Developing Positive Accommodation and Support Pathways to Adulthood

Developing positive accommodation and support pathways to adulthood:

Minimising the risks of youth homelessness and supporting successful transitions for young people

The content of this paper has been developed with the advice of leading homelessness organisations and local authorities. It is based on local practice, anecdotal information, available data, visits to local authorities and national research. The content within this paper builds upon the Government’s second report on homelessness “Making Every Contact Count”[1] but does not represent Government view or policy on youth homelessness.

Please contact DCLG Youth Homelessness Adviser, Anna Whalen ( ) if you wish to feedback or ask any questions about the content of this document.

Introduction:

The Positive Pathway outlined in this document does not only focus on accommodation, although without suitable housing and the stability that brings, vulnerable young people, at risk of homelessness, are highly unlikely to achieve positive outcomes in other parts of their lives. Integral to the success of the Positive Pathway described below is an integrated approach from agencies, working together to support young people in terms of:

• achieving in education
• career success and resulting economic independence
• being healthy, both physically and mentally
• having positive relationships with peers, family and within local communities
• involvement in meaningful, enjoyable activities, including volunteering, sports and arts

To achieve these outcomes for some of the most vulnerable young people in our country, avoidance of homelessness is critical. Homelessness, or imminent homelessness, is still the catalyst into independent living for too many vulnerable young people. It is well documented that for young people homelessness is not only about lack of accommodation, but the complex interplay between family relationships, childhood experience, social and economic disadvantages, individual resilience and experience at school, college, training and employment.[2]

The experience of homelessness at a young age is not only stigmatising, but can, without effective support and accommodation options; result in long-term poor outcomes. Many young people report their experience as traumatic, leading to dropping out of education, training or employment and resulting benefit dependency. There is a significantly higher risk of mental health problems[3], substance misuse, anti social behaviour, crime and involvement in gangs. It is not, therefore, in young people’s best interests to become homeless if this can be prevented, nor is it in the interests of wider society, in terms of negative impacts on communities and the cost to the public purse.

A number of leading youth homelessness agencies, national homelessness organisations, local authorities and housing associations [4] have, in different ways, contributed to the development of the positive pathway which is described within this paper. They recognise and have long advocated for the need to get away from what is seen as a “deficit” approach to meeting young people’s accommodation and support needs. The “deficit” model is framed around imminent or actual homelessness being the trigger to getting a response to housing need from local authorities and other service providers. And too often there is a focus on the single issue of homelessness, missing the opportunity to look at the other needs a young person is likely to have. Sorting out housing alone will not, in itself, support the successful transition to adulthood for most young people who have to leave their family home at a young age.

This paper brings together some of the research, effective practice and discussion that has already taken place around what works well for all young people aged 16 – 25 to reduce the risk of homelessness, address and support the other critical parts of their lives, such as career development, health and positive relationships and have a successful transition to adulthood.[5]

Building on what works well:

There has been significant progress over the last few years in England to improve homelessness prevention and outcomes for young people who do become homeless. The starting position for this paper is one based on what we know works well already, building on positive approaches already used by the voluntary sector, some housing associations and local authorities. Some local areas are reshaping and integrating local services for young people from disadvantaged backgrounds who, at the point of transition to adulthood, need advice and support, not just around accommodation options, but other elements of their lives as they become more independent. If we want to lift vulnerable and disadvantaged young people out of the kinds of social exclusion associated with homelessness, we need a positive transition pathway, not reliant on homelessness as the trigger point, and with a range of accommodation and integrated support options, including education, training and employment.

A progression to adulthood:

A principle underpinning this paper is the promotion of a positive transition to adulthood - the concept of young people on their individual journeys to adulthood, generally progressing forward. Accommodation is a critical part of that journey. It is essential to, for example, the ability to take up and sustain education, training or employment. For most young people, accommodation at this point in their early adult lives is not usually viewed as long term, but as a stepping stone to where they want to be, whether it is staying within the family home, a hall of residence, a foyer or hostel, or sharing with friends. Flexibility and mobility is needed when so much is changing, in terms of work opportunities and relationships.

Too often for young people who are homeless, they have missed out on the experience of progression through different types of accommodation and moved straight from temporary accommodation into their own tenancy in social housing. Whilst this may be an appropriate responsein the circumstances, it has not resulted in positive outcomes for many, anecdotally, for example, resulting in social isolation, unemployment, debt, tenancy failure and a “revolving door” situation.

The picture in 2012:

Youth homelessness is reported to be rising[6] in many areas of England and there is a risk this reported trend could continue, given the current context of youth unemployment, the economic downturn and the pressures on low income families, combined with some of the changes within welfare reform, reduction of some public services and the general squeezing of housing supply and affordability of accommodation, particularly for young people.

In the housing market young people, particularly those who are disadvantaged economically, are at the bottom of the pile: they face greater economic disadvantage than any other group; they lack experience in finding and sustaining accommodation and are discriminated against by both social and private landlords due to their age and associated perceptions about a range of risks as prospective tenants. Leading homelessness agencies[7] have pointed to the potential impact of welfare reform on young people at risk of homelessness, in particular changes to Housing Benefit[8]. Although there is no hard evidence at this point, many agencies anticipate the changes will result in the most vulnerable young people being displaced out of previously available accommodation in the private rented sector market by their older counterparts who are now competing for the same types of accommodation.

In the absence of more positive options for disadvantaged young people, getting into crisis and becoming homeless could continue to be a well trodden path unless new approaches and pathways into accommodation can be developed. Legislation is in place to protect some young people’s housing situation when it cannot be resolved and this paper in no way seeks to minimise or side step the legal obligations contained within both the Children Act 1989 and the Housing Act 1996. But the majority of single young people aged 18 – 25 with housing needs do not fall within this legislative safety net. It is this group we need to be most mindful of in policy terms.

In spite of all the pressures, the changes locally and nationally, and the unknowns ahead, there are real positives to draw on from effective, innovative practice in many local areas. This paper will outline broadly through describing the positive pathway elements some of the interesting and effective practices.

What would a positive pathway achieve?

The overall desired impact of a positive accommodation and support pathway for young people echoes the 2012 Social Justice: Transforming Lives strategy[9], and is ultimately much more than simply a roof over a young person’s head. It is about supporting young people to be active, aspiring, confident young citizens, taking up opportunities to further their economic independence and wellbeing:

Prevention of youth homelessness in the first place

The average age at which young people leave home is reported to be rising. For many there is an option of staying in or returning to the parental home if they need to, for example, after university or if they are unemployed. But not all young people are able to remain at or return home in their late teens and twenties. There are a wide range of reasons why young people leave home in an unplanned way– tension with step parents, on going conflict, overcrowding, financial hardship, substance misuse and in some cases, physical and sexual abuse.

But research has evidenced that becoming homeless at a young age creates additional disadvantages for individuals[10] in terms of, for example, their economic, physical and emotional well being. Where it is safe and its possible, young people are usually better staying at home and planning a positive move out of the family home when they are ready or need to move out – this will result in better outcomes for young people. Early intervention and prevention work, both of a universal and targeted nature, reduces the risks associated with homelessness at a young age by reducing the numbers of young people in crisis and homeless.

Recovery and economic independence for those young people who are not able to stay within the family network:

For young people who do leave home in an unplanned way, or cannot stay in the family home, the desired ultimate impact is to achieve economic independence. The ambition should not be only that young people are in suitable accommodation, however, suitable accommodation is the foundation stone upon which young people are able to participate in education, training or employment. It supports recovery, in terms of good physical and mental health, reduces risks of substance misuse, offending and promotes stronger communities as a result. Conversely, the impact of living in poor, unsafe and insecure accommodation is increased risks of being NEET, loss of tenure and repeat homelessness, debt, involvement in crime, anti social behavior, substance misuse and poor physical and mental health.

