DRAFT Document - 15th March 2013

“West Regional HOMELESSNESS Action Plan”

2013 - 2016

Roscommon County Council

Comhairle Chontae Ros Comáin

TABLE OF CONTENTS

  1. Background & Context to Action Plan

2. Strategic Aims & Actions

(1) Reduce Homelessness through Preventive

Measures

(2) Eliminate Any Need for People to Sleep

Rough

(3) Eliminate Long Term Homelessness &

Reduce the Reliance on Emergency

Accommodation

(4) Provide Adequate & Appropriate Housing &

Support for Homeless People

(5) Better Co-ordination & Integrated Delivery

to Ensure Efficient Services

(6) Effective arrangements for monitoring and implementation

3. National Policy/Local Policy Context

4.Current Service Provision in the Region

  1. Implementation Blueprint of Homeless Services
  1. Monitoring, Evaluation & Progress Reports

Appendix 1

Appendix 2

BACKGROUND & CONTEXT TO ACTION PLAN

For the purposes of this Homeless Framework Plan the definition of homelessness is that as has been defined in the Housing Act of 1988 as:

  1. there is no accommodation available which in the opinion of the authority the together with any other person who normally resides with him or who might reasonably be expected to reside with him can reasonably occupy or remain in occupation of;

or

  1. he is living in a hospital, county home, night shelter, or other institution and is so living because he has no accommodation of the kind referred to in paragraph (a).
  1. he is, in the opinion of the authority, unable to provide accommodation from his own resources.

In accordance with the Housing (Miscellaneous Provisions) Act 2009, Part 2, Chapter 6, Section 40 (10). Galway City Council as Lead Authority for the Western Region instructed the Regional Homelessness Management Group to prepare a new West Regional Homelessness Action Plan for the period 2013 to 2016. The actions outlined in this plan are a combination of recommendations from the review of homeless services within the region in 2010 and a follow on from the previous action plan. It is envisaged that these new provisions will help to make homelessness a more central element of the housing authority functions while promoting a more planned approach to homeless services throughout the region.

The Plan has been developed following the principles of the current national homeless strategy "The Way Home: A Strategy to Address Adult Homelessness in Ireland 2008 - 2013". The development of this Plan has been cognisant of the Governments Housing Policy Statement released in June 2011 and further endorsed in February 2013, which highlighted the need to explore a Housing First (Led) approach and to achieve a maximum return for the resources invested in homeless services.

The West Regional Homelessness Action Plan 2013-2016 will provide a platform for the continued provision of high quality person focused services with access to the appropriate supports to live independently. The Plan will place an emphasis on strengthening preventative policies, procedures, working relationships and services to reduce levels of repeat homeless, thus reducing the overall level of homelessness within the region. In particular this Regional Action Plan aims to address the needs of the long-term homeless currently resident in emergency facilities by identifying the gaps preventing their resettlement.

In terms of the implementation of the adopted Regional Homelessness Plan, each Local Authority Area will develop an Implementation Plan/Blueprint based on the actions contained in the Regional Plan. This process will give effect to the actions contained in the Regional Plan and provide a key level of involvement to Voluntary and Statutory groups at a local level.

The Regional Homelessness Management Group will monitor and review all Regional Actions to ensure the plan is progressing in a positive direction. The Management Group in consultation with the Regional Consultative Forum will highlight and review any challenges which may arise during the lifetime of the Plan.

The Regional Homelessness Management Group for the West is chaired by Mr Kevin Swift, Galway City Council (Lead Authority), members include: Mr Patrick Foley, Galway City Council; Ms Kathleen Martin, Roscommon County Council; Mr Martin Keating, Mayo County Council; Mr Eugene Cummins, Galway County Council, Mr Michael Keady, HSE West and Ms Siobhan Donoghue Galway City Council.

2Vision and Strategic Aims

This section outlines the long-term vision, the mission or purpose of the plan and the values and principles, which underpin it. In particular the plan reflects The Way Home, the National Strategy to address adult homelessness in Ireland from 2008 – 2013 and the National Implementation Plan for that strategy and is also guided by national policy on mental health and the National Drugs Strategy 2009 – 2013.

Vision

The Way Home states that from end of2010 long-term homelessness[1] and the need to sleep rough will be eliminated throughout Ireland. The Government endorsed this view with the launch of Homelessness Policy Statement in February 2013. The core objective is a housing-led approach accessing permanent housing as the primary response to all forms of homelessness. The other core objective is the prevention of homelessness as far as possible wherethe risk of a person becoming homeless will be minimised and where homelessness does occur, the experience will be short term and the aim will be to move the person in as short a time as possible into appropriate long term accommodation.

Strategic Aims

This West Homelessness Action Plan mirrors the strategic aims as outlined in The Way Home andas further developed in the National Implementation Plan, in particular:

(1)To reduce the number of households who become homeless through the further development and enhancement of preventative measures – preventing homelessness.

  • Protocols for assessment and access to emergency services
  • Continue to develop/enhance links with other agencies such as Solas, VEC, WRDTF, MHS, DV, PS (Sex or other serious offenders),Primary Care Services etc
  • Develop a best practice guideline in relation to the prevention of homelessness including the mapping of all statutory and voluntary services with the supports provided

(2)To eliminate the need for people to sleep rough.

  • Monitoring of Rough Sleeping
  • Determine the effectiveness of the current configuration of emergency homeless hostels
  • Cold Weather Protocols to be in place
  • Accommodation Management System

(3)To eliminate long term homelessness and to reduce the length of time people spend homeless.

  • Implement a Care & Case Management System to support Homeless Service Providers
  • Carry out a review / assessment for all persons who have resided in emergency accommodation for a period of greater than 6 months

(4)To meet the long-term housing needs through an increase in housing options.

  • Each Local Authority to assess adequate supply of long term Accommodation
  • Develop a plan to identify specialist accommodation needs
  • Meeting the Accommodation Needs of Persons with Addiction, Persons with Mental Health Difficulties, Persons Suffering from Domestic Abuse, Persons with Challenging Behaviour
  • Review the Tenancy Sustainment Services in the Region
  • To ensure effective services for homeless people.
  • Implementation of National Quality Standards

(5)To ensure better co-ordinated funding arrangements and re-orientate spending on homeless services, away from emergency responses to the provision of long term housing and support services.

  • Monitoring mechanism in place for Regional Plan
  • Expenditure of all homeless services reviewed
  • Develop a protocol for the future funding allocation for all homeless services
  • Each Local Authority in the West will develop a Local Homelessness Implementation Plan.
  • Develop a process for monitoring of the Local Implementation Plans
  • Joint Service Arrangement meetings between Local Authorities, HSE & Services Providers to be explored.
  • To develop and maintain good quality data on homelessness including an evidence base for all homeless services.
  • Services to be reviewed on an ongoing basis based on timely qualitative and quantitative data following impending operation of PASS system

(6)Effective arrangements for monitoring and implementation

  • Membership reviewed and updated

3National Policy/Local Policy context

This section identifies significant developments in responses to the problem of homelessness over the past two decades. Overall, it is evident from policy that homelessness has moved from the direct provision of accommodation, to a more co-ordinated approach that enables homeless people to access long term accommodation and prevents homelessness from occurring and reoccurring.

The key policies and legislation affecting the delivery of this strategy are outlined below.

  • Housing (Miscellaneous Provisions) Act 2009

2009 Homeless Strategy National Implementation Plan

  • 2008 – 2013 The Way Home: A Strategy to Address Adult Homelessness in Ireland
  • Youth Homelessness Strategy 2001
  • Health Related Strategies
  • County/City Development Plans
  • Earlier Homelessness strategies and other relevant policy documents

4Current Service Provision in the Region

Homeless services are currently being provided by four local authorities in the West (Galway City & County, Mayo & Roscommon), the HSE West and a number of Voluntary service providers.

The Table below outlines in summary the range of services that are provided to those who present as homeless, or are considered to be at risk of homelessness. However, it should also be acknowledged that there are services in the region, such as mental health, estate management, tenancy sustainment, youth diversion, and other services which are making an important contribution to the prevention of homelessness in the region, and, in the context of achieving the objectives in this Plan, it is important that those services which have proven to be successful remain in place.

