Youth Homelessness Protocol

Youth Homelessness Protocol

Legislative framework

Housing Act 1996, part VII (as amended)

Local Authorities must provide Advice and Assistance to people who are homeless or threatened with homelessness. Authorities must assess for fuller housing duties, provide temporary/settled housing solutions and housing-related support for certain prescribed groups, known as ‘priority need’ groups.

The Homelessness (Priority Need for Accommodation) (England) Order 2002

This statutory instrument inserted additional ‘priority need’ groups, which include the following of relevance to this protocol:

A person aged 16 or 17 who is not a relevant child for the purposes of section 23A of the Children Act 1989
A person (other than a relevant student) who is under 21 and at any time after reaching the age of 16, but while still under 18, was, but is not longer, looked after, accommodated or fostered.
A person (other than a relevant student) who has reached the age of 21 and who is vulnerable as a result of having been looked after, accommodated or fostered.

G v Southwark Judgement, 2009

This fundamental case law clarified that in the case of a homeless 16/17 year old, the legislation which takes precedence is CSC (Children’s Social Care) law. Where homelessness cannot be prevented, 16 and 17 year olds are very likely – with few exceptions – to be assessed as being ‘a child in need’ and will require accommodation under Section 20 of the Children Act 1989. This means that the young person would become looked after unless they stated they did not wish to become looked after and were judged to have capacity to make that decision.

Equalities Act 2010

Section 149(1) states that a public authority must, in the exercise of its functions, have due regard to the need to –

(a) Eliminate discrimination, harassment, victimisation and any other conduct that is prohibited by or under this Act;

(b) Advance equality of opportunity between persons who share a relevant protected characteristic and persons who do not share it;

Supreme Court Judgement [2015] UKSC 30

In order to decide whether an applicant is considered vulnerable within the Housing Act 1996 (as amended), a comparison should be made with “an ordinary person if made homeless”. The comparison is with ordinary people who happen to be homeless. The relevant test is whether the applicant would be significantly more vulnerable if homeless than an ordinary person.

City of London strategy

This protocol sits within a wider corporate framework around homelessness, rough sleeping and protection of vulnerable people as outlined in the following agendas: DCCS Business Plan 2014-17, Road to Outstanding, Homelessness Strategy 2014-19, Early Intervention and Prevention Framework, City of London Thresholds of Need (Children and Families), Early Help Strategy, Joint Health and Wellbeing Strategy, Child/Adult Safeguarding Boards, City of London Allocations Policy and Care Leaver-Housing Protocol.

‘Positive Pathways’

The ‘Positive Pathways’ model has been developed by the youth homelessness charity St. Basils and gives a clear framework to prevent young people from becoming homeless, setting out service and support needs. This model has been adopted by a number of local authorities and used in the Government report ‘Making Every Contact Count – A Joint Approach to Preventing Homelessness’ (Department for Communities and Local Government, August 2012).

Modelled on the Positive Pathway Framework, the five key service areas within this protocol are as follows:

Information and advice for young people and families

Timely, accurate information and advice about housing options available to everyone, including web based and face-to-face services. The aim is to empower young people and families to plan the transition to independent living. The City of London web pages give information and advice, as well as contact details for the Homelessness and Housing Needs teams.

Early help

Targeted intervention to reach households where young people are most likely to be at risk of homelessness. The delivery would involve services such as CSC, Early Help, FYi, City Gateway and the Housing Needs team. The objective is to allow young people to stay in the family network where possible, but are supported to make planned moves if they need to move out.

Integrated response and gateway to commissioned accommodation and support

Led by the Homelessness Team, but involving other services where appropriate (for example CSC), a needs assessment would be undertakento establish a desired pathway into appropriate accommodation and housing related support services.

At this point in the pathway it would be expected that the young person is homeless or at risk of imminent homelessness. The focus would still be on homeless prevention in the short-term, butwhere this cannot be prevented or has already occurred, then quick access short-term emergency accommodation and ongoing support will be provided.

In line with the Southwark Judgement, 16-17 year olds will not be placed in emergency accommodation, but will be accommodated under Section 20 of the Children Act (1989) and treated as a child looked after. Where a young person is accommodated their social worker would be involved throughout this process and any plans would be tracked through the young person’s Pathway Plan. This client group will then follow the pathway into the Care Leaver-Housing Protocol providing they are eligible.

This is the appropriate point at which to receive a homeless application under Part VII of the above Act (except 16-17 year olds accommodated by CSC). The housing duty would be considered for the young person whilst resident in emergency accommodation or if they continue to live in existing accommodation under threat of homelessness. It is imperative that a decision is made on the housing duty as quickly as possible, as this will inform the ongoing pathway.

Commissioned accommodation and support

Following the needs assessment, procurement of appropriate supported,medium-term accommodation and support options for the young person. If the full housing duty is accepted for the young person, then the City must ensure that accommodation is available for their occupation. If not, then the Homeless Team are toconsider the discretionary power to provide accommodation, alongside the continuing duty to provide advice and assistance. This will include sign-posting and help in making direct applications to accommodation providers.

The aim is to provide stability and skills they need, incorporating learning and work, to help the move to greater independence. The move into supported accommodation would be made as soon as possible, to assist in short-term homeless prevention measures or to minimise the time spent in short-term emergency accommodation.

Range of housing options

Safe, decent and affordable long-term housing options for the young person in the private, social and third sectors. The City of London can provide settled accommodation for young people via the housing register, which gives access to a secure and affordable tenancy with the City or our partners. Ongoing floating support to be provided as required. The aim is that the young person becomes economically active and havea suitable home that they can afford.

If the housing duty has been accepted by the City, then the Homeless Team will work in partnership with the commissioned support service to ensure a long-term housing solution is found.

Accommodation Options

The City of London’s shape and size means that the typical in-borough access to hostels, private sector leased accommodation, registered provider accommodation, specialist supported accommodation, own stock or links to private rented sector do not exist. As a result, the Homelessness Team must adopt a flexible approach in its provision of services to meet the small but complex housing needs of its young people.

Short-term emergency accommodation

If friends/family cannot continue to accommodate, City uses nightly booked emergency accommodation when required. This is normally a self-contained studio in a bed and breakfast setting. This will be in a building with a variety of other homeless households including families/vulnerable clients.

Attempts are made to place in areas of preference and avoid providers known to take chaotic/complex needs clients. This type of accommodation is funded by housing benefit and service charges levied onto the client. This accommodation is unsupported and largely unmonitored. It can be ideal for emergency/short-term stays, but is often not the most appropriate environment for young people longer term.

Medium-term commissioned accommodation

The following organisations are currently being used to provide medium-term accommodation services for young people, or are willing to discuss future spot purchases of accommodation services when need arises:

City YMCA Errol Street: housing with shared facilities that provide young people between the ages of 16-25 years the opportunity to learn the key skills to move on to independent living. Referrals accepted from all London boroughs, with a local connection preferred. No fixed length of stay.

Do not accept young people with ongoing substance misuse problems, serious criminal convictions, severe self-harm or medium/high level mental health support needs.

Approximate cost of service charge to client is £28.00 per week, which includes breakfast and dinner, 7 days a week.

Centrepoint: Low-medium needs floating support, coaching model, preparation for independent living and pre-tenancy training. Costs as follows: £18 per hour unit cost. £234 per month at 3 hours per week. £1404 for 6 months.

Low-medium support and accommodation.Supported lodgings with a weekly cost of £240 including rent. If client is HB eligible, deduct this from figure to leave figure of roughly £150 per week.

Medium-high support and accommodation. Only available on contract, block booked arrangement. Approx. £300 per week per young person.

One Housing Group: OHG have a large operation in London and partnerships with various other central London boroughs, supporting care leavers, mental health cases, offenders, 16-25 yrs clients. OHG accommodation portfolio is extensive. They have framework agreements with Southwark and 5 authorities in NE London.

Support services

The following organisations are currently being used to provide support services for young people, or are willing to discuss future spot purchases of support services when need arises:

City of London Tenancy Sustainment Team: In-house floating support and tenancy sustainment for vulnerable clients in temporary accommodation and move-on accommodation. No cost.

Circle Support: Floating support, coaching model, preparation for independent living and pre-tenancy training. Costs as follows: £15-18 per hour unit cost.

New Horizons: A floating support worker to provide assessment with client and a programme map of needs to support with. Accredited life skills course incorporated with work on independence, confidence, self-esteem. Costs as follows: £20 per hour unit cost.

Look Ahead Care & Support: Currently focuses on Southwark residents, but with Commissioner’s agreement, willing to explore options with City for support and/or accommodation.

London Youth Gateway: This new pan-London partnership combines the resources of a day-centre (New Horizons), specialist advice services (Alone in London), emergency accommodation (DePaul) and an LGBT service provider (Stonewall Housing). Holistic support to young people in housing need can cover; accommodation advice and support, homelessness prevention, education, training and employment, emotional and physical well-being. No cost.

Long-term housing options

A number of different housing options are available for young people with the City of London. Support and advice will be provided to the young person to allow them to make an informed choice of the most appropriate route for them. The move into long-term accommodationwill be made at the appropriate point, when support services have assessed that the person has the skills necessary for independent living.

It is anticipated that ongoing support will be provided for a minimum of 6 months, to ease the transition from supported accommodation. The intensity of support may decrease during this period, should circumstances allow.

City of London Housing Register: if eligible under the Allocations Policy, then an application can be made to the register. This operates a Choice Based Lettings scheme to nominate people on the register to City of London housing, as well as partner housing associations such as Guinness, Peabody Trust and Toynbee.

Rent deposit scheme: the City can provide a deposit and one month’s rent in advance, to assist eligible people to access the private rented sector. The main conditions are that the rent must be ‘affordable’ and the landlord willing to issue a 12 month tenancy.

This is a self-help scheme, so clients must find their own accommodation and refer the details to the Homelessness Team, who will then negotiate the terms and conditions with the landlord or agent.

Real Lettings: this is a social lettings agency, set up by St Mungo’s Broadway. Nominations can be made to the scheme, which requires an incentive payment to source appropriate accommodation in the private rented sector. The incentive payment will be provided by the City of London.

Whilst the rent deposit scheme and Real Lettings both provide access to the private rented sector, under the former a client must find their own accommodation, but under the latter this is sourced by Real Lettings. The attraction of these schemes is that it allows a move to long-term accommodation in locations that are not accessible via the housing register.

Clearing House: if a young person has been assessed as a rough sleeper, then they may be eligible for the Rough Sleepers Initiative. This is a scheme administered by St Mungo’s Broadway to allow rough sleeps access to accommodation provided by Registered Providers. Ongoing support is provided by a tenancy sustainment team.

City of Londonv1.1September 2015