MIDDLESBROUGH COUNCIL
EXECUTIVE REPORT
Report Title: Youth Homelessness Prevention Strategy
Executive Member for Regeneration and Economic Development:
Charles Rooney
Director: Kevin Parkes
Date: TBC
PURPOSE OF THE REPORT
1. The purpose of this report is to seek approval for adoption of the Youth Homelessness Prevention Strategy. The Strategy is linked with the main Homelessness Strategy, which was published in July 2008, and its aim is to prevent, tackle and reduce instances of homelessness amongst young people.
SUMMARY OF RECOMMENDATIONS
2. It is recommended that the Executive Member for Regeneration and Economic Development notes the contents of this report and approves the formal adoption of the Youth Homelessness Prevention Strategy.
IF THIS IS A KEY DECISION WHICH KEY DECISION TEST APPLIES?
3. / It is over the financial threshold (£75,000)It has a significant impact on 2 or more wards / X
Non Key
DECISION IMPLEMENTATION DEADLINE
4. For the purposes of the scrutiny call in procedure this report is
Non-urgent / XUrgent report
If urgent please give full reasons
BACKGROUND AND EXTERNAL CONSULTATION
Key Legislative and Policy Context
5. Development of a specific Youth Homelessness Prevention Strategy stems from a requirement in the Homelessness Act 2002, for local authorities to produce specific homelessness strategies, following a review of the impact of the issue within their borough. The aim of such homelessness strategies is to prevent, tackle and reduce homelessness in their area. Middlesbrough Council carried out a Homelessness Review in 2007, and the associated Homelessness Strategy was formally adopted in July 2008.
6. The Homelessness Act 2002, which amended Part 7 of the Housing Act 1996, also introduced a range of additional requirements for local authorities to meet specific duties in regard to homeless 16 and 17 year olds. It had been recognised that young people of this age were deemed to be especially vulnerable, and were, for the first time, regarded as a priority need group.
7. There are legislative and policy alignments between the Homelessness Act and Children’s Act 1989. A recent House of Lords judgement (G v Southwark) reinforced the need for co-operation between local chldren’s services authorities and housing authorities.
National policy context
8. Youth homelessness was highlighted as an issue in 2006. Research showed that there were a higher number of young people who approached local authorities for homelessness advice and assistance, when compared with other priority need groups.
9. In line with the expectation that local authorities should prevent as well as respond to homelessness generally, a number of policy guidance documents were issued with the aim of promoting good practice. Particular aims of those that related to homeless young people were to: end the use of bed and breakfast accommodation for homeless 16 and 17 year olds, except in cases of emergency; improve access to mediation services; and, to encourage development of supported accommodation across the country.
10. Communities and Local Government set up the National Youth Homelessness Scheme to advise and support local authorities in tackling the issue. It encourages the development of strategic and partnership-based plans to build upon the overarching preventative approach towards tackling homelessness. The development of a specific strategy has been promoted as good practice.
11. Local authorities are required to report progress against National Indicator 156, the number of households in temporary accommodation. As part of this, details must be provided of any 16 and 17 year olds placed in Bed & Breakfast accommodation.
Links with other policy areas
12. There are a number of other national policies and strategies which have raised the issue of homelessness amongst young people as a particular issue, including:
a) National Supporting People Strategy;
b) Every Child Matters Plan;
c) Youth Matters – Next Steps; and,
d) Child Poverty Act 2010.
Local policy context
13. The Middlesbrough Homelessness Review and resultant Homelessness Strategy found that young people accounted for a significant proportion of statutory homelessness acceptances within Middlesbrough; the main cause of youth homelessness was that they had being asked to leave home by their parents. One of the main strategic priorities included within the Homelessness Strategy that arose from this finding was the need to provide a pathway to independence for young people who are, or may be at risk of, homelessness, or who may be seeking general advice on housing.
14. The Strategy’s priorities support the aims of other key local documents, including the:
a) Sustainable Communities Strategy;
b) Local Area Agreement;
c) Children and Young Person’s Plan;
d) Housing Strategy;
e) Accommodation Strategy for Young People in the Criminal Justice System; and,
f) Common Allocations Policy.
Homelessness Prevention in Middlesbrough
15. Middlesbrough’s Homelessness & Housing Advice Service is delivered by Erimus Housing in the Homechoice facility. The team acts as an initial contact point for all people seeking housing advice, and a holistic approach is taken to address the housing and support needs of homeless households. This is achieved through the provision of advice, accommodation, follow-on homelessness investigations and prevention casework, referrals to other relevant services, or to homelessness prevention initiatives that are targeted at tackling youth homelessness and funded by Middlesbrough Council, including the Young Person’s Housing and Support Panel; Family Mediation Scheme; and, the Home Visiting Officer.
Middlesbrough’s Youth Homelessness Prevention Strategy
16. The following paragraphs outline the approach taken to develop the Strategy (attached at Appendix 1) and provide an overview of the Strategy and Action Plan.
Developing the Strategy
17. Partnership work is acknowledged to be critical to the success of developing and delivering successful strategies. Work on the Strategy has been progressed through a steering group consisting of representation from relevant statutory and voluntary sector organisation, as detailed on page 26 of the Strategy (Appendix 1).
18. An initial service mapping exercise was carried out on specific services for this client group. In order to validate this exercise an additional needs analysis was carried out through local stakeholder groups, which involved approximately thirty young people.
19. Both the initial service mapping exercise, and the young people’s needs analysis work informed the development of the Strategy. The Strategy has thus been framed around the housing needs of young people, and its approach aims to offer locally deliverable interventions.