Homeless Services in the West Region

Emergency Accommodation Galway City /
Service Provider
/
Target Group
/
Capacity
Fairgreen Hostel / COPE Galway / Men / 26
Osterley Lodge / COPE Galway / Women / 13
Winter Initiative / COPE/ Galway Simon / Men & Women / 10
Supported Accommodation Galway City
Ruislip Manor / COPE Galway / Men / 6
Rocklands / Galway Simon / Men & Women Incl. Learning Disability / 6
Corrach Bui / Galway Simon / Phys Dis & Addictions / 5
Sea Road / Galway Simon / 3 Move on Appartments / 3
Fana Burca / Galway Simon / Addictions/Mental Health / 5
Ard Alainn / Galway Simon / Men Addictions/Mental Health / 5
Fr. Griffin Road / Galway Simon / Men High Support / 7
The Stables / Galway Simon / Men High Support / 7
Knockrea House / Galway Simon / Men (ex Fairgreen) / 6
Hazel Park / Galway Simon / Women High Support / 4
St Anthonys / SVP / Men / 12
Teach Mhuire / Cuan Mhuire / Men addiction recovery / 9
Mill Street / SVP / Older People / 18
Merchants Road / SVP / Returning Irish Nationals / 4
Resettlement Services Galway City
Resettlement / COPE Galway / Men & Women / 41
Normanely House / Galway Simon / Men / 6
Tenancy Sustainment / Threshold / Men/Women/Families / 25
Specialist Services Galway City
Multi Disciplinary Team / Galway Simon / Men/Women/Families
Waterside House / COPE Galway / Women & Children / 6
Galway Day Centre / Galway Simon / Men/Women/Families
Prevention Project / GDYS / Support to under 25s
Galway County
Cuan Mhuire / Cuan Mhuire / Addiction Recovery
Bridge House Resource Centre / Simon / Men & Women
Mayo County
Women’s Refuge / SVP / Women & Children / 5
MWSS
/ SVP & Sonas / Women & Children / 6
St V de Paul
Additional Short Term Mayo Locations Provided by Mayo County Council
Newport Road, Castlebar
/ Bed & Breakfast / Men & Women
Castlebar Town Centre
/ 2 transitional apartments / Men & Women
Claremorris
/ 2 bedroom house / Men & Women
Roscommon
/ Bed & Breakfast / Men & Women

5Implementation Blueprint of Homeless Services

The Implementation Blueprint will provide the basis for decisions relating to services and investment in that regard. All proposals relating to homeless services will be rigorously assessed by the Homeless Management Group and the housing authorities by reference to the blueprint (with particular focus on the core objective of promoting availability of long-term accommodation) and decisions will be made on the basis of their compatibility with the blueprint and the criteria of efficiency and value for money, as set out in Priority Actions 6.3, 6.4 and 6.5 of the Homeless Strategy National Implementation Plan.

Estimated costs of services will be identified as accurately as possible in developing the Implementation Blueprint. As in all areas of public expenditure currently, the total level of resources available for the operation of homeless services will, inevitably, be constrained during the lifetime of the Action Plan. Accordingly, any new services or expansion of existing services that may be needed can only be funded from savings, which arise from the reorientation of services in accordance with the Implementation Blueprint. Cost reductions in the economy generally should also be reflected in homeless services.

6Monitoring, Evaluation and Progress Reports

In developing this Homeless Action Plan the Management Group is aware of the importance of ongoing monitoring and evaluation of the actions outlined in the plan and the subsequent blueprint. Each Local Authority will develop a Local Homelessness Implementation Plan/Blueprint. It is expected that each local plan will be published within 12 weeks of the Regional Plan adoption.

  • Each housing authority will provide an annual county/city progress report to the Management Group.
  • Lead Agencies will be assigned to ensure actions are implemented and annual reports will be submitted to the Management Group on progress achieved. The measurement of progress on performance indicators will be a key feature of the progress report.
  • An annual review and planning meeting of the West RegionHomelessness ConsultativeForum will focus on the reports submitted and inform the Regional Homeless Framework Planning process.
  • Local implementation mechanisms will need to be agreed locally to ensure participation and consultation with voluntary service providers and key local statutory staff implementing homeless services.

Appendix A

The National Action Plan for Social Inclusion 2007-2016

The NAPSI sets out a comprehensive programme of actions and goals to address poverty and social exclusion. It places the individual at the centre of policy development and delivery and offers a framework for implementing a streamlined, cross cutting and visible approach to tackling

poverty and social exclusion.

