Homelessness Strategy Review - Edinburgh

THE CITY OF EDINBURGH COUNCIL

Homelessness Strategy Review

City of Edinburgh Council

12 March 2009

I Purpose of Report

To submit recommendations, in terms of Standing Order 53, following
consideration of the Homelessness Strategy Review by the Health, Social Care
and Housing Committee.

2 Background

On 3 March 2009, the Health, Social Care and Housing Committee considered
the attached report by the Director of Services for Communities on the review of
the Edinburgh Homelessness Strategy 2008-2012. Councillor Munro had
submitted a motion on the contracts which had been awarded by the Finance
and Resources Committee for the provision of services to homeless people
(non accommodation).

3 Deputation

The Committee heard a deputationfrom UNITE EdinburghVoluntary Sector
Branch on the tendering of services to homeless people (non-accommodation).
The deputation said they had not been consulted on the tendering of the service
and their members were sceptical about the process and were concerned at the
effect on service provision. They asked the Committee to support the motion by
Councillor Munro which asked the Council to actively manage the transition
process to ensure that TUPE applied and to carry out an Impact Assessment on
service provision.

4 Division

Motion

(a) To note the consultationwork undertakento review the Homelessness
Strategy.

(b) To agree the annual position statement for the homelessness strategy for
2009-10.

(c) To note the outcome of the tendering process for homelessness (non-
accommodation) services.

- moved by Councillor Edie, seconded by Councillor Work.

Amendment

(a) To note the decision of the Finance and Resources Committee of
27 January 2009 to award contracts for the provision of services to
homeless people (non accommodation).

(b) To note the request by the Finance and Resources Committee for further
information on the bids received and that this informationwas also

provided to the Health, Social Care and Housing Committee to enable
scrutiny of the bid process.

(c) To agree that:

(i) the transition process be actively managed by council officers to
ensure that TUPE applied as part of the transition process.

(ii) an Impact Assessment be conducted to enable the Committee to
scrutinise the impact on service provision of the new contract
arrangements.

- moved by Councillor Munro, seconded by Councillor Hinds.

5 Voting

The voting was as follows:

For the motion - 12 votes
5 votes
For the amendment -

6 Decision

(a) To approve the motion by Councillor Edie.

(b) In terms of Standing Order 53, the requisite number of members
required that the decision be referred to the Council as a
recommendation.

4Jo n turt

Council Secretary

4 5 .a7

Appendix Report by the Director of Services for Communities
Contacthe1
Wards affected Carmel Riley 529 4830, e-mail [email protected]
Background Papers
City wide

Minute of Health, Social Care and Housing Committee 3 March
2009

+ ED1NBVRGH+ Item no
THE CITY 0 F EDINBURGH CBUNCIL
Report no

Homelessness Strategy Review

Health, Social Care and Housing Committee

3 March 2009

1 Purpose of report

1. I To advise the Health, Social Care and Housing Committee of the review of the

Edinburgh Homelessness Strategy 2008 - 2012 following the review events

held in December 2008. It will also advise of:

the issues facing the homelessness strategy in 2009/10;

0 the priorities for the homelessness strategy in the year ahead; and

the outcome of tendering for non-accommodation homelessness and
support services.

2 Summary

2.1 The latest Homelessness Strategy was launched in April 2008 following a two
year period of consultationwith voluntary sector organisations and user groups.

The five year strategy covered 2008 - 2012 and replaced the previous five year
homelessness strategy from 2002 - 2007.

2.2 Events were held in December 2008 with members of the Homelessness
Planning Group, the Edinburgh Homelessness Forum and the two strategy
implementationgroups. Consensus was achieved on the need to refine the
outcomes of the strategy and to develop a monitoring and outcome framework
that reflects new priorities.

2.3 The Homelessness Strategy included a Commissioning Plan. The Council
embarked upon a tendering process for homelessness services which weren’t
linked to accommodation in 2008. This process resulted in new services
aligned with strategic priorities, with increased capacity and greater efficiency.
The key features are the availability of more support to vulnerable people and
more advice to prevent homelessness. New services will commence in May
2009.

1

3 Main report

Current Context

3.1 Positive progress has been made in implementing the HomelessnessStrategy,
in particular:

Prevention

0 Over one-third of people who receive housing advice do not go on to

present as homeless to the Council. This has increased from 1 in 5

people in 2003.

