions including through the Mortgage Rescue
Scheme.
Adopt a corporate commitment to prevent homelessness which has buying across all Local
Authorities services.
Have a Homelessness Strategy which sets out a proactive approach to preventing homelessness
and is reviewed annually so it is responsive to emerging needs.
WDC Housing Advice Key Strategic Priorities
1.
Plan for increased demand for housing advice and options to address limited capacity including
further development of triage approach in partnership with Gateway to Homechoice.
2.
To respond to changes in housing need as a result of the impact of housing and welfare reformincluding review of service delivery/capacity.
3.
To develop more effective joint working and referral processes to achieve earlier intervention-i.e.
Homechoice, Registered Providers, Statutory and Voluntary Services including reviews of existing
protocols, SLA’s. and the introduction of protocols where gaps have been identified i.e. Prison
Discharges.
4.
Joint work across a range of partnerships including tackling worklessness as part of the Housing
Options agenda.
5.
To continue to offer a Housing Option prevention service including written advice to all clients.
6.
To continue to operate schemes that address the prevention or relief of homelessness.
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4.
Families and Children
According to Anthony Douglas (Chief Executive of CAFFCAS- which safeguards the welfare of children
involved in family court proceedings) record numbers of children are likely to be taken away from their
families this year as parents struggle to cope with the effects of public sector cuts and benefits changes.
He also goes on to predict a leap in child neglect cases as thousands of struggling families are pushed
out over the financial edge over the coming months. Cases of cumulative long term neglect have also
been increasing with the removal of small but vital services such as play schemes and new mothers
groups.
Families are already struggling to pay for food, fuel, rent and other basics. Their budgets are likely to be
further squeezed with further benefit caps. The above economic situation affecting families will inevitably
impact on homelessness and we are likely to see a sharp increase as the welfare changes start to take
effect.
At the local level demand on the housing advice and options service are likely to be impacted by the
following:
•
Predict increased overcrowding.
•
A quarter of households affected are likely to approach LA as homeless. In the Waveney context
this could mean a minimum of 250 households that will approach the Council.
•
Universal Credit/Benefit Cap may be an issue for families placed in TA and B&B because of the
maximum cap of £500 for families and housing costs not being protected through direct payments
to the provider.
•
Additional DHP payments will not compensate for all HB cuts.
•
Families affected by Cap unable to pay their rent in appropriate sized and affordable housing.
•
The Ethos of the Cap is to make work pay-what role can housing options play in bringing about a
change given the levels of unemployment?
•
Unlikely that assisting with downsizing will combat the issue as families will be in the right sized
properties already.
•
Lack of one and two bedroom properties. The demand on the Housing register is predominantly
for one and two bed room properties.
Key Local Authority Challenges
The key challenges that are applicable to families and children are:
actively work in partnership with voluntary sector and other local partners to address support,
education, employment and training needs.
have housing pathways agreed or in development with each key partner and client group that
includes appropriate accommodation and support.
develop a suitable private rented sector offer for all client groups, including advice and support to
both clients and landlords.
actively engage in preventing mortgage repossessions including through the Mortgage Rescue
Scheme.
not place any young person aged 16 or 17 in Bed and Breakfast accommodation.
not place any families in Bed and Breakfast accommodation unless in an emergency and then for
no longer than 6 weeks.
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WDC Children and families Key Strategic Priorities
1.
Act proactively to identify those that are affected/encourage households to apply for DHP.
2.
To work with agencies that offer intensive Employment Support/Link to Employment and Training
Agencies.
3.
Link cases to Money Advice and Other relevant Support Groups (signposting).
4.
Target most vulnerable households first in partnership with statutory and voluntary agencies.
5.
Ensure provision is in place for families that need local assistance post social fund expiry.
5.
Non Priority Single Homeless
Unfortunately the numbers of single homeless households will inevitably increase once the full impact of
ALL the benefits changes have taken affect. There appears to be a significant increase amongst all the
age groups, including repeat rough sleepers, many of which have quite complex needs. The
government is committed to ending all rough sleeping and has provided resources to Norfolk and
Waveney Housing Authorities to roll out the single homeless project. A key concern by both central and
local govt is that today’s sofa surfers and ‘hidden homeless’ do not become tomorrow’s entrenched
rough sleepers. The Council identified 8 rough sleepers on the rough sleeper estimate conducted in
November 2012 which compares to 3 Rough Sleepers for the previous year.
The percentage of single people seeking housing advice and assistance is approximately 45% of the
total number. (16-20 applicants per week), this is likely to increase to at least 30 cases per week, which
will put pressure on the capacity to deliver the service effectively. The Council will continue to employ a
specialist single homeless housing options advice worker who will continue to work with specialist
support agencies re appropriate housing pathways i.e. Avenue Mansions.
Key Local Authority Challenges
actively work in partnership with voluntary sector and other local partners to address support,
education, employment and training needs.
offer a Housing Options prevention service, including written advice, to all clients.
adopt a No Second Night Out model or an effective local alternative.
have housing pathways agreed or in development with each key partner and client group that
includes appropriate accommodation and support.
develop a suitable private rented sector offer for all client groups, including advice and support to
both clients and landlords.
have a homelessness strategy which sets out a proactive approach to preventing homelessness
and is reviewed annually so that it is responsive to emerging needs.
not place any young person aged 16 or 17 in Bed and Breakfast accommodation.
WDC Single Homelessness Key Strategic Priorities
1.
Deliver action plan for Norfolk and Waveney Single Homeless project.
2.
Work with strategic partners to develop a shared housing model and emergency beds for rough
sleepers.
3.
Delivery of NSNO Model or equivalent in Waveney including the development of a reconnections
model.
4.
Working in partnership with stakeholders to increase the housing advice and provision for single
homeless households.
5.
Addressing the Housing Needs of People with long term complex needs.
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6.
Accommodation
Private Sector
Waveney District Council has operated a number of successful private rented access schemes over the
duration of the 2008-13 homeless strategy. The Housing Options Team work closely with the Private
Sector Housing Team through housing nomination rights to empty homes that have been brought back
into use with the assistance of empty homes funding. The team also works with the private sector
housing team to ensure that any private sector rented offer meets the suitability order when addressing
housing standards. The approach has always been not to put all ‘our eggs all in one basket’ in order to
engender a diversity of provision. The future arrangements for delivering these schemes will also be
informed by Section 148 and 149 of the Localism Act 2011, which gives a power to Local Authorities to
discharge its statutory duty with a private rented sector offer. The Council have also worked with Solo
Housing to widen the housing options for single homeless people who are under the age of 35.
Social Housing
WDC Gateway to Homechoice CBL scheme is also located within Strategic Housing and this close
functional link with Housing Options has been very effective in terms of homelessness prevention when
a private rented sector offer has not been appropriate i.e. physical disabilities, limited supply of
affordable private rented accommodation in the market towns.
The Council is also a member of a Mortgage Rescue Syndicate (Orbit Housing) which has resulted in
properties being purchased by WDC (with grant from the Homes and Community Agency). Cases are
referred by Housing Options as part of the mortgage rescue scheme.
Emergency and Temporary Accommodation
The Council has also worked in partnership with Private Sector Landlords, Registered Providers and
WDC Tenancy Services to develop emergency and move-on accommodation which has also had a
positive impact in the reduction of B&B and emergency accommodation and the development of
appropriate pathways.
Supported Accommodation
Suffolk County Council Supporting People continue to fund Short Term Supported Accommodation
Schemes in Waveney for both single people and families with tenancy support needs. These schemes
have been invaluable when addressing repeat homelessness for our more vulnerable households. WDC
has also participated in the SCC SP planned Coordination Service for applicants wishing to be referred
to Supported Accommodation through a single gateway.
Although the Homeless Strategy will need to reflect the new legislative changes and welfare reform, the
Housing Advice and Options Service will continue to deliver schemes that are effective and already in
place. For example, the council already has a policy in place to support and guide decisions on
discharging the statutory homeless duty with a private sector offer along with a No Second Night Out
Protocol with local agencies (Waveney Assisting Rough Sleepers Partnership and multi agency case
conferencing for single people who are hard to house).
Key Local Authority Challenges
The key challenges that are applicable to accommodation are:
Adopt a No Second Night Out model or an effective local alternative.
Develop a suitable private rented sector offer for all client groups, including advice and support to
both clients and landlords.
Not place any families in Bed and Breakfast accommodation unless in an emergency and then for
no longer than 6.
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Have housing pathways agreed or in development with each key partner and client group that
includes appropriate accommodation and support.
Not place any young person aged 16 or 17 in Bed and Breakfast accommodation.
WDC Key Accommodation Strategic Priorities
1.
To enable local services to develop a suitable private rented sector offer for all client groups,
including advice and support to both clients and landlords, including shared housing.
2.
To expand the In-House PSL Temporary Accommodation Scheme to address increases in
homelessness and to keep within the aim of not placing families in B&B for 6 weeks.
3.
Develop local approaches to recruiting private landlords to work with local services (including
assistance if appropriate with delivering the Greater Haven Gateway Accreditation Scheme).
4.
Consult and involve local landlords and their agents in developing local services strategies and
plans and consider whether there may be a need for a strategic plan to inform future working
arrangements with the Private Rented sector.
5.
To participate in G2H Review arrangements of the recently revised Allocations Policy and in
particular the impact on addressing over and under occupation.
6.
Explore the use of low demand Council accommodation (Sheltered Schemes) for applicants with
specific needs i.e. Learning Difficulties.
MONITORING AND REVIEW OF THE HOMELESS ACTION PLANS
Waveney District Council will report on progress on the action plans to the WDC Homeless Forum who
will meet every quarter. The Forum will also review trends in homelessness using the Department of
Communities and Local Government (CLG) Homelessness Return for the same periods. This
information will be used to revise the action plans and update the strategy in line with emerging need
and reutilisation of resources. The information will cover both homeless prevention and statutory
homeless activity including expenditure on emergency and temporary accommodation.
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CHAPTER 5 - Conclusion
This strategy shows the extent of homelessness in the sub region and the impact that this has on
households that cannot meet their own needs. It also shows the high level of vulnerability of many
people who become homeless. The 2007 Sub regional Housing Market Assessment showed how far we
are from meeting the housing needs of households, and potential households, with a shortfall of 225
units per annum for Waveney of affordable housing. Unfortunately the supply of new affordable housing
cannot keep pace with the population growth and the formation of new households in Waveney. This
situation presents a challenge to the Local Authority when attempting to stem the increasing trend of
homelessness.
In order to access the resources to achieve these increases in housing options Waveney District Council
needs to work together to access resources to increase the affordable housing options and affordable
housing stock and develop specialist services that will meet the needs of vulnerable people.
The collection of information about people who join the housing register and use all homeless services,
welfare rights, housing related support and related services is improving. This information collected will
include ethnicity, housing history, health and social factors making it possible to target groups and
individuals who have a housing history that makes them more likely to become homeless or who needs
specialist accommodation options or housing related support.
This can only be achieved by taking a proactive approach to the prevention of homelessness and
reduced use of temporary accommodation including working with statutory and voluntary service
providers to develop a package of housing options to support this approach.
The services that homeless and potentially homeless households need to be able to access includes
training and education as well as services such as welfare rights, debt advice and befriending schemes
to support long-term independence.
All of this can only be achieved if all the actions identified in this strategy and set out in the Monitoring
and Action Plan are delivered through new services and service changes that are sustainable in the long
term.
Achieving the aims set out in this Strategy, and the Strategy itself could not have been achieved without
the support of the many partners in the voluntary, housing association and statutory services and their
support will continue to be needed to deliver many of the actions identified.
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Glossary
Choice Based Lettings
A scheme that allows housing applicants to bid for properties of their choice.
Applicant’s needs are assessed and they are place in a band with people of
similar levels of need. The successful applicant has the highest need and the
longest waiting time. Information about the number of bids and the band and
waiting time for the successful applicant published. For more information
about Gateway to Homechoice contact 01502 523524.
Decent Home
Standard
The Decent Home Standard is designed to ensure that social rented housing
meets a minimum standard by 2010 and that private sector housing occupied
by vulnerable people also meets the standard.
Floating support
This is support that can be provided when it is needed to people regardless of
the tenure of housing they are living in and when the support is no longer
needed it can be moved to another person in need of support. It is particularly
effective for people moving into independent accommodation either for the
first time or after a period without independent housing or where people have
a crisis in their lives and need support. It is a key tool in the prevention of
homelessness.
Hostel
Short term accommodation usually used in an emergency. They have staff to
support residents and are usually provided for the use of a specified client
group. This client group may be wide, e.g. single homeless people, or may
cater for a specialist group, e.g. single people who misuse alcohol.
Household
One or more people who would normally be expected to live together.
Houses in Multiple
Occupation HMO
HMOs is generally accommodation where more than one household lives and
when it meets certain other conditions set out in legislation issued in
2004.Local Authorities have to register all privately rented HMOs of 3 or more
stories occupied by 5 or more people. Some housing is exempt or covered by
other regulations depending on its use or ownership.
Homes and
Communities Agency
Administers the capital grant programme for 2011-2015.
looks very uncertain after 2015.
Housing Market
Assessment
Is carried out using guidance issued by the Government. It carries out an
assessment of issues affecting supply and demand for housing across all
tenures. It also has to identify links with other areas where travel, house prices
and demand exert an influence on the provision of housing of all tenures. The
Assessment includes a calculation to identify the amount of affordable housing
that is required. The Assessment is not just a tool for delivery of social and
affordable housing but the wider planning and economic planning processes.
Housing options
A range of interventions to enable a household to remain in their own home.
The programme
Social and Private Sector Landlords that are registered social landlords i.e.
Housing Association.
36
S106 or planning gain
An agreement reached as part of the negotiations for planning permission for
residential, industrial or commercial developments for the provision of
infrastructure or facilities that either facilitate the development or provide
facilities for the community. Where residential accommodation is being
developed this is usually the provision of affordable housing on the
development or a sum of money to develop affordable housing on another site
in the area.
S106 agreements are subject to negotiations and developers may make a
case for not making a contribution to provide housing, or other provisions that
are to be funded through the s106 agreement may take precedence.
Statutory Duty
The duty on local housing authorities to make arrangements to accommodate
households who are either found to be owed a duty under the tests set out in
the Homelessness Act and Guidance or if it appears that there may be a duty
but further investigations need to be carried out.
Supported housing
Housing that has staff to provide a range of support to residents who are
unable through vulnerability to manage without support. This can be solely
housing related support or it can include specialist services and care.
Supporting People
This is a funding scheme to pay for housing related support. When
Supporting People was set up it brought together a number of funding
schemes. It regulates delivery of services and produces a strategy that sets
out local need and how services will be changed or commissioned to meet
identified needs.
37