The National Development Plan 2007-2013

The NDP incorporates measures agreed in “Towards 2016” and the social inclusion priority is of most relevance to homelessness. This priority outlines measures to address barriers to social inclusion by improving access to health care, education, training and employment and high

quality housing. The main objective is to provide a coherent approach to social inclusion by improving co-ordination across central and local government, better monitoring and evaluation of interventions and consultation with stakeholders.

2007 Delivering Homes Sustaining Communities

The 2007 National Housing Strategy Delivering Homes Sustaining Communities places emphasis on the interagency approach to combating homelessness. It also places emphasis on the use of a case management approach in meeting the needs of homeless households. The strategy prioritises actions aimed at the inclusion of special needs groups within services that are focused around homelessness.

Towards 2016

Towards 2016 is part of a series of national social partnership agreements. It makes particular reference to homelessness and makes proposals in relation to improved coordination of service provision and joint approaches at local level. The aim of this national agreement is to facilitate a holistic response to the needs of homeless persons through the further development of a case management approach based on needs assessment and access to multiple services by all the key stakeholders. Other features include the elimination of long term occupation of emergency accommodation by 2010. By 2010 it is expected that no individual should remain in emergency accommodation for longer than six months.

An Independent Review of Homeless Strategies (2006)

Undertaken by Fitzpatrick Associates, and commissioned by the Department of Environment, Heritage and Local Government, the review focused on Homelessness: An Integrated Strategy (2000) and the Homeless Preventative Strategy (2002). It also carried out a review of local action plans. The review made 21 recommendations around 7 key themes. The Government has accepted the broad thrust of the recommendations including, a more concentrated focus on development of long term accommodation options, an improvement of co-ordination of funding, the development of a case management approach to addressing the needs of homeless people based on key workers and the development of preventative strategies, appropriate local services and supports, and better data on the extent, nature and causes of Homelessness.

The Homeless Preventative Strategy (2002)

The 2002 strategy focused on ensuring that no one is discharged or released from state institutional care without the appropriate measures in place to ensure they have a suitable place to live. The aim of the strategy is to target adult and young offenders, people leaving mental health residential facilities, people leaving hospitals and young people leaving care. It highlighted that an effective preventative strategy would help break the cycle of homelessness.

Homelessness- An Integrated Strategy (2000)

The 2000 strategy set out a new policy approach to homelessness. It involved a whole Government approach to ensure that homelessness is addressed and prevented. It recognized that homelessness would not be solved by housing or shelter alone. It focused on the need for a holistic approach involving health, care, welfare, education, training and support to enable people who experience homelessness to re-integrate into society and prevent it from happening. It made Local Authorities and Health Services jointly responsible for homelessness, with Local Authorities charged with a lead role to prepare three-year action plans on Homelessness. It led to the establishment of Local Homeless Fora.

Appendix B

Summary of key features of SLI scheme

The SLI scheme (see circular HU 03/2009 of 31 July 2009 and accompanying scheme details) is designed to secure additional accommodation for homeless households, primarily through either leasing suitable accommodation in the market (including through the Enhanced Programme announced in March 2010[2])or through the use of unsold affordable units, over and above what would otherwise be allocated through social housing lettings (including RAS). Some important extensions of the scheme are now being notified, as follows:

  • Engagement of estate agents to source accommodation can be considered in agreement with the Department, subject to acceptable rates on the basis of competitive quotes.
  • Where necessary, visiting housing support can be deployed, if necessary, for a limited period for homeless households who move to social housing or RAS, as well as unsold affordable/leased units. This might arise, for example, where a household initially assessed as having low or no support needs might need assistance for a period to avoid breakdown of a tenancy. It is essential, however, to ensure that support services are not used beyond what is warranted in each case or in circumstances where homeless households would normally be able to move successfully to mainstream housing with low or no support or where such support is already available from other sources.

SLI is designed specifically to enable long-term residents of homeless facilities with low to moderate housing support needs for a limited period, who would not otherwise have been likely to obtain social housing, to progress to independent living. It is envisaged that leasing proposals from Approved Housing Bodies (AHBs) will be an important source of SLI accommodation, as well as supplementing the pool of general social lettings available for homeless households who can move to mainstream housing with no or low support. The role of AHBs in sourcing accommodation, either through purchase or leasing or a combination, for people moving from homelessness is a central element of the Enhanced Programme. It is essential that SLI is accompanied by a continued and where appropriate, increased level of general social housing allocations to homeless households. Other distinguishing features of SLI are: