Neighbourhood Services
Homelessness
Strategy
June 2003
CONTENTS
1.
Purpose and Vision
2.
Partnership Working
3.
Consultation
4.
The Homelessness Review
5.
Improving Homelessness Prevention Advice,
Information Services
6.
Improving Support Services
7. Temporary Accommodation
8. Reducing the Use of B&B
9. Accessing Permanent Accommodation
10. Making Use of Private Sector Housing
11. Improving Existing Services
12. Resourcing the Strategy
13. Monitoring and Evaluation
14. Action Plan
15. Appendices
Appendix 1 Action Plan
Appendix 2 Service Map
1.
Purpose and Vision
Under the Homelessness Act 2002 councils are required to undertake a review of homelessness
in their area and produce a homelessness strategy to set out how homelessness will be
addressed. This Strategy aims to deal with underlying issues and themes, which impact on all
homelessness groups and those at risk of becoming homeless in Milton Keynes. In order to
implement real changes, the strategy requires effective joint working across a wide range of
agencies and organisations. The action plan will set out our future intentions. Above all the
strategy focuses upon the service user: the homeless household. This strategy aims to make a
positive difference to their lives.
In addition to producing the Homelessness Strategy, the Office for the Deputy Prime Minister
requires all housing authorities to stop the use of bed and breakfast accommodation for all
families, except in an emergency, by April 2004.
A further Government target requires a 2/3rds reduction in Rough Sleeping from 1998 levels or
lower.
The Government’s Homelessness Directorate has proposed that Councils should set additional
targets to be considered for additional funding. Consideration is to be given to setting targets at
least one of the following areas:
Reduced levels of repeat homelessness
Reduced levels of homelessness against the main causes
Reduced inappropriate use of temporary accommodation
This Strategy will set out steps that need to be taken to achieve these testing targets.
The Strategy is not solely about those homeless households that the Council is required to
accommodate. This strategy includes:
 Families with children, couples and single people.
 People with a “priority need” and “non-priority” homeless people
 Intentionally homeless people
 People at risk of homelessness
AIMS
The aims of this strategy are:
 To prevent homelessness
 To secure sufficient accommodation that is and will be available to meet the needs of
people in Milton Keynes who are, or may become homeless.
 To secure the satisfactory provision of support services for people who may become
homeless or who may have been homeless and need support to stop them from
becoming homeless again
 To secure continuous improvements in homelessness services and develop Best
Practice. Only by offering high quality services can service users receive the best
possible assistance. Learning from others will also ensure that best practice can be
introduced to assist both the Council and its partners in reducing homelessness.
PRINCIPLES
The following principles underpin our approach:
 The strategy that is presented is a starting point and must continue to be developed
over the coming years.
 The Homelessness Strategy does not exist in isolation – whilst its prime link is with the
Housing Strategy, there will be relationships with other strategies e.g. Supporting
People Strategy.
 Homelessness cannot be solved by the Council alone; it requires effective partnership
working. The overall aim will be to work with others and develop complementary action
programmes.
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The Homelessness review seeks to outline the extent and trends of homelessness. The
development of more information, based upon further research will aid the Council and
its partners to develop the strategy and form a basis to monitor and evaluate progress.
Services should be needs led and reflect the diversity of homeless people.
Service users should be involved in a meaningful way and on a continued consultative
basis
The strategy’s aims and principles are to be promoted by the Council and its partners
OBJECTIVES
The following objectives provide the focus for the Homelessness Strategy
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Through partnerships deliver joint working and development of complementary
action plans and work programmes.
Ensure effective consultation with all stakeholders and service users.
Advice and information services to be accessible to all sections of the community
Develop a more proactive approach to prevention with a focus on early
intervention.
Develop schemes / initiatives to tackle the causes of homelessness
Research underlying causes and trends into homelessness
Secure 2/3rds reduction in Rough Sleeping from 1998 levels or lower
To secure the satisfactory provision of support services for people who may
become homeless or who may have been homeless and need support to stop
them from becoming homeless again.
Develop sufficient good quality temporary accommodation to meet the needs of
homeless households to whom the Council owe a duty to house and avoid the use
of Bed and Breakfast accommodation
Enable the provision of accommodation to meet the needs of non-priority
homeless.
Reduce the time spent in temporary accommodation to a minimum
Cease the use of bed and breakfast accommodation for families with children by 31
March 2004 (except in emergencies when use will be limited to a maximum of 6
weeks).
Maximize the provision of permanent accommodation to meet the needs of people
in Milton Keynes who are, or may become, homeless
To increase the use of the private rented sector to meet the needs of people in
Milton Keynes who are, or may become, homeless
Deliver excellent services
2.
Partnership Working
Objective: Through partnerships deliver joint working and development of
complementary action plans and work programmes.
The problem of homelessness cannot be solved by the housing services of the Council on its
own. To be successful the Homelessness Strategy for Milton Keynes requires effective
partnership working. Links need to be made to the strategic community planning of the council
and its partners and be set within the corporate framework. The importance of the
Homelessness Strategy directly linking into the Council’s overall Housing Strategy and the
wider Regional Housing Statement is fully recognised.
This Homelessness Strategy reflects the priority that the Housing Strategy gives to addressing
key issues such as the supply of temporary accommodation and the delivery of new permanent
housing. The Business Plan for Milton Keynes Council will also need to take forward some of
the Homelessness Strategy priorities.
Strategic Links
Partnership Working
Milton Keynes Council has a history of working in partnership. The first Milton Keynes
Community Partnership Plan, “MK2020-Partnership in Action” was published in April 2000 as a
result of a community planning process through which the business, public and voluntary
sectors in Milton Keynes worked in partnership. The key strategic partnerships are identified
below.
Local Strategic Partnership
The aim of LSP is that all local service providers should work with each other, the private sector
and the broader local community to agree an approach to solving problems with a common
vision, agreed objectives, pooled expertise and agreed priorities for the allocation of resources.
The Local Strategic Partnership (LSP) has developed a strategy to achieve growth in a way
that ensures Milton Keynes is a place where people want to live and work with the facilities to
match. The LSP represents all the major public, private, voluntary and community organisations
in Milton Keynes. It has agreed a set of long-term community strategy aims for Milton Keynes
2003- 2013, including the aim “Housing that meets everybody’s needs”
Corporate Priorities
Alongside the LSP aims the council has set its own corporate priorities for the next three years.
Corporate Working Group
One of the Council’s corporate priorities for 2003-06 is to create social inclusion. Over the last
two years, the Council has had a Social Inclusion Working Group. Chaired by the Chief
Executive, the Group was instrumental in researching and identifying the causes of social
exclusion in Milton Keynes. It also worked on ways to promote social inclusion. The Director of
Public Health in Milton Keynes now chairs the Social Inclusion Working Group. This Group will
in turn identify and then work on specific issues of relevance to Milton Keynes.
Strategic Housing Partnership
The LSP has resolved that a number of Strategic Partnerships that would deal with topics set
by the LSP should be set up. It identified that there was a need for a Strategic Housing
Partnership. The Partnership consists of the following agencies:
 Homes MK
 PCT
 English Partnerships
 MK Economic Partnership
 Midsummer Housing Association
 The Housing Corporation
 North British Housing Association
 MK Association of Urban Councils
 MK Association of Local Councils
Involving our Tenants
The Council's Neighbourhood Services Directorate works with 24 Residents Associations. New
Residents Associations are helped to get established.
Council Housing Forum
The Council Housing Forum is a borough-wide group of tenants’ representatives that meets
monthly to look at a range of housing issues. The Forum was instrumental in developing the
Community Lettings System.
Crime and Community Safety Partnership
The Council's Community Safety Team is accountable to the Crime and Community Safety
Partnership. It co-ordinates the implementation of the three-year Community Safety Strategy
(across the council, police and other agencies in Milton Keynes).
Joint Board
The Council has a Joint Health and Social Care Board with the PCT and the General Hospital.
Its role is to make full use of the health flexibilities offered by the Government, and it is working
towards achieving joint health and social care services. The Joint Board is a significant step
towards achieving better joint working between Housing, Health and Social Care.
In addition to the above partnerships, there are a number of specific areas of partnership
working that should be given attention.
Social Services
There are new obligations on Social Services to work closely on the development and
implementation of this Strategy.There is a strong emphasis in the Homelessness Act for Social
Services Authorities (SSAs) and Housing Authorities to work together to support vulnerable
people and avoid the danger that they fall between the two services.
Overall the aim is to ensure that
:
 Vulnerable homeless people not only get housing but also have their support needs
met. This will enable them to resettle successfully and avoid future homelessness.

Vulnerable people at risk of homelessness get sufficient advice and support to prevent
homelessness arising.
Milton Keynes is a unitary authority with housing services and adult social services linked under
Neighbourhood Services. Whilst there are examples of good working practice e.g. a
homelessness officer is working within the Social Services Mental Health team and a
homelessness officer is seconded to Children’s Services in the recent past, it is not assumed
that opportunities for joint working cannot be improved.
Areas where support for vulnerable people that relates to homelessness issues include the
following and present opportunities for strategic joint working

Community Care Plan/ Better Care Higher Standards Charter.

Service plans for vulnerable people and families with children.

Action plan on reducing teenage pregnancy.

Action plan on children leaving care
To ensure complementary development of policy and the promotion of Best Practice,
joint working between Social Services and Housing is to be reviewed. This will require a
programme of issues to be identified and worked on and to be led by the proposed
Homelessness Steering Group.
Supporting People
Milton Keynes has produced a Supporting People Shadow Strategy, which has recognised the
need to address support issues for vulnerable people and in particular concerns around
homeless people. It is important therefore that this Homelessness Strategy is consistent with
this shadow strategy and future Supporting People strategies. Indeed with all strategies the
principle should be that each strategy should influence the other.
It is recognised that there are many other examples of partnership working and include: Youth
Housing Network, Housing Overview Committee, Prison Employment Group, Probation,
Mediation Service in the “Link Up” project. Continued partnership working is vital to developing
a coordinated approach to deal with homeless prevention, provide support and make housing
available.
The range of partnerships and strategies whose activities influence homelessness is
extensive. In order to maximise the strategic links, the homelessness strategy priorities
will be communicated to the partners and during the implementation phase
opportunities to complement joint working will be pursued.
It is acknowledged that the timing of the Homelessness Review and Strategy is unlikely to
coincide conveniently with that of other relevant reviews and the annual budget-making round.
The Strategy should therefore identify the key issues for other policy areas and the council will
seek to ensure that these issues are highlighted in any future reviews.
Proposed Homelessness Steering Group
The Homeless Review has been driven by the Housing Sub Committee, which has considered
a wide range of issues and presentations by agencies and individuals. In order to secure the
continued involvement of partners and achievement of the required actions during the
strategy’s implementation, it is proposed that a multi-agency steering body be established. This
should include Housing and Social Services staff with representatives from Health, RSLs,
Education and the voluntary sector. There should also be an expectation to co-opt other
agencies e.g. Police, Probation to progress key topic areas.
Develop the Homelessness Steering Group (a multi-agency forum) to strengthen
partnership working, co-ordinate consultation and development work with other Council
departments and partners to implement and monitor the Strategy.
Working with the voluntary sector
Voluntary groups often cite the need for greater stability in terms of income (especially grants)
to enable them to work alongside statutory agencies to plan and develop services more
effectively. This issue was highlighted as part of the Housing Sub Committee’s investigations. It
is considered that both partnership working with the voluntary sector and the Homelessness
Strategy objectives can be assisted by promoting service level agreements (SLAs) and
developing three-year contracts and budgets. Already the process to review voluntary sector
SLAs has begun.
Review service level agreements with the voluntary section
Working with other Councils
The Council is working with neighbouring council to address the problems of homelessness
and meeting housing needs. With increasing focus on regional and sub regional issues it is
important to ensure that there is joint working on homelessness. Issues such as co-ordinating
action, promoting best practice and assessing demand and trends from a sub-regional
perspective could be pursued.
Work with neighbouring Councils to coordinate action, promote best practice, assess
demand and trends from a sub-regional perspective
3.
Consultation
Objective:
Ensure effective consultation with all stakeholders and service users.
The importance of consultation in the development of the strategy and in assisting in the
monitoring and evaluation of the strategy and related services is recognised. Hence a priority
for the strategy is to secure involvement of service users and partners not only in the
development of the strategy but throughout the life of the strategy.
The aim will be to secure ongoing involvement through the following stages: Review, Strategy
Development and Strategy Implementation.
Review
Partner agencies were involved in a number of ways to contribute to the review of
Homelessness:
 The Council’s Housing Sub-Committee undertook a series of interviews with members
of staff and partner agencies.
 A Stakeholder day was held on 29 January 2003 with representation from a wide range
of agencies. Attention was focused on identifying the roles the organisations
performed, determining the main causes of homelessness, gaps in provision and
potential solutions.
 Over two days in May, focus groups were held, again involving partners and staff and
were facilitated by an external consultant. The discussions were structured around
examining the strengths and weaknesses of existing services, gaps in provision and
ideas for service improvements.
 The Council’s Housing Forum (comprising tenants representatives) received a
presentation on the key issues identified by the Homelessness Review. A question and
answer session was followed by an invitation to make submissions on the circulated
document.
These consultation events have proved to be informative and the contributions have assisted in
the development of the strategy. The following issues were identified throughout this process:
Permanent Homes
 Continued population growth, economic success of Milton Keynes, together with low
house building completions and sustained high levels of right to buy has increased
pressures on affordable housing.
 Concern that insufficient new homes (of any tenure) are being developed. The
Structure Plan recommends 2000 homes pa, the Housing Need Survey recommends
that 3,500 homes per annum are built yet the current rate of build is 1,200 units per
year.
Emergency accommodation
There is a lack of emergency accommodation, which results in the use of B&B, including
premises outside Milton Keynes.
There is an identified need for more emergency accommodation for:
 Women experiencing domestic violence
 Over 25 singles (no existing provision)
 Under 25s.
Move on accommodation to enable increased flow through current emergency accommodation
and increase number of places available at any time.
There is also a need to improve conditions in existing hostels (including meeting needs of
people with disabilities).
Support services.
There is recognition that services are vital to support vulnerable households in sustaining
tenancies and to prevent homelessness. An expansion in floating support services is needed in
the following areas:
 specialist support services – mental health (particularly low level support), substance
abuse, young people, domestic violence.
 people living in temporary accommodation
 people living in their own homes.
 vulnerable families being accommodated in B&B outside Milton Keynes
Private Landlords
 Traditional lack of access to the rental market.
 Historical problems with the assessment of housing benefit have meant that landlords
are more reluctant to take tenants in receipt of housing benefit.
Homeless Prevention
 Need for expansion in advice and information services to prevent homelessness
including a greater emphasis on education.
 Recognition that specific action is needed to focus upon causes of homelessness.
 More work is needed to identify the needs of BME groups
 Continue to develop a multi- agency approach to tackling homelessness and
supporting homeless households, and to monitor and evaluate progress.
Service Improvements
 Need to address problems of staff vacancies and ensure customer focus.
 Improvements needed to reduce Housing Benefits delays
 Need to improve private interviewing facilities at Council Offices.
Strategy Development
The draft strategy will be made widely available to partners with views and comments being
sought. The feedback will be considered and reported to Milton Keynes Cabinet together with
the Homelessness Strategy, which will incorporate any revisions required.
Strategy Implementation
It is proposed that the Homelessness Steering Group be responsible for overseeing future and
ongoing consultation. Consultation will be achieved by using a range of methods appropriate to
those individuals and agencies contacted. The importance of consulting with Service Users is
acknowledged and it is proposed that the following guidelines should be adopted.
The following Service Users (actual and potential) are identified as a priority for consultation.
 Users of advice services (council and other providers)
 Homeless applicants
 B&B residents
 Temporary accommodation residents
Key questions to be asked
 What can be done to improve services?
 What can be done to prevent homelessness?
 Identify gaps in provision in Milton Keynes
Aims for consultation
 Evaluation of existing services - strengths and weaknesses
 Priorities for action - things partners want the strategy to tackle
 Make suggestions for improvements on: -The homelessness system and process
 Advice, information and prevention
 Temporary and permanent accommodation
 Provision of support
 Indicate how partner agencies can help contribute to the prevention of homelessness in
Milton Keynes
The Review and Strategy will be made widely available to partner organisations, service
users and other interested parties.
Ensure that effective consultation with service users and with partner organisations is
achieved in both agreeing the strategy and its implementation (ongoing)
4.
Homelessness Review
Introduction
This section of the document describes Milton Keynes Council’s review of homelessness and
sets out the findings.
Homelessness in Milton Keynes – the facts
The starting point for our review of homelessness has been to carry out a thorough examination
of all of the data available to us on homelessness in the borough. This has enabled us to
understand homelessness, why it occurs, what the main causes are and what happens to
homeless people. This review sets out our main findings.
Homeless Applications and Acceptances
The table shows the number of homelessness applications and acceptances over the last 5
years.
Applications
and Decisions
98/99
99/00
00/01
01/02
02/03
Applications
1875
1705
1925
1772
1758
Not homeless
949
752
831
638
751
Ineligible
3
6
10
12
8
Non priority
244
168
263
278
257
Intentional
20
20
41
59
17
Asylum seeker
0
0
0
0
0
Accepted
Total
Decisions
537
613
1035
596
490
1753
1559
2180
1583
1523
Decisions
This data shows a high number of homelessness applications with over 1700 being made each
of the past five years. Over that period, homelessness acceptances have averaged at over 600
each year. There was a peak in 2000/01, which was due to a backlog in decision making from
the previous year, brought about by staffing difficulties. There has been a fall in the number of
acceptances since 2000/01.
Homeless Applications and Acceptances
2500
2000
1500
1000
500
0
98/99
99/00
APPLICATIONS
Linear (APPLICATIONS )
00/01
01/02
02/03
ACCEPTANCES
Linear (ACCEPTANCES )
The chart above includes trend lines, based on the past 5 years statistics which suggest that
both applications and acceptances are due to decrease, albeit by a small amount. It is prudent
to plan on the basis that homelessness applications and acceptances will continue at the
current level in the short term. This prospect underlines the need for planned intervention
through coordinated action to prevent homeless occurring where possible.
A significant aspect of homelessness in Milton Keynes is the high number of homeless
applications, which resulted in a “not homeless” decision. Last year 751 “not homeless”
decisions were made on nearly 43% of all applications. Whilst in many respects a
homelessness assessment may appear to be unproductive, nevertheless the Council has a
clear legal duty to investigate and to process any declaration of homelessness that a household
may make.
The chart below illustrates the significant level of “not homeless” decisions.
Applications / Not Homeless
2500
2000
1500
1000
500
0
93/94 94/95 95/96 96/97 97/98 98/99 99/00 00/01 01/02 02/03
NOT HOMELESS
APPLICATIONS
Longer term the Council will seek to reduce the number of applications overall through a
number of ways that are outlined in this document. It is acknowledged that
improvements to information, advice and access to the homelessness service, homeless
applications may lead to an increase in the short term. The Council will ensure that
where a household is considered to be “not homeless” (as defined by the law), adequate
advice and assistance on housing options is available.
The table below identifies the main causes of homelessness in Milton Keynes.
REASON FOR HOMELESSNESS
PARENTS NO LONGER WILLING
OTHERS NO LONGER WILLING
RELATIONSHIP BREAKDOWN-VIOLENT
RELATIONSHIP BREAKDOWN-NON
VIOLENT
MORTGAGE ARREARS
RENT ARREARS-LOCAL AUTHORITY
RENT ARREARS-PRIVATE SECTOR
TERMINATION ASSURED SHORTHOLD
OTHER LOSS RENTED / TIED
ACCOMMODATION
IN INSTITUTION / CARE etc.
NEWLY FORMED / SPLIT HOUSEHOLD
FORMER ASYLUM SEEKER
OTHER
TOTAL
98/99
99/00
00/01
01/02
101
82
92
104
123
76
117
272
159
74
171
76
02/03
111
123
72
23
58
0
2
87
26
45
0
3
103
56
32
3
10
182
41
10
3
2
120
24
7
3
4
85
27
15
0
0
46
537
43
23
0
0
65
613
64
36
5
0
94
1035
21
26
2
0
49
596
11
11
0
1
34
490
The five most common reasons for homelessness are:
 Eviction by family
 Eviction by others
 Termination of assured shorthold tenancy,
 Relationship breakdown violent
 Relationship breakdown non-violent.
In 2002/03 these reasons comprised 85% of accepted homelessness households. The
homelessness strategy must give attention to these causes of homelessness.
That is not to say that the other reasons for homelessness should not be addressed. These
include mortgage arrears (although this has significantly reduced over the last 5 years), and
leaving institutional care.
The Council’s strategy for tackling homelessness must focus on dealing with the causes
of homelessness at source over the short to medium term.
The make-up of homeless households
The table below shows a breakdown by category of priority need of those accepted as
homeless.
REASONS FOR PRIORITY NEED
DEPENDENT CHILDREN
PREGNANT
OLD AGE
PHYSICAL DISABILITY
MENTAL ILLNESS
VULNERABLE YOUNG PEOPLE
DOMESTIC VIOLENCE
OTHER
EMERGENCY
TOTAL
98/99
309
89
11
35
27
30
23
8
5
537
99/00
354
106
21
23
27
40
24
12
6
613
00/01
583
129
18
83
57
78
47
29
11
1035
01/02
330
89
10
52
34
52
20
4
5
596
02/03
279
88
5
31
33
32
13
8
1
490
In 2002/03 households with dependent children comprised 57% of all accepted households and
those with a pregnant women amounted to 18%. Hence 75 % of accepted households (367 in
total) would be requiring suitable family type permanent accommodation.
Vulnerable groups: older age, physical disability, mental illness, young people, domestic
violence comprise 24% of all acceptances. Thus a quarter of households will need either
specialist accommodation or effective support services. Support is particularly important in
sustaining people in accommodation and preventing the reoccurrence of homelessness.
The Strategy will need to ensure that appropriate support (including Supporting People, social
care and health care) are made available to meet the needs of vulnerable homeless people.
The Strategy should ensure the development of an action plan to ensure that there is
sufficient accommodation and support services to meet the specific needs of accepted
homeless households.
The Council monitors the ethnicity of homeless people in the borough. Whilst the population of
Milton Keynes is 90.9% white, white UK and Europeans comprised 77% of all homeless
applications. On this evidence BME groups comprise a greater proportion of homeless
households than in the general population.
Further work is needed to examine homelessness associated with BME populations in
more detail and identify what can be done to reduce homelessness levels in these
groups.
Number of homeless households accommodated by the Council
The trends over the period show a sharp increase in the use of temporary accommodation.
Data as far back as 1993/4 shows that the number of households in temporary accommodation
has continued to rise each year from 208 in that year to 1,572 in 2002/3.
Numbers in Temporary Accommodation
1800
1600
1400
1200
1000
800
600
400
200
0
93/94 94/95 95/96 96/97 97/98 98/99 99/00 00/01 01/02 02/03
This temporary accommodation includes:
 Bed and Breakfast
 Hostels;
 Leased Homes in the Private Sector
 Bedsits & flats owned by the Council
The majority of homeless households are living in self contained Council homes on a temporary
basis. They can be grouped in the following ways:
 Where the household size is overcrowding the property;
 People who are housed temporarily whilst enquiries are underway;
 People who are housed temporarily but have not moved on to more appropriate
accommodation because they owe money to the Council;
 People who are housed temporarily in properties or areas that they did not choose but
which were the only ones available at the time the household became homeless.
Given the numbers of homelessness acceptances, the number in temporary accommodation is
expected to remain high, or even increase in the future.
Taking steps to reduce the number in temporary accommodation must be a priority for
the Homelessness Strategy.
The Use of B&B
The Council is committed to working towards the ODPM target of having no families living in
B&B after March 04, except in emergencies and even then only up to a maximum of 6 weeks.
The table below shows the total number of households in Bed and Breakfast increased
significantly during 2002/03.
Apr
4
May
8
Jun
19
Jul
28
Aug
33
Sep
38
Oct
40
Nov
45
Dec
50
Jan
46
Feb
51
Mar
54
In May 51 households were in B&B of which 26 households included children or a pregnant
woman.
This rise in B&B is mainly due to:
 Lack of alternatives to B&B in the form of other temporary accommodation
 Insufficient permanent housing (or access to it)
Each of these issues will need to be addressed by the Homelessness Strategy.
Of concern is the use of B&B outside Milton Keynes, which is likely to have an adverse effect
upon the households placed there. This underlines the need to take specific action to reduce
B&B usage.
The Homelessness Strategy to be published in July will be the main vehicle for ensuring
delivery in achieving the Government’s B&B target.
Rough Sleepers
In September 1999, the Council carried out a rough sleepers head count. At this time, 4
households were found to be sleeping rough in Milton Keynes.
The Homelessness Strategy needs to keep Rough Sleeping under review.
Information from the Housing Register
Homelessness cannot be looked at isolation. Although homelessness represents the most
extreme form of housing need, the Council also needs to consider the needs of those
applicants on the housing register. Many of these will have an urgent housing need too. The
table below shows the numbers on the housing register over the last 5 years.
1999
2835
2000
1733
2001
3173
2002
2482
2003
3356
The number of lettings that are available to meet housing need is an important consideration.
The table below shows an average supply of council and RSL vacancies over the past 4 years.
LA dwellings let to homeless in priority need on
secure tenancies
LA dwellings let to homeless in priority need on
introductory tenancies
Homeless Households taking up LA nominations to
RSL dwellings
Total
1998/99
1999/00
2000/01
2001/02
300
360
226
235
0
0
0
30
139
439
48
403
127
353
75
340
The above table demonstrates that the numbers of permanent lettings to homeless people has
fallen. However in 2001/02, 719 homeless households were accommodated in Council homes
on a non-secure basis until they could be made a permanent offer of something more suitable
(in better location or larger property to meet overcrowding). High levels of allocations to
homeless households limits the opportunities to meet transfer demand from tenants in need of
more suitable housing and those on the Housing Register.
The allocation policy should be monitored and reviewed, alongside the Housing Forum
to assess the impact on re-housing of homeless households and numbers housed
temporarily.
The Housing Needs Study
The Council commissioned ORS/University of Wales to carry out an Update to the Housing
Needs Study, which was received in November 2002. It shows that Milton Keynes needs 3,550
new homes each year, whereas the Structure Plan allocation in the Local Plan is only 2,000
dwellings. This highlights that there is a major structural cause of homelessness in Milton
Keynes. Of the 3,550 dwellings required, 671 homes must be affordable.
Of the 671
affordable homes, 145 social rented homes are needed.
The delivery of affordable homes that would be made available to homeless households
and people on the housing register is a focus of attention for the Housing Strategy
Improving Homelessness Prevention - Advice and
Information Services
5.
Objectives:
Advice and information services to be accessible to all sections of the
community
Develop a more proactive approach to prevention with a focus on early
intervention
Develop schemes / initiatives to tackle the causes of homelessness
Research underlying causes and trends into homelessness
Secure 2/3rds reduction in Rough Sleeping from 1998 levels or lower
Local authorities have a statutory duty to ensure that advice and information is available to
everyone in their area. The key change in approach within the Homelessness Act 2002 is the
increased emphasis on preventing homelessness.
The provision of effective and timely advice on matters such as welfare benefits, debt, support
services can be vital in averting homelessness. Both the council and voluntary organisations
provide advice and information services in Milton Keynes. There is a need to ensure services
are coordinated and are working towards common principles. In order to assist planning and
continuity of service delivery the voluntary sector have requested greater stability in funding
arrangements.
Principles
It is proposed that the following principles in the provision of advice and information should be
adopted and should underpin existing and future services both those operated by the Council
and by the voluntary sector:



Provide accessible and effective housing advice services, whose aim should be to
assist people to resolve their own problems and enable them to make choices. This will
be achieved by making people aware of their rights, available options and the
consequences of choices and actions made.
Services should be comprehensive, accessible, impartial and free.
There is a need to take a more proactive approach to prevention with a focus on early
intervention, and on placing less reliance on applications and more on active problem
solving.
Services need to be available to all groups not solely those to whom the council owes an
accommodating duty. The Strategy should therefore identify and pursue measures to make
non-priority people aware of new duties and services to encourage them to make contact.
Education campaigns may be necessary, possibly in partnership with agencies who may work
more closely with non-priority groups
The aim should be to deal with the root causes of homelessness and develop schemes /
initiatives to tackle these head on. There is also a need to address needs of specific groups
e.g. women suffering domestic violence, care leavers. The role of support is crucial aspect in
homeless prevention and is dealt with later.



Review Service Level Agreements between the Council and advice providers
Develop customer focussed advice services through the production of
service guarantees and incorporating service principles
Through a Community Legal Services Partnership for Milton Keynes work
towards improving the provision of homelessness advice and information
services as a priority.
Targeting causes of homelessness
The Review identified that the main reasons why households were accepted as homeless by
the Council are:
 Eviction by family / friend
 Termination of assured shorthold tenancy
 Relationship breakdown involving violence
 Non violent relationship breakdown
The Strategy seeks to address these causes of homelessness through the development of
focussed preventative action.
Other areas that are important causes of homelessness also need to be tackled by the
Council’s Homelessness Strategy. These include mortgage arrears (although this has
significantly reduced over the last 5 years), loss of rented or tied accommodation and leaving
institutional care. The Council’s Strategy for tackling homelessness must focus on dealing with
these issues at source over the short to medium term.
Eviction by family / friend
Eviction by family/ friends is the principal reason for homelessness of those accepted homeless
households. In 2002/03 this comprised 48%. The trend has been increasing.
Opportunity to give advice on other housing options is essential in dealing with this cause of
homelessness. It is recommended that homelessness officers undertake home visits in these
cases.
Such action:



Confirms if applicant is threatened with
homelessness
Prevents collusion or misinformation
May be able to mediate/ease tensions
May prevent homelessness
It is recognised that such an initiative would potentially require 800 visits a year and would be a
major staffing issue. Hence this would require additional resources. It is noted that a number of
issues highlighted by the Strategy will require resources. The Homelessness Steering Group
should determine priorities and potential resource requirements for consideration by cabinet or
the appropriate agency.
Introduce Home visits to all households presenting as homeless where family / friends
are no longer willing to accommodate.
Housing Education
Specific preventative action targeted towards young people might include developing a housing
education programme that describes the realities around housing and seek to avoid
homelessness. Such programmes can be developed in a variety of location (e.g. schools,
college) and in a range of formats (leaflets, web based services). Joint working with others is
preferred and can include the voluntary sector, Connexions and the Education Service.
Consider the development of a housing education programme
Consideration should be given to the following service initiatives, which may assist
homelessness prevention.
Mediation schemes
Mediation schemes can often assist in reducing tensions and problems, which can result in
eviction. Timely action may have a positive effect in reducing homeless in these situations. The
main features of such a scheme are:  Help to prevent loss of parental home for 16/17 year olds, pregnant young women, or
other adults





Will not work where there is violence, abuse, or fear
Applicant must consent to referral
Initial assessment to check details and no abuse
Joint interview if possible
Aim for agreement, with review if necessary
There may be opportunities to build upon existing mediation schemes. These should be
investigated and in particular discuss the possibility with Social Services, and relevant voluntary
agencies (counselling, young people’s centres, advice agencies). It is acknowledged that when
building upon existing schemes that services need to be independent and voluntary, without
coercion. Good practice is being developed in the voluntary sector, which the Council continues
to monitor.
Increase opportunities for access to mediation services as a homeless prevention
measure.
Termination of assured shorthold tenancies
The reasons why private sector landlords chose to terminate tenancies are varied but can be
grouped in the following manner:
 Need to sell the property or secure for own use
 To secure higher rental income
 Tenancy problems – breaking tenancy conditions
Whilst in practice little can be done regarding the first categories a range of actions can be
initiated by the council and its partners to work towards homelessness prevention. This matter
is more fully dealt with in the section dealing with expanding access to private rented housing.
However, there are specific actions that can be taken to expand advice and information
services.
Working with private sector landlords – (both as individual landlords and associations) to:
 Promote best practice in renting
 Tenancy support
 Advice and support for tenants and owners
 Advice and help for landlords
 Prevention of harassment and illegal eviction


Expand advice and information services to private sector landlords and tenants in
the private sector
Introduce home visits in cases of termination of private renting tenancies.
Relationship breakdown involving violence
Milton Keynes has had a consistently substantial number of homelessness acceptances of
women fleeing violence. Relationship breakdown involving violence was the third highest
reason for accepted homeless households in 2001/02. For this reason alone it requires specific
attention under the Strategy.
Table 1: Homelessness acceptances for domestic violence compared to all acceptances
Year
93/94
94/95
95/96
96/97
97/98
98/99
Domestic
Violence
45
69
77
107
115
92
All
Homeless
438
461
500
559
578
537
%
10%
15%
15%
19%
20%
17%
99/00
00/01
01/02
76
159
76
613
1035
596
12%
15%
13%
Women are most commonly the victims of domestic violence, which has resulted in most
support services and accommodation being developed exclusively for women.
The Supporting People Strategy has proposed the development of additional floating &
outreach support service operated by Women’s Aid.




Ensure effective working of the Women’s Aid floating & outreach support with the
Homelessness / Advice Team
Ensure Services to be both sensitive and responsive to the needs of the victims of
violence
Monitor the impact of this service
Ensure that clients fully understand their rights and options
Non-violent relationship breakdown
Non-violent relationship breakdown comprises the fourth most significant reason for homeless
for accepted households as illustrated by the table below:
REASON FOR HOMELESSNESS
97/98
98/99
99/00
00/01
01/02
Relationship breakdown-non violent
Percentage
TOTAL
39
7%
578
23
4%
537
26
4%
613
56
5%
1035
41
7%
596
It should be realised that advice concerned with relationship breakdown is unlikely to focus on
housing rights and options. Counselling, support, financial advice are all aspects that may help
in maintaining a relationship. It should be realised that advice concerned with relationship
breakdown is unlikely to focus on housing rights and options. There is a basic need to ensure
that service users are made fully aware of their housing rights and options.


Ensure that people have access to timely advice services (part of the broader
advice goals).
Homeless and support staff are aware of appropriate advice services
Other Reasons for Homelessness
The Following table illustrates the other principal reasons for homelessness amongst accepted
homeless households.
REASON FOR
HOMELESSNESS
MORTGAGE ARREARS
OTHER LOSS RENTED / TIED
ACCOMMODATION
IN INSTITUTION / CARE etc.
OTHER
TOTAL
97/98
98/99
99/00
00/01
01/02
67
58
45
32
10
41
24
78
27
15
46
43
23
65
64
36
94
21
26
49
578
537
613
1035
596
Of course there are other reasons all of which will need to be examined and will include
analysis of the more recent expansion of groups now regarded as now being in priority need.
Including young people, violence / harassment and people leaving institutions such as prison.
Mortgage arrears
Mortgage arrears have reduced over recent years, a function of the prevailing economic
climate.
The extent of homelessness due to Mortgage arrears will need to be monitored and
considered by the Homeless Steering Group and appropriate action taken.
Institutional/Care
With regard to institutional care the care agencies and social care should review with housing
the existing protocols and procedures to work together to avoid wherever possible
homelessness occurring when a person is discharged from care or an institution.
Review protocols and procedures between housing, social services, health and care
providers.
Eviction from social rented housing for rent arrears
As a further homeless prevention measure, Homes MK and local registered social landlords
(RSLs) should review their policies and procedures for rent collection, debt counselling and
possession action. Contributory factors, such as housing benefit administration, should be
taken into account. It is proposed that by identifying tenants at risk maximum impact might be
achieved. Appropriate use of housing allocations and transfers might also reduce potential
homelessness.
A reduction in the number of evictions from social rented housing must also link to actions
planned to reduce the level of Anti-social behaviour through the Crime and Community Safety
Strategy
Preventative action - Homes MK and RSLs
Review policies and procedures around rent arrears
Identifying tenants at risk of possession action
Appropriate use of transfers and allocation policies.
Research underlying causes and trends into homelessness.
Objective Research underlying causes and trends into homelessness
In order to monitor the impact of the strategy there should be ongoing analysis of data and
continued research on the underlying causes and trends of homelessness.
Action
Monitor and carry out research to identify the underlying causes and trends in homelessness
Repeat Homelessness
The Homeless Review provided staff comments that there were significant numbers of people
who repeatedly claimed homelessness. There is a need to set up systems to accurately identify
cases of repeat homelessness. This will enable a baseline figure to be established by April 04,
including information on causes of repeat homelessness. The Homelessness Steering Group
will be required to determine targets and the annual update of this strategy includes action to
tackle these causes directly.
Determine numbers and causes of repeat homelessness
Develop specific homeless reduction targets
In order to drive the Homelessness Strategy, it is proposed that additional targets are devised
and agreed. It is noted that the Homelessness Directorate has proposed that Councils should
set additional targets to be considered for additional funding.
Consideration is to be given to setting targets at least one of the following areas:
 Reduced levels of repeat homelessness
 Reduced levels of homelessness against the main causes
 Reduced inappropriate use of temporary accommodation
Rough Sleepers
In September 1999, the Council carried out a rough sleepers head count. At this time, 4
households were found to be sleeping rough in Milton Keynes.
The Government has specific targets to bring about a reduction in rough sleeping.
Whilst the review has not identified Rough Sleeping to be a particular issue in Milton
Keynes the situation must be kept under review. In the light of comments from service
users and agencies consideration be given to undertaking a further rough sleeper count.
6.
Improving Support Services.
Objective:
To secure the satisfactory provision of support services for people who may
become homeless or who may have been homeless and need support to stop
them from becoming homeless again.
Support services can play a major role in homeless prevention. Support can include services in
hostels and other temporary accommodation, resettlement into permanent housing and floating
support to maintain them in that accommodation. Delivering support is a vital homelessness
prevention initiative.
Providing support is a clear aim of the Housing Strategy, which indicates that it will continue to: Provide support for vulnerable tenants to help them maintain their tenancy and
avoid homelessness;
 Improve joint working within the Council so that the housing and social care needs
of vulnerable tenants are met in an integrated way.
Supporting People
In April 2003 the Council (in partnership with Health and Probation) became responsible for
administering the Supporting People Grant. Through the Supporting People Team it must
review schemes and establish strategic priorities for housing related support services.
New Structures
The following structures have been set up to deal with Supporting People:
 A Supporting People Team to implement the programme, this is within the Neighbourhood
Services Directorate;
 A Joint Strategic Group with senior representation from the Council, Health and Probation
(a decision-making and consultative group);
 A multi-agency Supporting People Forum
Aim
Supporting People aims to improve the quality and effectiveness of support services by:





Focussing provision on local need and introducing a more strategic process to assess
needs within and across local authority areas;
Improving the range and quality of services in particular breaking the link between support
services and accommodation so that more floating support/ visiting warden type services
can be provided;
Integrating support with wider local strategies particularly health, social services, housing,
neighbourhood renewal and community safety;
Monitoring and inspecting quality and effectiveness including integrating with ”Best Value”;
Introducing effective, transparent decision-making and cost-effective administration.
Supporting People Strategic Plan
Last year, the Supporting People Team, completed the Supporting People Strategic Plan. It
maps the need for and supply of housing services locally. The Team recommends priorities for
future development of Supported Housing for consideration by the Joint Strategic Group. The
completed Supporting People Strategic Plan will inform the Council's Housing Strategy and
Homelessness Strategy in coming years.
The Strategy noted that the Priority Needs Order (Housing Act 1996) extends the category of
people who can be considered to have priority need for accommodation, to include those
fleeing harassment or domestic violence and those who are vulnerable due to having an
institutional or care background. This includes people leaving prison, care leavers, ex-service
personnel and all unintentionally homeless 16 and 17 year olds. These groups will specifically
require varying degrees of support to initially commence and then maintain accommodation.
Supporting People will have a significant role to play in ensuring strategically planned services
are available or capable of being commissioned to meet these new needs.
The Supporting People Team is working with the Homelessness Section to improve the
sustainability of temporary accommodation by introducing support for the first time for those
living in hostels and bed and breakfast accommodation. Two full time Officers have recently
been employed for this project.
Assisting people who are rehoused into permanent accommodation and thereafter providing
“floating support” to help them maintain their home are important services that need to be
developed. By adopting a co-ordinated approach to need assessments and introducing
appropriate procedures to ensure continuity of support when homeless households are
rehoused, homeless prevention objectives can be promoted.
Through the Supporting People Strategy seek to develop more support services to
assist vulnerable groups and as a homelessness prevention measure
 More outreach work is needed to support vulnerable people to prevent them
becoming homeless.
 Greater levels of tenancy support in peoples’ homes (i.e. support for vulnerable
tenants).
 Greater levels of support for people in temporary accommodation (support to be
directed towards meeting assessed and specific needs)
 Resettlement and floating support services.
An essential part of the Homelessness Strategy is for effective links to be made between
housing services, social care and health services. The Council’s Neighbourhood Services
ensures that housing and adult social services are brought together. Community care
assessments and effective protocols can ensure that people with care needs receive the
services they require. Whilst there are a number of protocols and procedures are in place, it is
recognised that they need to be reviewed. This process has begun. It is important that links
with Supporting People services are also made to ensure that a complete range of services is
provided. It is also recognised that the health and education needs of homeless people need to
be met and particularly so when living in temporary accommodation. Effective liaison with
health and education is required.
Work with social services to develop improved joint assessment and processes for
assisting vulnerable clients
Ensure effective liaison arrangements are in place meet the health and education needs
of homeless people who are placed in temporary accommodation
Specific Client Group Needs
The following information is derived from the Supporting People Strategic Plan
People with Alcohol problems
No specific support based services exist for this group. Consideration needs to be given to
establish these if this is appropriate or if specific services should be directed to those with
alcohol problems.
People with Drug Problems
Floating Support has been developed through the Haste Scheme in conjunction with New Leaf
Housing Association. Need for this service is recognised in the Health Improvement Plan and it
is unlikely that the units in existence will meet the need or demand for this service. Expansion
of this service is seen as a priority having regard to community safety and social inclusion
issues.
Ex- Offenders
Locally, in Milton Keynes, the Housing Advice, Advocacy & Placement Service (HAPP) Service
will assess nearly 200 offenders in 2002/3. 90% of those referred are single males. 57% are
under 25 years. 88% will be in insecure accommodation. 15% will be rough sleeping and
another 15% will be of no fixed address. Overwhelmingly just over 50% have substance misuse
issues and 12.5% have mental health issues. Of those referred with housing issues about 25%
will be high risk and present community safety issues.
Ex- Offenders with mental health problems
No direct provision exists. Demand and need exists. This is recognised by National Probation
Service Thames Valley and evidenced by joint work that has commenced between Mental
Health and Homelessness. Development of support is again regarded as a high priority due to
both community safety and social inclusion reasons.
Women suffering domestic violence
Women’s Aid has identified a need to provide floating support to women suffering domestic
violence. It is noted that when women do not receive sufficient support to remain in their new
homes they frequently return to their original partner.
It is also noted that improvement of the support to children and families affected by domestic
violence is an objective in the Health Improvement and Modernisation Programme. The actual
level of additional need is difficult to ascertain but this would remain a medium priority for
further supply.
Young People / Care Leavers
Provision for this group is substantially higher than the levels expected for an average
population profile. This is due to the significantly higher proportion of the population that is aged
16 to 25 than the national average. Some of these are accommodated in the YMCA flats, the
majority of which receive relatively low levels of support. Therefore the need for additional
provision particularly with higher levels of support is recognised. It will be important to ensure
close working with the Supporting People team to seek to expand services that are tailored to
meet such needs. The Supporting People Team in partnership with the homelessness team,
children's services, the youth offending team and the teenage pregnancy co-ordinator have
commissioned St Christopher’s Fellowship to provide a new high support hostel and a floating
support scheme for vulnerable young people and they will be developing additional support
services over the next three years.
Families with Children
The Social Inclusion Working Group has highlighted the need to look corporately at the needs
of families with children. This will include housing, social services and the education authority.
An example of the needs of this group are the families who have been declared "intentionally
homeless". Keeping families together in appropriate accommodation is clearly a challenge. It is
intended that Supporting People will be exploring best practice over the coming year. A
specific project is underway looking at promoting social inclusion for families by improving
children's educational attainment.
MKC Tenancy Support Scheme
The Council has expanded its Tenancy Support Scheme, (for people housed in its properties),
from a team of 2 workers to a team of 5 workers.
Mental Health
The Social Services Joint Review, local needs mapping and an independent Sainsbury Centre
report have also identified that there is insufficient provision in Milton Keynes for people with
mental health problems. It is acknowledged that many people have complex needs –mental
health together with drug/alcohol or both. When designing support service it in essential that
they are responsive to the identified needs.
The Council has been working on the following projects to improve supported housing provision
 Development of six new one-bedroom flats on the former Denbigh School site to be
managed by Stonham HA with support;

Exploring new management arrangements with Midsummer HA for a block of ten flats.

De-registration of registered care home to create ten-place supported housing scheme.
7.
Temporary Accommodation
Objectives
 Develop sufficient good quality temporary accommodation to meet the
needs of homeless households to whom the Council owe a duty to
house and avoid the use of Bed and Breakfast accommodation

Enable the provision of accommodation to meet the needs of non-priority
homeless.

Reduce the time spent in temporary accommodation to a minimum
The Housing Strategy for Milton Keynes identified the top priorities for homelessness to be:


To reduce the number of families in temporary accommodation
Increase the supply of affordable housing.
The Office of the Deputy Prime Minister requires all Councils by April 2004 not to house
families in Bed and Breakfast accommodation except in emergency. This is a significant target
facing the council.
Whilst the aim of the Strategy is to ensure that stable and secure long term housing for
homeless people, the Strategy seeks to ensure the following:


There is sufficient temporary accommodation available for people who become homeless
and to avoid the use of Bed and Breakfast accommodation.
Reduce the time spent in temporary accommodation to a minimum
The trends over 4 years show a sharp increase in the use of temporary accommodation. Data
as far back as 1993/4 shows that the number of households in temporary accommodation has
risen each year from 208 in that year, to 1,303 in 2001/2. As the numbers of homelessness
presentations are expected to remain high, or even increase in the future, the pressure on
temporary accommodation is expected to remain. A crucial indicator, which puts matters into
context is the number of people accepted as homeless in any one year compared with the
numbers of permanent offers of accommodation. If the numbers permanently re-housed is less
than those being accepted then the numbers in temporary accommodation will inevitably
increase.
The priority will be to develop alternatives to Bed and Breakfast accommodation in the first
instance. This is addressed in the following chapter.
Private sector leasing schemes
The Housing Strategy acknowledges that the leasing scheme with Midsummer Housing
Association meets some temporary accommodation requirements but that an expansion is
required. The Strategy records that discussions are to take place with other RSLs with a view to
making additional homes available.
Securing private rented housing
The provision of rent deposits or guarantees to homeless households can reduce the pressure
on other existing temporary accommodation and in particular as an alternative to B&B.
Schemes can also provide access to housing for people who are not accommodated by the
council under its homeless duties.
Open Door operates a scheme in Milton Keynes and additional investment is needed to expand
its operation.
Homeless at Home schemes
Homeless at Home schemes are an alternative to the Council and its partners directly procuring
temporary accommodation for certain households who are being evicted from home (family or
friends). This is operated to a limited degree and is used sensitively.
Temporary accommodation for homeless households
 Expand as a matter of urgency the number of leased homes as an alternative
to B&B (currently operated by Midsummer Housing Association)
 Expand rent deposit scheme
 Increase provision and upgrade existing emergency accommodation and for
women suffering domestic violence
 Consider need for supported accommodation for single people aged over 25.
Temporary Accommodation - Council Homes
A plan of action needs to be developed to address the growing numbers of homeless
households who are housed temporarily in self-contained flats and bedsits that are owned by
the Council.
The following groups have been identified:
 Bedsits & flats owned by the Council where the household size is overcrowding the
property;
 People who are housed temporarily whilst enquiries are underway;
 People who are housed temporarily but have not moved on to more appropriate
accommodation because they owe money to the Council;
 People who are housed temporarily in properties or areas that they did not choose but
which were the only ones available at the time the household became homeless.
A specific action plan is required. For example by offering introductory tenancies, rather than
non-secure tenancies to homeless households who were adequately housed might reduce the
numbers classified as living in temporary accommodation by a third.
In the first instance there is a need to assess the numbers in each of these categories. This
work should be led by the Homelessness Steering Group.
Bedsits & flats owned by the Council where the household size is overcrowding the
property
Through the allocation policy appropriate assistance needs to be given to move these
households into permanent and suitable Council or RSL homes
People who are housed temporarily whilst enquiries are underway
Where people are accommodated temporarily whilst investigations are being carried out into
their homelessness claim, it is important that targets for homelessness decision-making times
are achieved. In instances where the Council has no accommodating responsibility it is
important that the case is resolved quickly. In this way some pressure on temporary
accommodation can be reduced. Decision-making times on Homelessness Applications are
addressed in the section Service Improvements.
People who are housed temporarily but have not moved on to more appropriate
accommodation because they owe money to the Council
It is important to address the arrears cases quickly. Ensuring that people have access to
effective financial advice and support is one step in this process. Also by assisting people to
address arrears and make regular payments can also contribute to them sustaining a tenancy
in the future and prevent homeless reoccurring. This area of work needs to be examined by
Homes MK.
People who are housed temporarily in properties or areas that they did not choose but
which were the only ones available at the time the household became homeless.
For those who are were housed temporarily because there was no suitable permanent
accommodation available in their area of choice, the ability to move is dependent upon suitable
vacancies occurring and the relative priority that a household receives under the allocation
policy.




Work needs to be completed to ensure that the Council is accessing all RSL
nominations that are available and best use is made.
The Allocations Policy has recently been reviewed. The effects of these changes
should be monitored including consideration of the one reasonable offer policy and if
needed changes recommended.
Continued promotion of initiatives to reduce under occupation.
Developing new homes inline with the objectives of the Housing Strategy. (It may not
be simply a matter of developing additional new homes. It is important that these are
secured in the right location)
A detailed plan should be prepared to accelerate move-on of household in temporary
accommodation into permanent homes
Housing Conditions
It is important that the quality of temporary accommodation receives attention.
With regard the Council’s own homes action that is being taking under the decent homes
initiative will ensure that good standards are achieved.
Women fleeing domestic violence
The council (under the Best Value Framework) is required to measure the number of bed
spaces per 10,000 people and set local targets. The current figure is 3.2, the target for 2003/04
is 3.5 and the target for 2004/05 is 3.8.
The review identified a significant number of women seeking refuge accommodation that could
not be accommodated due to lack of space.
Also there are deficiencies with the existing emergency accommodation. The review identified
that:
 Is not accessible to women or children with disabilities.
 Cannot support women with complex needs such as mental health problems, drug or
alcohol problems.
 Cannot take women with older male children.
 Need for maintenance and adaptation of existing emergency accommodation, in many
cases buildings cannot be adapted to become more suitable.
Assess the condition of the hostels
Teenage parents
From April (2003) the authority has a duty to house teenage mothers. Currently there is an
arrangement with Orbit Housing Association in Springfield whereby temporary accommodation
is available. St Christophers Fellowship and Orbit Housing Association are currently developing
a new scheme to support lone teenage parents in Walnut Tree. This is being developed in
partnership with the Teenage Pregnancy Co-ordinator who works within the Children's Services
division) part of the learning and development directorate.
Homeless Singles over 25
It has been identified that there is a lack of supported accommodation that is available to meet
the needs of single homeless aged over 25. This gap needs to be addressed.
Young People
By the year 2006, the population of young people will have increased to:
 Under 15 years old: 45,000
 15-19 years old: 14,600
Given current house prices, a young single person would need to earn just over £23,500 before
being able to afford to purchase a one-bedroom property.
In Milton Keynes there has traditionally been a lack of supported accommodation to meet the
needs of vulnerable young people. For example, during 2000/01 Milton Keynes Council
accepted 62 young people aged under 19 as priority homeless of which 49 were housed in
independent housing, 39 with no support and 10 with the option of some support. In contrast
there were just 12 places of specialist supported housing for vulnerable young people provided
by the Ark Charity. The YMCA provided ten emergency places for 16-25 year olds. A 16-place
Foyer provided by Midsummer Housing Association and the Christian Foundation provided
placed for some vulnerable young people, but many will not be at the stage where they can
meet the training requirements of the project.
To meet this need, the Council’s tenancy support team has been expanded. In addition, the
Council has selected the St.Christopher’s Fellowship to provide a range of support. St.
Christopher’s has recently leased 2 properties in Bradwell Common to provide six places for
young people. They will also lease 1 further property in the next few months to accommodate
another two people. Finally, the homeless hostel at Springfield has been converted to a 16place scheme for lone teenage parents.
The Council is currently working on:
 Central Milton Keynes Residential Quarter – “CASPAR” schemes (flats that will be
affordable for young people);
 Identifying “Reserve Sites” with English Partnerships so that St. Christopher's Fellowship
(our preferred partner) can develop a range of supported housing for young people
Supported Lodging Schemes
As an alternative means of providing accommodation lodging schemes can be used. They are
similar to fostering - medium term stay with a family or individual, often set up by YOT or Social
Services Department
8.
Reducing the use of B&B
Objective
Cease the use of bed and breakfast accommodation for families with children
by 31 March 2004 (except in emergencies when use will be limited to a
maximum of 6 weeks).
The Council is committed to working towards the ODPM target of having no families living in
B&B after March 04, except in emergencies and even then only up to a maximum of 6 weeks.
There is no doubt that this will be a difficult target to achieve but the homelessness strategy will
be the main vehicle for ensuring delivery.
The adoption of this Strategy by the Council recognises the political importance that is being
given to working towards this target.
Bed and breakfast hotels offer particularly poor quality accommodation, at a high cost. That
Milton Keynes has to secure B&B accommodation in other areas such as Luton and Rushdon
underpins the urgency to deal with this problem.
The Homelessness Strategy proposes the development of alternative temporary
accommodation to replace B&B. This action is part of a range of action, which has been
identified elsewhere in this strategy and includes:
 Preventing homelessness
 Extending alternative forms of Temporary Accommodation
 Effective internal partnerships with HB, allocations, empty property staff, housing
advice including good void minimization procedures
 Ensuring good access to health and other services
 Maximising lettings of permanent accommodation to homeless households
 Increasing the supply of permanent housing
In order to gauge progress on meeting this testing target active monitoring of B&B use
will be undertaken.
9.
Accessing Permanent Accommodation
Objective:
Maximise the provision of permanent accommodation to meet the needs of
people in Milton Keynes who are, or may become, homeless
The needs of most homeless households will be met by the provision of self-contained
permanent accommodation in their preferred location where they can start rebuilding their lives.
The Housing Strategy has identified as a major priority the need to secure additional housing
across all sectors for the people of Milton Keynes and in particular affordable housing.
The Council commissioned ORS/University of Wales to carry out an Update to the Housing
Needs Study, which was received in November 2002.
The Update to the Housing Needs Study showed the following housing shortfalls:
Private Sector Housing
 Owner Occupation
2,551
 Renting without subsidy
Affordable Housing
327


Low cost market housing
Reduced cost market housing
84
111

Shared Equity 60:40
46


Shared Equity 50:50
Shared Equity 40:60
19
154

Shared Equity 30:70
104
 Sub-market rent
 Social rent
ALL HOUSING
8
145
3,550
Overall, the shortfall's can be broken down by property type as follows:
Size
One-bed
Two-bed
Three-bed
Four-beds
Private
Sector
152
460
995
1,177
Affordable
155
506
(37)
48
Joint Housing Delivery Team
In November 2002 English Partnerships announced that
"One of the most crucial shortfalls we need to address in the city is the provision of new and
affordable homes. If we want Milton Keynes to maintain its current pace of growth and success,
then we need to ensure that we have adequate housing for people who want to work and live
here."
To underline this, English Partnerships and the Council have agreed to set up a Joint Housing
Delivery Team.
"We recognise that our combined efforts will reap bigger rewards and deliver better quality
housing more quickly than we have in the past…Many people are having to commute in to
Milton Keynes for work when they would ideally like to live locally. But because demand
exceeds supply, house prices are relatively high and not affordable for many people. We hope
to redress this balance by ensuring that at least 30 per cent of new homes are accessible to
people on lower incomes or to those who provide key services within health, education and the
police service."
In the next two years, the Joint Housing Delivery Team expects the number of new house
completions in Milton Keynes to rise from current levels of around 1,200 a year to 2,000 homes
by 2006/07.
It should be noted that the Milton Keynes Housing Needs Study Update supports the Council's
30% affordable housing target. It will be important for the Council, through the Housing Strategy
to monitor the amount of affordable housing achieved against this target and review housing
needs in the Borough on a regular basis.
Empty Homes
The Housing Strategy recognises the role that empty homes initiatives might play in meeting
housing needs
The Urban Capacity Study showed that there are few empty homes within the City. They reflect
no more than a reasonable void rate related to the mobility of the local population. However,
the Council’s Empty Homes Officer has identified that there are around 200 long-term private
sector properties that have been empty for 18 months or more. Bringing these homes back into
use is a priority. Last year, 45 Empty Homes were brought back into use from private
individuals, just short of the 50 homes target.
Community Lettings System
The Council has consulted a number of agencies about a Community Lettings System to:
 Promote more choice and opportunity
 Consider the needs of communities
Whilst we are committed to increasing opportunity and choice, more work is needed,
particularly in light of the likely increase in homeless duties.
Monitor and review the impact of the revised Community Lettings Scheme
The Housing Strategy (Statistical Appendix) shows that there are many competing demands
upon the housing stock that becomes available for letting. For example, the more properties
that the Council lets to homeless households, the fewer the number of properties available for
other groups such as households on the waiting lists, urgent transfers.
A further problem is that the Homelessness Strategy has already identified that around 75% of
households accepted as homeless need family-sized accommodation. However, the Housing
Strategy (Statistical Appendix) also shows that over the last 4 years, the supply of family
housing has not kept pace with demand. The Statistical Appendix shows the situation as
follows:


Total relets (MKC & RSL stock) have averaged at around 1,916 per annum
Of the 1,916 Total relets, the total that are suitable for letting to a family has averaged 842
per annum
So the total stock available for letting to homeless families has on average been 45% of
the total, when 75% of the total was needed.
Also, the figures for RSL re-lets give cause for concern. The Housing Strategy (Statistical
Appendix) shows that with regards to RSL lettings generally:
Average RSL re-lets
Average take-up of RSL re-lets:
Average RSL take-up: percentage of total
510.5
205.75
40%
All RSL's are monitored on a quarterly basis. The quarterly returns provide a breakdown
of allocations of each RSL e.g. RSL own stock transfers, mutual exchanges, HOMES, Referral
Agencies, Waiting List and the number of nominations made by MKC (including the
Employment nominations MKC administer on behalf of English Partnerships (EP)).
The majority of developments by RSL's include a significant number of EP employment
nominations. In order to maximise these nomination opportunities if there are unfulfilled
employment nominations the Council seeks to nominate applicants from its own homeless,
transfer and waiting lists.
The nomination protocol with Midsummer HA remains unresolved as the Council wishes to
retain EP's 100% nomination rights in respect of initial allocations of new properties in order to
maximise nomination opportunities. However when MKC enters into a fresh agreement with
EP in regard to the administration of EP's nomination rights this issue should be addressed.
In addition a RSL stock survey was carried out in February 2002 in order to build a
comprehensive list of Housing Association properties in Milton Keynes, their location, size. The
turnover for each RSL during the period 1/1/01-31/12/01 was also collected.
Total RSL stock at that time was 5791 units (Breakdown - 2+bed units: 307 bungalows /
439flats / 8maisonettes / 3238houses - other units: 1799). (Note - bungalow allocations are
usually restricted to older applicants or applicants with mobility difficulties; some RSL's will only
allocate flats to couples or applicants with teenage children)
Negotiate an agreement with English Partnerships regarding administration of the
Employment Scheme
MKC seeks to allocate unfilled nominations to both new properties and those which
become available for reletting in line with usual allocation procedures
10. Making Use of Private Sector Housing
Objective
To increase the use of the private rented sector to meet the needs of people in
Milton Keynes who are, or may become, homeless
The private rented sector is an important source of alternative accommodation. However,
accessing this sector often requires a deposit and rent in advance. For people on low incomes
this can make private rented accommodation prohibitively expensive. The Council by working in
partnership to develop deposit or bond schemes can overcome the access barriers for lowincome households. Greater liaison with the private rented sector can also help to increase the
number of landlords willing to let to non-priority homeless households. This liaison might
include landlord forums or a support service for private landlords.
Tenancy support
Landlords are often reluctant to take on tenants who may present problems in that they may
require support over and above what the landlord can reasonably expect to provide. The
provision of tenancy support services may widen access to private rented housing and may
also prevent homelessness occurring.
At present the majority of tenancy support is directed towards those in the social rented sector.
The main exception generally is where private sector landlords are funded to provide lodgings
and basis support from agencies such as Social Services. Opportunities to expand services to
private sector tenants who are at risk should be considered under the Supporting People
Strategy as there is great potential to develop services. It is important that priorities of the
Homelessness Strategy are linked into the Supporting People strategy.
Housing Benefit
Delays or perceived delays in the payment of Housing Benefit is a reason often quoted by
landlords as to why they are reluctant to take on tenants who are reliant on benefit. Nonpayment of rent, which is compounded by inefficient Housing Benefit administration, can also
contribute to homelessness.
The following action should be considered in the first instance to assist the Homelessness
Strategy objectives:
Housing Benefit
 Ensuring that HB is paid efficiently and meets the BVPI targets
 Targeting HB payments where tenants are at risk of homelessness
 Targeting the use of discretionary top up payments where additional assistance is
needed to pay rent and where homelessness would otherwise result.
 Specific support for applicants to ensure required HB information is provided.
Working with Private Sector Landlord Associations
To assist the Housing Strategy aims and to widen opportunities to achieve homelessness
objectives it is recommended that a private landlord’s forum with the Council be established.
Working with such forums can open up opportunities for the Council and its partners to be
better aware of landlords’ views and concerns. Other opportunities to work together can be
explored.
Build upon private sector Landlords Forum
Information and advice
A number of local authorities provide seminars and meetings for private sector landlords to
outline issues such as housing benefit, housing conditions / grants, advice and services to
prevent harassment and illegal eviction. Such an initiative is suggested for inclusion in the
action programme.
Improve advice and information services to private sector landlords
Rent deposit schemes
For those households who are reliant on benefit and are seeking private sector accommodation
the prospect of finding a rent deposit / guarantee can be extremely difficult. Without assistance
in this area the household may approach the Council for accommodation. . For households
who are intentionally homeless, who must be included in this Homelessness Strategy. Private
sector housing may be the only available option open to them. Similarly non-priority homeless
may benefit from such schemes. A Rent Deposit scheme (Open Door) does exists but given the
homelessness demands expansion should be considered
Consider expansion of tenancy deposit / guarantee scheme
Improving housing opportunities for homeless people.
Poor housing conditions can often lead to disputes and reluctance on the part of tenants to
complain, as they fear that possession will be sought, which under the shorthold regime can be
easily affected. Effective schemes to administer HMO conditions, landlord information and
advice, rights and responsibilities training (both landlords and tenants) can contribute positively
to homelessness prevention. (Note the Council’s HMO Registration Scheme came into force on
1st. Feb. 2003).
Schemes such as targeting renovation grants to encourage landlords to upgrade property or
bring empty homes back and let to local authority nominations, can meet homelessness needs.
As part of the Housing Renewal Strategy review the contribution that grant and loan
aided improvements can improve access to private sector accommodation
11. Improving Existing Services
Objective – deliver excellent services
The Housing Strategy recognises the need to improve housing services is the top priority and
will achieve this by utilising Homes MK – the housing management service for the Council’s
own homes.
As part of the Homelessness Review it has been acknowledged that vacancies within both the
benefits and the housing needs teams has impacted adversely on service delivery. Despite this
there have been initiatives to improve close liaison and co-operation between teams.
Overall, in order to drive change and deliver improvements a programme needs to be adopted
to review services, outcomes and resources made available to bring this about. Plans must
respond to meeting customer’s needs and affect services both within council and the voluntary
sector.
One indicator of the homelessness service is the speed of decision-making. The following
table indicates that performance has dropped in the last year. Numbers of applications and staff
numbers are two key factors that impact on this performance measure.
Homeless Decisions - % completed within 33 days
Homelessness Decision
Homeless non qualifying
Homeless non priority
Intentional
Not homeless
2000/01
2001/02
2002/03
86.7
83
100
89
87.5
87.8
4.6
31.5
5.8
61
76
76.2
Full duty
45.6
63
51
Full duty no local connection
66
55.6
0
72.06
0
69.2
Total
Steps have been taken to promote best practice. The Harrow Guide, which comes from a
beacon council initiative, has been obtained and improvements are being implemented. Further
steps should be taken to implement best practice initiatives. Working with other local authorities
is one approach that could be pursued.
Working with other local authorities to develop and promote best practice is one approach that
could be pursued. The existing Buckinghamshire Homelessness Strategy Group may assist in
this process

Implement planned service improvements and develop action plan that to respond to
meeting customer’s needs, both within council and the voluntary sector
 Benefit and housing needs staff to extend joint working, implement service level
agreement and develop IT improvements
 Ensure full staffing complement. Vacancies within both the benefits and the housing
needs teams have meant that close liaison and co-operation has been difficult to
deliver.
 Improve performance monitoring.
 Improvements to be made to customer care through introduction of all minimum
customer service standards.
 Review the services provided in the light of varying degrees of customer satisfaction
 Improve information to service users including alternative housing options.
Review
 Procedures / policies
 Training
 Access to service (including vulnerable groups)
12. Resourcing the Strategy
The Housing Strategy for Milton Keynes is the key document that determines the overall
allocation of resources that are available to meet the diverse range of housing needs facing the
council.
Capital and revenue funding continues to be under considerable pressure.
The Housing Strategy has recognised the importance of meeting homelessness needs and in
particular addressing the problem of B&B usage and the numbers of people temporarily
housed.
Through joint working with English Partnerships, the delivery of new housing is coordinated.
Opportunities to meet general housing needs and those of specialist groups (such as young
people) are taken. The delivery programme takes account of the homelessness needs.
This Strategy has highlighted a wide range of actions that are deemed necessary to confront
homelessness across a broad front. Given restricted funding, priorities have to be established
that determine which areas should receive early attention.
The clear priority has to be to meet the Government’s B&B target. Alternative housing solutions
are needed. Generally there are other more effective solutions available and potential savings
can be achieved.
Senior staff together with the proposed Homelessness Steering Group will need to review all
the identified actions and determine which can be taken up within existing resources and
determine in the Action Plan when and who should lead the work. It should be noted that many
priorities will need to be established and progress made within budget constraints.
Other areas of work may fall to another agency to meet the funding.
13. Monitoring and Evaluation
The Act requires the second homelessness strategy to be published within five years of the
first. However, this first strategy may not survive five years, especially if the tight initial timetable
means that it is difficult to resolve certain issues. Hence, consideration should be given to
reviewing the first strategy in a shorter time frame, with a fundamental review after two years.
This would be consistent with the Act’s requirement that Councils must keep the strategy under
review. It may modify the strategy and must publish the strategy if any modifications are made.
The Strategy puts forward specific action against 6 key objectives
 Information and Advice
 Delivering Support
 Temporary Accommodation
 Use of B&B
 Private Sector
 Permanent Homes
There is a specific need to monitor progress and implementation of the action plan. To achieve
this it is proposed that a multi-agency forum (Homelessness Steering Group) be established:
 Monitoring and evaluation
 Reviewing
 Developing further strategies
 Joint planning, commissioning, learning
 Joint training
 Progress against the implementation action plan
 Consultation including seeking user views
A Lead officer with responsibility for overseeing and coordinating progress to be appointed.
Quarterly review group - multi-agency
Ensure information is regularly collected and made available quarterly for effective review and
monitoring.
 Numbers of homeless
 Applications (and other p1e data)
 Homeless people seeking housing advice
 Support needs and if these are being met
 Sleeping rough
 People leaving temporary accommodation and the outcomes
 Households in temporary accommodation and length of stay
 Repeat homelessness applications
 Monitor tenancy breakdowns and representations by homeless families
 Assessing the cost of providing temporary accommodation
 Looking at outcomes that the strategy has delivered and undertaking an assessment of
them
14. Action Plan
The action plan (appendix 1) indicates the action that is needed to develop and implement the
Homelessness Strategy. The Plan indicates also the lead officer, although in many instances it
is expected that work will be progressed in a multi-agency manner through the proposed
Homelessness Steering Group.
The priority of each task has been shown that reflects the urgency of the issue and the
resources available to make progress. A number of the actions require further investigation and
which may result in the development of costed proposals, which will be considered both
through the usual funding routes and other opportunities that may be presented.