Access to Housing

More homeless households are being housed. 68% of people have been
found accommodation, 17% above the Scottish national average for

2007 - 08.

0 Lets to homeless households from Registered Social Landlords (RSLs)
have increased significantly. RSLs let 41% of their properties to

homeless households from April 2008 - November 2008. This has

increased from 37% in 2007 - 08.

Over 65% of people who move onto a new tenancy from the PSL
(Private Sector Leasing) scheme access the private rented sector as a
housing outcome. This far exceeds the target of 50%.

3.2 There are areas of work where performance needs to improve, these include:

0 Helping people access the private rented sector. Although there has
been significant improvement in implementing this, the target of 10% of
all homeless households being housed in the private rented sector has
not yet been achieved. Work is ongoing at neighbourhood level to
ensure this target is met.

0 Reducing the number of repeat homelessnesspresentations. 1 in 5 of

those people presenting as homeless, present to the Council more than
once in a 5-year period. The prevention of homelessnessgroup will
focus on reducing this in the coming year.

a Getting people into employment, training, volunteering or education
opportunities. The target is that 1 in 4 people access employability
schemes, our current performance is 1 in 6. New commissioned
homelessnessand support services increase the focus on this area and
will be monitored to ensure outcomes are achieved in 2009 -10.

Implementation Groups

3.3 The key to effective homelessness prevention is good quality, consistent
housing advice. The Prevention of HomelessnessImplementation Group has a
focus on re-aligning current advice provision in line with the implementation of
2

section 11 of the Homelessness etc (Scotland)Act 2003, which from 1 April
2009, places a duty on landlords (except local authority landlords) and creditors
to notify the relevant local authority when they raise proceedingsfor possession
or serve certain other notices. The Council will ensure that advice and
information is provided to prevent homelessness for households threatened
with losing their home.

3.4 At the request of the Edinburgh Homelessness Forum, the group have also
created a checklist of vulnerability indicatorsfor services that do not
traditionally work with homeless households. This checklist will ensure that the
risk of homelessness is identified and prevented at an early stage.

3.5 The Accessing the Private Rented Sector ImplementationGroup is working on
assisting homeless households to find suitable housing in the private rented

sector with a good private landlord. This includes increasing training provision
for staff and creating an email alert for available properties.

Review Process

3.6 Events were held with members of the various homelessness working groups
to identify the challenges for 2009. The following issues were highlighted:

The Scottish Government target to abolish priority need by 2012;

Lack of housing investment and supply;

Credit crunch and recession;

Increased use of the private rented sector to house homeless
people;

Implementationof section 11 of the Homelessness (Scotland) Act
2003 - the duty for landlords and creditors to advise the Council
of action taken to repossess a home;

Increased risk of home repossession;

Increasing unemployment;

Possibility of increased homelessness;

0 The current welfare and housing benefit reform which will put
higher expectationson people to return to work and clear
sanctions on those who don’t meet their obligations; and

Transition to new commissioned homelessness and support
services

Strategic Outcomes

3.7 To respond to these challenges,the review groups agreed there was a need to
refine the current strategic outcomes and produce a revised action plan and
monitoring and outcome framework with short, medium and long term targets.
The Homelessness Strategy Annual Position Statement that can be found at
Appendix 1 sets these out. The agreed refined outcomes are:

0 Preventing Homelessness- wherever possible so that no one need
lose their home;
3

0 Finding a Home - with a good private landlord as the primary housing

option for homeless people;

Keeping a Home - People are supported to sustain their home so they

need not become homeless again.

3.8 The action plan will include measures already being undertakento plan for the

potential impact of recession and possiblejob losses to the Edinburgh
economy. These include:

0 Weekly monitoring of home repossessions;

Revised business processes and training for staff for advice to people
with housing debt problems;

Developingthe process for dealing with notifications of repossessionand
eviction actions by lenders and private landlords to local authorities.

3.9 Homelessness (non accommodation) services were tendered during

September 2008 - January 2009. This was reported to and approved by the
Finance and Resources Committee on 27'h January 2009. This aligns services

to strategy and provides additional resources.

3.11 The CommissioningTeam is working with new and existing providers to ensure

that the planned transition to new services is as comfortable as possible for
customers.

4 Financial Implications

4.1 The review of the Homelessness Strategy will result in more effective targeting
of the resources committed to tackling homelessness. The Annual Position
Statement, found at Appendix 1, contains a financial resources statement.

4.2 The process of tendering for homelessness (non-accommodation)services has
achieved efficiencies as well as a focus on quality and outcomes.

5 EnvironmentalImpact

5.1 Provision of information electronically where possible will limit the
environmental impact.

6 Conclusions

6.1 The regular review of the Homelessness Strategy becomes more important in
the current changing environment. Rising pressures on the economy may result
in increased homelessnessand actions should be put in place to negate this.

6.2 The Homelessness Strategy review has resulted in a refined strategic direction
for the implementationgroups and clear strategic outcomes.

4

6.3 New homelessness and support services will result in increased efficiency,
greater capacity and strengthenedoutcomes for homeless people.

7 Recommendations
That the Health, Social Care and Housing Committee:

(i) Note the consultation work undertakento review the strategy.
(ii) Agrees the annual position statement for the homelessness strategy for

2009 - IO.

(iii) Note the outcome of the tendering process for homelessness (non-
accommodation) services.

Mark Turley
Director, Service for Communities

i \ l t\ a 4

Appendices Appendix 1 - Homelessness Strategy Annual Position Statement 2009

- 10

Contact/tel/Email Kirsty Morrison, Strategy & Research Manager
Tel: 0131 529 7266, [email protected]

Wards affected All

Single Outcome National Outcome 2 - We realise our full economic potential with more
Agreement
and better employment opportunities for our people

National Outcome 7 - We have tackled the significant inequalities in

Scottish Society

National Outcome 10 - We live in well designed, sustainable placers

where we are able to access the amenities and services we need.

Background None
Papers

5

Appendix 1 - Committee Report

Edinburgh HomelessnessStrategy A
Context

The Edinburgh Homelessness Strategy 2008 - 2012 was launched

voluntary sector organisations and user groups. In order to be effe
year, the external environment is very different. The strategy must
financial and political environment.
The reviewed strategy must reflect and respondto the following ari
Political and Leqislative Environment

Scottish Government 2012 target of abolishing
Welfare reform and housing benefit
Increased use of the private rented sector to h
The responsibility for organisationsto inform L
the LA can respond to prevent homelessness
Economic Environment
0 Lack of housing investment and supply in the
0 Credit crunch and recession
0 Increasing unemployment
Increased risk of home repossession
0 Review of accommodation services
0 Transition to new commissioned homelessnes

1 Draft vO.5-

Annual Position Statement 2009 -10

d in April 2008 following a two-year period of consultation with
ective strategy needs to be regularly reviewed. In particular this
ensure it can respond accordinglyto the changing economic,

ising challengesin 2009 - I O :

g priority need
house homeless people
Local Authorities of potential court action to repossess homes, so
(section 1Iof the Homelessness etc (Scotland) Act 2003.
City

ss services

2 February 2009

-Appendix 1 Committee Report

Increase in demand for social housing (shown

-Graph I:Average Number of Bids per Propertv Advertised in EH Your Kev to Cho

Average N u m b e r of Bids
p e r PropertyAdvertlsed

2003 2004 2005 2006 2

Demand for housing far exceeds supply. Graph 1 indicates the inc
Choice since the scheme began in 2003. On average each prope
This makes it even more difficult for the Council to work towards th
every unintentional homeless households by 2012.

The annual position statement aims to:

Refine and prioritise the aims, outcomes and actio
outcomes are:

o Prevention
o Access to Housing
o Sustaining a Tenancy

2 Draft vO.5-

n below)

oice

2007 2008 t i l
end of N o v

creased demand for Council properties through EH - Your Key to

erty advertised attracted 147 bids. An increase of over 506%.

he Scottish Government target of finding a permanent home for

ions of the homelessnessstrategy. The current key strategic

- 2 February2009

~

Appendix 1 -Committee Report

e Ensure that the strategy takes account of the effe

Take account of the transition to new commission
own homelessness and housing support services
Performance

There has been continued progress with the implementationof the
following areas:

Prevention

Over one-third of people who receive housing advice do no
from 1 in 5 people in 2003.

Graph 2: Increase in Housing Advice Cases who do not go on to present a

II Percentage of H o u s i n g Advice

: 2002 2003 2004 2005

I Date period

3 Draft v0.5-

ects of economic recession and unemployment in the city;

ned services and the transfer of the management of the Council's
s to neighbourhoods

e strategy. In particular, positive progress has been made in the

ot go on to present as homeless to the Council. This has increased

as homeless.

e Cases

2006 2007 2008
(to end No")

- 2 February 2009

Appendix 1 -Committee Report

Access to Housinq
More homeless households are being housed. 68% of peop
Scottish national average for 2007/08.
Lets to homeless householdsfrom RSL’s have increased si
households so far in 2008-09. This has increased from 37%
Over 65% of people who move onto a new tenancy from the
sector as a housing outcome. This far exceeds the target of

There are areas of work where performance needs to impr

Access to Housinq
Helping homeless households to access the private rented
work is on-going to embed this practice within neighbourhoo
Sustaininq a Tenancy

1 in 5 people present to the Council more than once in a 5-y

reducing this as a priority in the coming year.
More people should be helped to access employment, train
in 4 people access employability schemes; our current perf
support services will be monitored on this to ensure outcom

4 Draft v 0 . C

ple have been found accommodation, which is 17% above the
ignificantly. RSLs have let 41% of their properties to homeless
% in 2007-08.
e PSL (Private Sector Leasing) scheme access the private rented

f 50%.

rove, including:

sector. The target has not yet been achieved on this, although
ods.

year period. The prevention of homelessnessgroup will focus on

ning, volunteering or education opportunities. The target is that 1
formance is 1 in 6. New commissioned homelessness and
mes improve.

C 2 February 2009

Appendix 1 - Committee Report

Refined Strategic Outcomes
The review is an opportunity to streamlinethe current strategic out
seeks to help people:

0 Prevent Homelessness- wherever possible so that

0 Find a Home - with a good private landlord is the pri

0 Keep a Home - People are supported to sustain thei

Key Performance Measures
Preventing Homelessness

Dresent as homeless N/A
16.5%
I! (30of people who do not present as homeless following
housing debtlrepossession advice

% of non-priority assessment decisions as a homeless
assessment outcome

5 Draft v0.5-

tcomes and put across a consistent message that the strategy
t no one need lose their home;
imary housing option for homeless people;
ir home so they need not become homeless again.

89% (Oct -
Dec 08)
17.3%

- 2 February 2009

Appendix 1 - Committee Report
Finding a Home

outcome is housed in an RSL tenancy 40%
275
O/O of people in Private Sector Leasing housing who

move onto a new home move to the private rented
sector

Nos of households in B & B accommodation per night

Keeping a Home

6 Draft v0.5-

Long ter -!~
_ _ l _ _ _

target

(2012) 7
12.5%

66% 70% 70% I
300 200 50

2 February 2009

Appendix 1 -Committee Report

Key Ac

Strategic Outcome: Preventinq Homelessness

1. Outcome: No-one becomes homeless as
Action: Implementationof section 11 req
Timescale: March 2009
Owner: Housing Advice & InformationSt
Evaluation: % of people who do not present

2. Outcome: Increased awareness of the ris

Action: function is not homeless
Timescale: Implementationof the vulnerabil
Owner: April 2009
Evaluation:
Prevention of Homelessness Im

YOof housing advice cases who

3. Outcome: Increase in housing advice pro
homelessness
Action: Develop and implement a revise
Timescale: December 2009
Owner: Housing Advice & InformationS
Service
Evaluation:
YOof housing advice cases who

7 Draft v 0 . C

ctions

s a result of being threatened with repossession
quirementsof the Homelessness (Scotland) Act 2003
trategy Team (HAIST)
t as homeless following housing debtkepossession advice
sk of homelessness and triggers to services whose primary
lity indicatorschecklist.
mplementationGroup
do not go on to present as homeless
ovision at neighbourhoods resulting in prevention of
ed Housing Advice Strategy
Strategy Team (HAIST) & Commissioned Advice & Information
do not go on to present as homeless

C 2 February 2009

-Appendix 1 Committee Report

4. Outcome: Reduction in non-priority asse
Action: Analyse the priority need catego
Government 2009 target.
Timescale: March 2009
Owner:
Evaluation: SfC - ssu

5. Outcome: Reach Scottish Government targ
Action: priority decision.

Timescale: No one becomes homeless up
Owner: Ensure advice and information o
Evaluation: institutional settings or that a pla
institutional setting.
on-going
Internal staff and commissioned
Reduction in people presenting a

Strategic Outcome: Finding a Home

1. Outcome: Increase the number of homel

Action: a solution to their housing nee
Timescale: Encourage landlords to let housi
Owner: on-going
Evaluation: Access to the Private Rented Se
% of homeless people who get a

2. Outcome: Increase the number of homel
Action:
a solution to their housing nee
Work with neighbourhoods to en
range of housing options availab

8 Draft vO.5-

essment decisions following a homeless assessment
ories that need reviewed to ensure compliance with the Scottish

get of 15% of all homelessnessassessmentsthat result in a non-

pon release from prison/hospital/armed forces
outreach is provided to people who have been released from
an is in place for retaining housing or rehousing when entering an

services.
as homeless from hospital/prison/armed forces.

less people getting access to the private rented sector as
ed
ing to homeless people.
ector Implementation Group
access to the private rented sector as a housed outcome
less people getting access to the private rented sector as
ed
nsure homeless people receive advice and information about the
ble to them.

2 February 2009

-Appendix I Committee Report

Timescale: March 2010
Owner: Access to the Private Rented Se
Evaluation: % of homeless people who get a

3. Outcome: Homeless households are pro
options.
Action: Ensure people moving on to a n
Private Rented Sector as a prim
Timescale: on-going
Owner: Orchard & Shipman
Evaluation: % of all people who move on fro

4 Outcome: Less people access B & B as a
Action: Reduce the number of people a
Timescale: on-going
Owner: Homelessnessand advice staff
Evaluation: No's of people in B & B on a nig

Strategic Outcome: Keeping a Home

1. Outcome: Decrease in people presenting
Action: Target support and advice to tho
Timescale: March 2010
Owner: All staff. Monitored through the P
Evaluation: % of people presenting as home

2. Outcome: Increase in people accessing
Action: Ensure all services refer onto em
Timescale: March 2010.
Owner: All internal and commissioned s

9 Draft v 0 . C

ector Implementation Group
access to the private rented sector as a housed outcome
ovided with advice and information on the range of housing
new tenancy from the Private Sector Leasing Scheme access the
mary housing outcome.

om PSL to the Private Rented Sector
a temporary housing option

accessing B & B by offering other housing options .

ghtly basis.

g more than once in a 5-year period

ose most vulnerable. .

Prevention of HomelessnessGroup.
elesswho have been homeless in the last 5 years
employability opportunities
mployability schemes when they first come into contact.
service staff.

C 2 February 2009

-Appendix 1 Committee Report % of homeless people who are u
education
Evaluation:
People are supported to estab
3. Outcome: Where required homeless peopl
Action: March 2010
Timescale: All internal and commissioned se
Owner:
Evaluation: YOof people presenting as home

4. Outcome: People have access to suppor
Action: Homeless people are assessed
Timescale: March 2010
Owner: All internal and commissioned se
Evaluation: % of people presenting as home

5. Outcome: People who have been homele
Action : Ensure that people can get acce
resettlement and maintaining a h
Timescale: March 2010
Owner: NHS Lothian.
Evaluation: % of people provided with a loca

10 Draft v 0 . C

unemployedwho move into employment, training, volunteering or

blish a home when allocated a tenancy
le are referred to the establishing a home service.
ervice staff.
elesswho have been homeless in the last 5 years
rt to keep their home
for support needs to keep their home.
ervice staff.
elesswho have been homeless in the last 5 years
esscan access the full range of health services
ess to primary health care and specialist services to assist them in
home.

al GP and local services

C 2 February 2009

h

-Appendix 1 Committee Report

Statement of Resources
In 2008/09, the City of Edinburgh Council is projected to spend ove
homelessness services. In the same year 2008/09, the Council is
council run services to people who are homeless. This includes se
costs.

The table below shows the allocation of funding against each of the
projected spend for the years 2008/09 and 2009/10 reflecting our k

Actual 07/08 Prevention Access a Home
Projected 08/09
Projected 09/10 f364,412 f 1 ,I99,078
f 364,412 f 1 ,I99,078
f995,433 f 1,037,316

11 Draft vO.5-