Key aims of the Strategy
20. The key aims of the Strategy are to:
a) prevent youth homelessness;
b) minimise the impact of homelessness on young people; and,
c) understand better the housing needs of young people.
Pathways model
21. The Strategy identifies a housing ‘career’ or ‘pathway’; steps to full independence are incorporated through the use of advice, support and accommodation services. The model has three levels which are designed to provide advice, support and where needed, accommodation, appropriate to the housing needs of individual. This approach facilitates choice and empowerment, and allows young people to make informed decisions. The levels are further described below.
22. Level 1 considers the housing options available to all young people; the main options are to live with family or friends, or to rent social or private rented accommodation. Many young people with no or low support needs are able to access accommodation for themselves. The Strategy has identified a need for accessible, ‘youth-proofed’ information to help these younge people make informed choices.
23. Level 2 is aimed at young people who may need assistance to identify and access the most appropriate options. The Strategy has identified that within this level, there is a requirement for the provision of good quality advice and assitance from a range of organisations, as well as peer mentoring, mediation schemes, and assistance with furniture provision.
24. Level 3 services are needed for a minority of young people who need considerable support to prepare them for independent living. This incorporates three stages of supported accommodation: intensive, medium and low level support. All referrals for young person’s supported accommodation are assessed by a ‘gateway,’ multi-agency panel. The panel assesses the young person’s needs, and ensures they are placed in the most appropriate supported accommodation. The young person can progress from one stage to another, and then onto independent living.
Action Plan
25. The Strategy (Appendix 1) sets out a clear Action Plan in agreement with the Council's local partners of how the aims of the Strategy can be met. It will direct resources towards actions that will contribute to achieving those priorities. Key priorities include: to increase the use of mediation to assist young people to stay at home; improve access to furniture at the start of a tenancy; increase and co-ordinate supported housing and floating support; develop information by young people for young people; deliver tenancy training and life skills for young people; and, increase education, employment and training opportunities.
CONSULTATION
26. Consultation has been undertaken, using various methods, with a wide variety of stakeholders including:
a) the Executive Member for Economic Development and Regeneration;
b) Middlesbrough residents, through the Council’s consultation portal and website;
c) all relevant Middlesbrough Council staff;
d) all local registered social landlords;
e) the Teesside Landlord’s Association;
f) the Middlesbrough Homelessness Forum;
g) young person’s housing and support providers; and,
h) service users of: Just4Youth; BME Network; Mesmac; Stonham Single Key; Leaving Care Team; Community Campus ’87; and, Nightstop Teesside.
The consultation feedback was examined and evaluated by the steering group and, where appropriate, was incorporated into the Strategy.
EQUALITY IMPACT ASSESSMENT
27. An initial assessment has been completed in respect of the impact of the Youth Homelessness Prevention Strategy. It is considered that the positive impact that would be effected by implementation of the Strategy, and would engender equality of opportunity, by enabling young people in housing need to access advice, information, accommodation and support through a joined-up holistic approach.
OPTION APPRAISAL/RISK ASSESSMENT
28. While there is no legislative requirement for the Council to adopt a specific Youth Homelessness Prevention Strategy, the options have been explored and it is considered that, in line with recommended best practice, and by virtue of the fact the almost a quarter of Middlesbrough’s population are defined as young people, there is a demonstrable local need for a defined approach to meeting the housing need of this client group. It would benefit the Council, therefore, to adopt this Strategy as it provides focus and co-ordination to the current and future activities that are carried out in respect of young people. In terms of risk, it is considered that failure to adopt the Strategy would compound the current lack of a co-ordinated approach with this client group.
FINANCIAL, LEGAL AND WARD IMPLICATIONS
29. Financial – the majority of activities within the Action Plan can be delivered through existing staff time, all costs to the Council have been resourced through the existing Homelessness Grant. With regard to potential activities that may be considered for future commissioning purposes, these will be subject to funding becoming available.
30. Ward Implications – Adoption of the Strategy would have a positive impact on young people in all wards.
31. Legal Implications – There are no legal implications arising from the Strategy.
SCRUTINY CONSULTATION
32. A report was presented to the Children and Learning Scrutiny Panel on 21 December 2009. Feedback and views from the Panel were sought on the development of the Strategy and the proposed methods of consultation. The Strategy was welcomed and supported by the Panel.
RECOMMENDATIONS
33. It is recommended that the Executive Member for Regeneration and Economic Development notes the contents of this report and approves the formal adoption of the Youth Homelessness Prevention Strategy.
REASONS
34. Adoption of the Strategy is recommended in order to enable the Council to tackle, reduce and prevent homelessness amongst young people, who are deemed to be especially vulnerable, and who require additional assistance as their age puts them at greater risk when homeless.
BACKGROUND PAPERS
35. The following background papers were used in the preparation of this report:
a) Middlesbrough Homelessness Review 2008;
b) Middlesbrough Homelessness Strategy 2008-2013;
c) Homelessness Act 2002;
d) Tees Valley Common Allocation’s Policy;
e) Children’s Act 1989;
f) Every Child Matters Plan;
g) Youth Matters – Next Steps;
h) Child Poverty Act 2010;
i) National Supporting People Strategy;
j) Middlesbrough Housing Strategy 2008-2011;
k) Sustainable Community Strategy;
l) Children and Young Person’s Plan;
m) South Tees Youth Offending Service Accommodation Strategy;
n) Centre for Housing Policy, University of York; and,
o) Homeless Prevention: A Guide to Good practice.
AUTHOR: Sharon Caddell
TEL NO: 01642 729369
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Address:
Website: http://www.middlesbrough.gov.uk
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