These aspirations are supported by young people. The Young Foundation have recently published, on behalf of the Catalyst Consortium, a framework for outcomes[11] for all young people, not only those at risk of homelessness. They held focus groups with young people and the following outcomes were identified by young people as their priorities:

• achieving in education
• career success
• being healthy
• having positive relationships
• involvement in meaningful, enjoyable activities

Assumptions that underpin a positive pathway:

• Young people are not a homogenous group, there is significant variation in the age at which they leave the parental home, the support parents/family provide, the type of accommodation they first move into and the reasons for moving out of the parental home.

• The homelessness route is a negative and stigmatising experience for young people and should be avoided wherever possible by the provision of a range of other housing, support and advice options to meet the different needs of young people.

• Young people need to be given clear information whilst still at school/college about housing options and realities of living independently, in terms of choice, hidden costs, sharing of accommodation and landlord expectations.

• It is usually the most vulnerable and disadvantaged young people who leave the family home earliest and with no support or option to return home. Local authorities and schools already know which young people are at high risk of homelessness before they reach the age of 16. It is possible to prevent homelessness and plan with these families the routes young people will take if they cannot stay at home.

• An integrated approach locally is most likely to deliver effective prevention and successful transition support with, for example, local voluntary sector providers, Housing authorities, housing associations, Children’s social care/family support services, youth services, Job Centre Plus, education and training providers, employers, specialist and primary health providers, National Careers Service, Youth Offending Services, Probation Services

• Different young people have different levels of need when they live independently of their families– a small minority need intensive support to make a successful transition to adulthood, whilst others need minimal or “light touch” support. Supporting People funded accommodation based provision is predominantly for those with high and medium level needs.

• A successful transition to adulthood for young people with higher needs requires an integrated approach from a range of agencies – provision of housing alone will not be enough to secure positive outcomes.

• Each local area has its own unique housing market conditions and will create local solutions to youth accommodation needs, based on local circumstances and opportunities.

• Accommodation should be affordable and its cost should not be a barrier for young people taking up training, apprenticeships or employment.

• The pathway should be a progression and help young people with their aspirations. But it also needs to allow for young people making mistakes as part of their learning and experience as young adults.

• Mobility is critical for young people entering the world of further education, training and employment: issues of local connection, which arise through the use of the homelessness route for housing, are not helpful and limit young people’s ability to take up opportunities beyond their own local authority area

• The housing market is not currently meeting the accommodation needs of young people, but is more likely to respond positively to a gap if confidence in local areas can be created through pro actively offering an integrated pathway approach which will lessen perceived and actual risks for private landlords

• Despite the housing shortage, there are real opportunities to open up supply and develop new accommodation options for young people: for example, there are innovative approaches under development in both the voluntary and statutory sector which need to be piloted, there is learning from Crisis’s funding of youth private rented access schemes.

What are the underpinning features of a positive pathway approach for young people?

Moving to a positive accommodation pathway approach draws on the rationale and principles behind a Community Budget approach at a local level to achieve a change in culture, to get better outcomes for young people and reduce the costs to the taxpayer. We know which factors make a real difference to the outcomes for disadvantaged young people:

• A whole systems, integrated approach to preventing youth homelessness and supporting, where necessary, young people’s planned moves to independence through a positive pathway
• An ethos which places young people and their parents/families at the heart of planning and delivery – significant, supportive relationships with one or two skilled professionals are often the key for young people making a successful transition
• Developing services and practices which invest in early intervention rather than just reacting to crisis
• Provision of seamless, easy to use services, making better use of resources through joining up and co-ordinating of services, including pooling the budgets of all agencies where it is effective to do so, including local knowledge, community assets and voluntary effort
• Providing information and advice across all stages of the pathway, not only about housing, but on other aspects of young people’s lives as they make the transition to adulthood
• A progression to independence for young people, through having a range of accommodation options to meet different needs
• Involving young people in how services are shaped and delivered leads to excellence in provision and gives young people important learning opportunities for the future

An explanation of the Positive Pathway: