Homeless Strategy

2013 – 2016

1.0Introduction

The most acute form of housing need is homelessness. While the overall level of homelessness in West Dunbartonshire has fallen continuously since the introduction of the Homelessness Strategy in 2008, many households still present as homeless in West Dunbartonshire every year.

The experience of homelessness significantly impacts on an individual’s life in a magnitude of different ways. People who have been homeless are more likely to experience mental illness, addiction issues and legal /debt problems. They are more likely to have limited training and employment opportunities. And they have greater potential for becoming homeless again in the future.

Homelessness strategies are now incorporated within the Local Housing Strategy. However some local authorities will still have their own Homelessness Strategy. West Dunbartonshire as an area with the highest homelessness rate per population level will be one of these authorities. The homelessness strategy ‘Ending Homelessness in West Dunbartonshire: West Dunbartonshire Homelessness Strategy 2008-2013’has been reviewed and a new homelessness strategy has been developed for the period 2013- 2016.

The focus in this homeless strategy is very similar to the previous one. The main focus is on

  1. Prevention
  2. Housing support and tenancy sustainment
  3. Housing options
  4. Commitment and partnership working

2.0Legislative background

The 1977 Act placed the responsibility for meeting homeless persons’ needs on local authority housing departments subject to national guidance.

This Housing (Scotland) Act 2001 brought about a series of changes that included: Local authorities had to assess homelessness within their area and to submit strategies and approaches for its prevention and mitigation of homelessness. Local authorities had a duty to ensure advice and information is available in their area and free of charge. New single regulatory framework for Registered Social Landlords (RSLs) and local authorities defined to cover local authorities’ homelessness functions. Rights of individual homeless people strengthened. They were given the right to temporary accommodation even if in non-priority need. All homeless applicants are given the right to internal review of adverseconditions. Minimum rights given to people living in hostels, RSLs were given a duty to comply with requests from local authorities to accommodate unintentionally homeless households in priority need within six weeks.

The Homelessness (Scotland) Act 2003 brought about fundamental changes to homelessness in Scotland. One of these changes was the abolition of priority need by 2012. This means that anyone who is unintentionally homeless will be given the right to temporary accommodation and a statutory duty to have permanent accommodation found by the local authority. In December 2005, the then Scottish Executive issued a Ministerial Statement on how the Act was to be implemented. The main requirements of the Act were;

•Priority need assessment is to be abolished by 2012.

•The requirement of landlords and creditors to notify the relevant local authority when they raise repossession proceedings

The Homelessness etc (Scotland) Act 2003 took five of the Homelessness Task Force’s recommendations into legislation. Local Authorities are monitored against the other 54; principally their performance against the 5 high level national outcomes designated by the Homelessness Monitoring Group in 2004:-

•No-one need sleep rough

•Existing homelessness becomes more visible

•Sustainable resettlement is secured for people who become homeless

•Fewer people become homeless in the first place

•The duration of homelessness is reduced

The Housing (Scotland) Act 2010 placed a duty on local authorities to assess the housing support needs of homeless or threatened with homeless households where they believe that households is in need of a prescribed housing support service. It also states that local authorities must ensure that this support is provided.

3.0Strategic links

Homelessness is a complex issue that is rarely solved by just housing. The response to it therefore must come from the Council as a whole, and in partnership with other statutory and voluntary organisations. There was some pre-consultation with all partner agencies invited to have their say in how this new strategy should look and what they felt were the main priorities.

It is therefore essential that other the Homeless Strategy has links to other Council and Partnership strategies.

The West Dunbartonshire Community Planning Partnership Community Plan 2007-2017 is the overarching strategic plan for the whole of West Dunbartonshire and it reflects the close links between the council and a wide range of planning and service delivery partners from the public, private, and voluntary sectors. All other strategic plans prepared by WDC and its partners are linked to and integrated with the Community Plan to ensure that they complement and support community planning at all levels.

The Community Plan has several links to the Homelessness Strategy such as the aim to resettle homeless households in sustainable tenancies and minimise the level of repeat homelessness. This will be realised by developing a range of programmes and joint services to prevent homelessness and support households when and as required.

TheWest Dunbartonshire Council Strategic Plan 2012-2017provides a sense of direction that will guide the work of Council’s services over the next 4 years. It sets out a vision for a West Dunbartonshire, shared by all our partner agencies. The key priorities are

  • Improve economic growth and employability.
  • Improve life chances for children and young people.
  • Improve care for and promote independence with older people.
  • Improve local housing and environmentally sustainable infrastructure.
  • Improve the wellbeing of communities and protect the welfare of vulnerable people

The Local Housing Strategy 2011-2016 (LHS) identifies the housing issues that affect communities of West Dunbartonshire Council and set out an action plan for tackling these over the period of the strategy. Homelessness strategies are now incorporated within the Local Housing Strategy. However some local authorities will still have their own Homelessness Strategy. Some of the key actions to take forward from the LHS are;

  • Develop and Implement a new West Dunbartonshire Homelessness Strategy 2012-2016;
  • Implement a new temporary accommodation strategy;
  • We will develop and implement an Empty Homes Strategy which will seek to bring empty properties back into use in West Dunbartonshire;
  • Strengthen partnership with WD CHCP and Employability Services;
  • Continue to work in partnership to tackle homelessness in West Dunbartonshire;
  • We will introduce a housing options approach to ease access to suitable accommodation for West Dunbartonshire households;
  • improve tenancy sustainment levels in West Dunbartonshire;
  • We will carry out a review of Housing Support in West Dunbartonshire to plan for future service provision

The Temporary Accommodation Strategy 2012 – 2016 is to ensure that West Dunbartonshire Council and its partners are able to deliver a range of temporary accommodation across the local authority area to meet the divergent needs of our customer base. The keys expected outcomes from the strategy are;

  • We will ensure there is a sufficient supply of good quality and appropriate temporary accommodation that meets the needs of homeless households.
  • Temporary accommodation is accessible, affordable and well managed.
  • Support is provided where necessary, that meets the needs of homeless households in temporary accommodation.
  • The length of time spent in temporary accommodation is appropriate to the individuals needs, but that overall the length of time spent in temporary accommodation is reduced.
  • The views of homeless households placed in temporary accommodation are considered, especially for service development.
  • We will ensure a consistent spread of temporary accommodation across West Dunbartonshire to avoid concentration and stabilise communities

There are a number of other strategies and action plans that work alongside the Homelessness Strategy.

  • Anti-social behaviour Strategy
  • Homelessness and Health Action Plan
  • Adopting a common approach to tenancy sustainment
  • Homelessness Prevention Action Plan

3.1Equal opportunities

The planning and delivery of good quality housing and appropriate advice and information services in West Dunbartonshire embraces the principles of equal opportunities. The Councils Equality Scheme sets out how the Council will meet objectives in relation to race, disability, gender, age, religion & belief, sexual orientation and transgender status.

The Equality Act 2010 replaced all previous equality legislation such as the Race Relations Act, Disability Discrimination Act and Sex Discrimination Act. The act came into force on 1 October 2010 and provides a legal framework to protect the rights of individuals and advance equality of opportunity for all. It simplifies, strengthens and removes inconsistencies in the current legislation to provide Britain with a new discrimination law which protects individuals from unfair treatment and promotes a fair and more equal society.

Theact covers nine protected characteristics, which cannot be used as a reason to treat people unfairly.Every person has at least one of the protected characteristics, so theact protects everyone against unfair treatment.The protected characteristicsare:

  • age
  • disability
  • gender reassignment
  • marriage and civil partnership
  • pregnancy and maternity
  • race
  • religion or belief
  • sex
  • sexual orientation

It is recognised that homelessness is an area where prejudice and discrimination is common. Individuals at risk from homelessness include people with alcohol and drug issues, people involved with the criminal justice system and people with mental health issues. Homeless people are themselves by definition disadvantaged and frequently experience more difficulty than others in accessing mainstream services. It is recognised that some groups of individuals can be subject to ‘double oppression for example Lesbian, Gay, Bisexual and Transgender (LGBT) community and minority ethnic groups.

Therefore, all the actions proposed in this and related strategies are aimed at overcoming disadvantage and tackling the exclusion of groups of individuals experiencing homelessness. The diversity of individuals is recognised therefore the homelessness strategy aims to ensure that in the development and delivery of services to end homelessness in West Dunbartonshire, the needs of individuals and particular groups are addressed.

3.2Minority ethnic communities

We continue to receive low numbers of homeless presentations from the minority ethnic communities as detailed below:-

Table 3.1: Ethnicity and homelessness decisions in West Dunbartonshire in 2011/12

Row Labels / Ethnic Group / Unintentionally homeless / % unintentionally homeless / intentionally homeless / % intentionally homeless / Not homeless / % Not homeless / Withdrew application prior to assessment / % Withdrew application prior to assessment
White Scottish / 1484 / 1006 / 68% / 91 / 6% / 48 / 3% / 332 / 22%
White other British / 36 / 26 / 72% / 1 / 3% / 2 / 6% / 7 / 19%
White Irish / 3 / 3 / 100%
White other / 12 / 4 / 33% / 1 / 8% / 5 / 42%
Black, black Scottish or black British: African / 6 / 3 / 50% / 2 / 33%
Asian, Asian Scottish or Asian British: Indian / 2 / 2 / 100%
Asian, Asian Scottish or Asian British: Chinese / 1 / 1 / 100%
Other / 7 / 4 / 57% / 2 / 29%
Grand Total / 1551 / 1049 / 68% / 96 / 6% / 51 / 3% / 344 / 22%

From the table above it can be seen that 1484 (95%) of homeless presentations in 2011/12 were from households who were white Scottish. 36 were White British other and 12 were white other. The table also shows the homeless decisions in the same year. It shows that here 6% of white Scottish households, and 3% of White British other were assessed as intentionally homeless. However, 33% of Black, Black Scottish or black British (African) and 29% of other were assessed as intentionally homeless. Although these are proportionately high and the actual figures are not high is something that needs further research.

3.3Eligibility for assistance

The majority of homeless households who present to the council are eligible for assistance. The table below shows that only 4 households who presented to the council as homeless were not eligible for assistance between 2011/12.

Table 3.2: Eligibility status for homelessness assistance in 2011/12 in West Dunbartonshire

Eligibility status / number / %
They are British citizens or nationals of one of the EEA countries, pre EU expansion in 2004, or Switzerland / 1523 / 98%
They are nationals of one of the A8 countries (which joined the EU in 2004) or other countries to have joined the EU since / 10 / 1%
They are not nationals of one of the above countries, but are lawfully present in the UK (e.g. because they have been granted refugee status or leave to remain) and meet the criteria for eligibility / 14 / 1%
Not eligible for assistance / 4 / 0%
Grand Total / 1551 / 100%

3.3LGBT community

National evidence suggests young LGBT are more likely to become homeless. At present homeless presentations from the LGBT community are not monitored. However, we recognise evidence that suggests that homelessness is a major issue, especially among the young LGBT population.

There is a lack of monitoring surrounding the LGBT community which can lead to a lack of awareness of the housing need of this particular community. We aim to improve on this and enable this community to access the appropriate help and support to prevent homelessness

3.4Gypsies/travellers

In 2011/12 1% of households who presented as homeless stated that they were a gypsy/traveller. Gypsy/Traveller communities are regarded by West Dunbartonshire Council as a minority ethnic group, and as such come under the protection of the Race Relations Act 1976 as amended in2000 and the Council’s Race Equality Scheme. There is currently no explicit legal recognition of this in Scotland although there are strong arguments that Scottish Gypsies/Travellers are a racial group in terms of the RRA, with specific needs and aspirations.

In the West Dunbartonshire area there is one established Gypsy/Traveller community, based on a 20 pitch site in Dumbarton. The site is for permanent residents and is very popular with mainly long standing residents. There are also a number of families who travel through the area throughout the year, and we are aware that some Gypsies/Travellers have settled in housing in the area. A count undertaken in July 2007 showed 5 households in unauthorised encampments in West Dunbartonshire. As of 2007/08 we began collecting information on the number of Gypsies/travellers making homelessness presentations within West Dunbartonshire.

In partnership with neighbouring local authorities Craigforth consultancy was commissioned to undertake ‘An Accommodation Assessment of Gypsies / Travellers in West Central Scotland‘. This assessment will inform the development of the next Local Housing Strategy to address the housing needs of gypsy/travellers in West Dunbartonshire.

4.0 Review of current strategy

The homelessness strategy ‘Ending Homelessness in West Dunbartonshire: West Dunbartonshire Homelessness Strategy 2008-2013’was structured around the following strategic aims:

  • To prevent homelessness occurring in West Dunbartonshire
  • To improve the range of housing options available in West Dunbartonshire and to respond effectively to households in homelessness crisis
  • To ensure a sustainable solution for individuals who have experienced homelessness
  • To ensure a commitment to continue to develop and improve services to tackling homelessness through a partnership approach

Aim 1 - To prevent homelessness occurring in West Dunbartonshire

Prevention always has and always will be high on the agenda of any homelessness service. It is widely recognised that if we can support people to remain in the home they are in, or move to a new more appropriate home, then we can prevent a homeless episode. Ending Homelessness in West Dunbartonshire: West Dunbartonshire Homelessness Strategy 2008-2013’ recognised that prevention is a long term goal and one which the council is still working on.

Some achievements so far…..

  • An improved homeless prevention and advice and assistance service shown by an overall reduction in the number of homeless presentations;
  • There has also been a reduction in the number of presentations from young people throughout West Dunbartonshire;
  • The introduction of a Homelessness prevention and mediation pilot;
  • The introduction of an housing education pilot in partnership with our Education partners;
  • A number of discharge protocols have been put in place successfully;

Although there has been a significant improvement in the number of young people presenting as homeless the numbers are still high.

Aim 2 - To improve the range of housing options available in West Dunbartonshire and to respond effectively to households in homelessness crisis

Ending Homelessness in West Dunbartonshire: West DunbartonshireHomelessness Strategy 2008-2013 aimed todevelop processes which would enable us to meet the needs on the local community. While this strategy was being implemented Housing Options grew on the national and local homelessness agenda, and is an important part in the new strategy.

Some achievements so far…..

  • A housing options guide was developed
  • Extended use of Short Scottish Secure tenancies to promote successful independent living;
  • An increase in temporary flats offering more choice homeless households;
  • A new Blue Triangle supported accommodation project has been opened as a response to increased numbers of homeless households with support needs;
  • A revised allocations policy;
  • Improved standards in temporary accommodation;

There has been a lot of work put in to increasing options for people in housing need but there is still great pressure on the housing stock. This pressure will only get worse because of welfare reform.

Aim 3 - To ensure a sustainable solution for individuals who have experienced homelessness

The previous strategy emphasised that homelessness was not purely a housing issue and that a network of support is required for a sustainable solution. Often homelessness is the result of a much wider issue in an individuals life. The strategy worked to develop sustainable long term solutions and stop repeat homelessness.

Some achievements so far…..

  • Income Maximisation through the Welfare Rights Team;
  • Increased use of the private rented sector to provide sustainable housing solutions;
  • We have developed a temporary accommodation action plan
  • We work in partnership with the HNS to ensure the homelessness and health action plan is fully implemented

Aim 4 - To ensure a commitment to continue to develop and improve services to tackling homelessness through a partnership approach

Ending Homelessness in West Dunbartonshire: West DunbartonshireHomelessness Strategy 2008-2013 was committed to delivering the obligations set out in the 2001 Act and 2003 Act. West Dunbartonshire was one of the first councils in Scotland to abolish priority need in January 2011. This was achieved by developing a corporate approach and all agencies played a key role in this outcome.