Second Report on the Inquiry into Housing in Northern Ireland (Homelessness)

SECOND REPORT ON THE INQUIRY 
INTO HOUSING IN NORTHERN IRELAND
(HOMELESSNESS)

SESSION 2001/2002 THIRD REPORT

COMMITTEE FOR SOCIAL DEVELOPMENT
VOLUME 1 – REPORT, MINUTES OF PROCEEDINGS AND
MINUTES OF EVIDENCE RELATING TO THE REPORT

1.         The Committee for Social Development is a Statutory Committee of the Northern Ireland Assembly, established in accordance with paragraphs 8 and 9 of Strand One of the Belfast Agreement and under Assembly Standing Order No 46.

2.         The Committee has a scrutiny, policy development and consultation role with respect to the Department for Social Development and has a role in the initiation of legislation.

3.         The Committee has power:

n     to consider and advise on Departmental budgets and Annual Plans in the context of the overall budget allocation;

n     to approve relevant secondary legislation and take the Committee Stage of relevant primary legislation;

n     to call for persons and papers;

n     to initiate inquiries and make reports

n     to consider and advise on matters brought to the Committee by the Minister for Social Development.

4.         The Committee was established on 29 November 1999 with 11 members including a Chairperson and Deputy Chairperson and a quorum of 5. The membership of the Committee is as follows-

n     Mr F Cobain (Chairman)

n     Mr G Kelly (Deputy Chairperson)*

n     Sir John Gorman

n     Mr T Hamilton (replaced Mr McClarty with effect from 6 February 2001)

n     Mr B Hutchinson

n     Ms M Gildernew

n     Mr D O’Connor

n     Mr E ONeill

n     Mr M Robinson

n     Mr J Tierney

n     Mr S Wilson

5.         All correspondence should be addressed to the Clerk to the Committee for Social Development, Room 419 Parliament Buildings, Stormont, Belfast BT4 3XX.

* Mr G Kelly replaced Ms M Gildernew as Deputy Chairperson with effect from 8 April 2002.

TABLE OF CONTENTS

Volume One

REPORT AND PROCEEDINGS OF THE COMMITTEE          

1.0 Introduction    
1.1 Background      
1.2 Terms of Reference         
1.3 Written and Oral Evidence           
1.4 The draft Housing Bill       
1.5 Reports by the Northern Ireland Housing Executive and the Comptroller 
and Auditor General for Northern Ireland 
1.6 Homelessness – a complex and growing problem           
2.0 Background      
2.1 The Legislative Position           
2.2 The Scale of Homelessness in Northern Ireland 
2.3 Comparisons with other Regions          
2.4 The Main Reasons for Homeless Applications in Northern Ireland 
2.5 The Profile of Homelessness in Northern Ireland 
3.0 The main areas considered by the Committee in the course of its Inquiry    
3.1 Housing Support Services           
3.2 Repeat Homeless         
3.3 The Common Selection Scheme           
3.4 Priority Needs  
3.5 The House Sales Scheme           
3.6 Young Homeless and Children Leaving Care    
3.7 Urban, Rural and Hidden Homeless         
3.8 Reliance on Bed & Breakfast facilities           
3.9 Proposed Housing (Support Services) Bill    
4.0 Recommendations 
4.1 Definition of Homelessness and Priority Needs 
4.2 A Clear and Cohesive Strategy and Action Plan   
4.3 Inter-Agency Co-operation and Training         
4.4 Information Systems         
4.5 Out of Hours Service         
4.6 Appeals System         
4.7 Preventative Measures        
4.8 Social Housing Provision       
5.0 Conclusions and Acknowledgements    

Northern Ireland Assembly Research & Library Services 
– Homelessness in Northern Ireland Research Paper          

Minutes of Proceedings relating to the Report

Minutes of Evidence relating to the Report 
Part A - Tuesday 5 February 2002 - Thursday 14 February 2002
Part B - Tuesday 19 February 2002 - Thursday 12 March 2002

List of witnesses who gave oral evidence   

Glossary   

Volume Two

Written Submissions Relating to the Report

Report

1.0           INTRODUCTION1.1           Background

The Committee for Social Development (hereinafter referred to as the Committee) agreed, in March 2001, to conduct an Inquiry into housing related matters in three phases. The Committee published its First Report in November 2001. That Report covered four main issues, namely

n     Private Sector Renewal

n     Houses in Multiple Occupation and Regulation of the Private Rented Sector

n     Large Scale Voluntary Transfers

n     Housing Association Tenants – Right to Buy

The Committee’s First Report into housing related matters was the subject of a positive and constructive debate in the Northern Ireland Assembly on 12 November 2001. Following that debate, the Committee immediately turned its attention to phase two of its Inquiry.1.2       Terms of Reference

The original terms of reference for the second phase of the Inquiry were as follows:

“To investigate the issue of homelessness in relation to the potential impact of the proposed Housing Bill, and to produce a report.”

A revised terms of reference was subsequently agreed by the Committee, on 8 November 2001, as follows:

“To investigate the extent of Homelessness in Northern Ireland, to examine current arrangements in Northern Ireland for dealing with homelessness, to conduct comparisons with England, Scotland, Wales and the Republic of Ireland, to identify models of good practice, and produce a report.”1.3       Written and Oral Evidence

The Committee is grateful to everyone who took the time to make written and oral submissions on the subject of “Homelessness”. As was the case with the Committee’s First Report, the written and oral submissions, which are re-produced elsewhere in this document, have had a significant bearing on the recommendations contained in this, the Committee’s Second Report into housing related matters. Once again, the recommendations contained in this Report are made on the premise that there should be local solutions to local problems. However, in the search for models of good practice, a contextual account of what is happening in Great Britain and the Republic of Ireland is also provided.1.4       The draft Housing Bill

Ordinarily, and following publication of the Second Report, it had been the Committee’s intention to proceed to conduct the third phase of its Inquiry in which it would deal with the subject of Anti-Social Behaviour. However, the Committee has since decided that, with the introduction of the Housing Bill into the Northern Ireland Assembly now apparently imminent, its immediate priority is to ensure the effective scrutiny of the proposed legislation. In reaching this decision the Committee was conscious that the draft legislation, which was published for consultation on 1 March 2001, includes provisions relating to Anti-Social Behaviour and thus the opportunity to examine this important issue will not be lost entirely.

1.5       Reports by the Northern Ireland Housing Executive and the Comptroller and Auditor General for Northern Ireland

In the course of its deliberations into Homelessness, the Committee was acutely aware that the Northern Ireland Housing Executive (NIHE) had undertaken a Review of its Homelessness Strategy and Services and published a summary report for public consultation. The Committee understands that the NIHE intends to publish a further report in due course. The Committee was also conscious that, during the course of its Inquiry, a Report by the Comptroller and Auditor General for Northern Ireland “Housing the Homeless” was published on 19 March 2002. The Comptroller’s Report currently stands referred to the Northern Ireland Assembly’s Public Accounts Committee. The Committee for Social Development intends to keep the issue of Homelessness under constant review and will pay particular attention to the NIHE Report and any recommendations which may emerge from the Public Accounts Committee’s deliberations.1.6           Homelessness – a complex and growing problem

In publishing this Report, the Committee commends the public, voluntary and community sector organisations including the Northern Ireland Housing Executive and the Health and Social Services Boards for their past diligence and commitment to what is an extremely vulnerable and needy group in our society. However, and as this Report shows, homelessness is a complex and growing problem.

It is the Committee’s view that the public, private and voluntary and community sectors have a moral duty of responsibility to re-double their efforts to provide proper levels of support and assistance in order to meet the needs of those who are without a home.

2.0           BACKGROUND2.1       The Legislative Position

The legislation governing homelessness in Northern Ireland is contained in the Housing (Northern Ireland) Order 1988 [i] (the Housing Order) which came into force in April 1989.

In essence, the Housing (Northern Ireland) Order 1988 places a statutory duty on the NIHE to provide temporary and/or permanent accommodation for certain groups of homeless persons, depending on an assessment of each person’s case. In general, the legislation will potentially assist persons who are homeless or threatened with homelessness. Priority status can be granted to a person who can prove homelessness/threatened homelessness [article 3] and who falls within the list of persons defined as having a priority need in the Housing Order [article 5] and who became homeless through no fault of their own (unintentionally) [article 6]. Those who satisfy the three tests of

n     homelessness;

n     priority need; and

n     intentionality

are considered to have Full Duty Application status. The criteria attached to these three tests are set out in more detail in a paper prepared by the Northern Ireland Assembly’s Research and Library Service and which is re-produced in this Report.

At the time of writing this Report, the Committee awaited final details of the provisions to be contained in the proposed Housing Bill, due to be introduced to the Northern Ireland Assembly by the Minister for Social Development.2.2       The Scale of Homelessness in Northern Ireland

The number of households* presenting as homeless in Northern Ireland has increased by 26% - from 10,081 to 12,694 - over the last 10 years (see Figure 1 [ii] *

        See Glossary.

).

The Committee acknowledges that at least part of this increase is due to the new Housing Selection Scheme, which automatically triggers a homelessness assessment if certain criteria are met in housing applications. However, the Committee is gravely concerned at this trend which shows no sign of abatement.

The number of households deemed by the Northern Ireland Housing Executive to have met the legislative criteria for priority status has increased by 55% (from 4,158 to 6,457) over the last 10 years. The proportion of applications accepted has increased from 41% to 51% over the same period.

           Figure 1. Homelessness Applications & Acceptances: 1991/92 - 2000/01

The proportion of those presenting as homeless deemed to be ‘intentionally homeless’ has declined from around a third 10 years ago to just over a quarter in recent years. The numbers of ‘intentionally homeless’ have remained fairly constant over the last 10 years with a total of 3,449 for 2000/01. The number of households presenting as homeless in Northern Ireland has increased by 26% (from 10,081 to 12,694) over the last 10 years.

 2.3           Comparisons with other Regions

Northern Ireland has a higher proportion of households presenting as homeless than other UK regions (see Figure 2). A greater proportion of these are also accepted as homeless by the Northern Ireland Housing Executive (51%) than by local authorities in England, Scotland and Wales (43%, 45% and 32% respectively). Unfortunately, no comparable statistics are available for the Republic of Ireland.
           Figure 2. Percentage of Households Presenting as Homeless by UK Region (2000/01)

2.4       The Main Reasons for Homeless Applications in Northern Ireland

An analysis of the main reasons given by those presenting as homeless shows six main causes. These are:

n     Disputes with Family/Neighbour

n     Relationship Breakdown

n     Loss of Accommodation

n     Absence of Accommodation

n     Intimidation

n     Domestic Violence.

Disputes with family members or neighbours is revealed as the main cause of homelessness. Intimidation is identified as the principal reason for yearly fluctuations. The associated statistics are examined in more detail in the paper prepared by the Northern Ireland Assembly’s Research and Library Service and which is re-produced in this Report.

Much of the evidence submitted to the Committee’s Inquiry confirmed that a wide range of social problems, combined with the lack of sufficient, affordable and accessible accommodation in certain areas, was the underlying cause for the higher incidence of homelessness in Northern Ireland when compared with Great Britain.2.5       The Profile of Homelessness in Northern Ireland

The profile of those presenting as homeless in Northern Ireland (see Figure 3 and 3a) reveals that, in 2000/2001

n     almost half of all applications came from single people (approximately two-thirds of whom were male)

n     families accounted for 41% of all those presenting as homeless in 2000/01

n     around 15% of those presenting as homeless originated from various types of institutional accommodation such as prison, hospital or care.

           Figure 3a

In a study undertaken by the Simon Community and the Health & Social Services Council, 20% of single homeless people regarded themselves as being in poor health; 27% had problems associated with alcohol; 12% reported drug dependency; and 47% reported a long-term health problem including chronic conditions such as asthma and manic depression.

The vast majority (97%) of those presenting to the Northern Ireland Housing Executive as homeless originate from Northern Ireland. In 2000/01, a total of 321 of those presenting as homeless were from outside Northern Ireland (172 from GB; 63 from ROI; 17 from other countries within the European Union; and 69 from outside the EU). The majority of asylum seekers are not administered under the homelessness legislation and are dealt with through the Home Office.

3.0       Main areas considered by the Committee in the course of its Inquiry

The body of written and oral evidence led the Committee to examine a number of main areas; these are outlined immediately below.

The Committee’s recommendations appear in the next section of this Report.3.1       Housing Support Services

The overwhelming message that emerged during the course of the Inquiry highlighted the fact that homelessness is not simply about providing a place to live. It was evident that the provision of a range of support services is critical in meeting the complex needs of individuals whose personal circumstances may differ and who may find themselves homeless for a variety of different reasons (see also 3.2 below).3.2       Repeat Homeless

The absence of reliable data on ‘repeat homelessness’ was regarded by some witnesses as evidence of an inherent weakness in the successful development of any strategy aimed at reducing and preventing homelessness.

A number of organisations suggested that the unavailability of support services contributed to the cycle of homelessness.3.3       The Common Selection Scheme

The Committee was impressed by evidence, presented by a number of organisations, which pointed to deficiencies in the application system, and which revealed a need for a clear definition of ‘homelessness’.

It was apparent from the evidence presented to the Committee that, whilst it is necessary to have adequate and effective arrangements for handling substantial numbers of applications, the existing Housing Selection Scheme may disadvantage at least some of those genuinely presenting as homeless.3.4       Priority Needs

The Committee acknowledges that there is a major difficulty in making objective determinations about priority needs; this relates, in particular, to those who may have presented themselves as homeless, intentionally. The Committee accepts that some form of administrative arrangements should continue to be employed in order to determine need.3.5       The House Sales Scheme

The Committee supports the principles behind the House Sales Scheme. However, representations made to the Committee suggested that the continued disposal of social housing limits the opportunities to address the long-term needs of the homeless.3.6       Young Homeless and Children Leaving Care

Much of the evidence presented to the Committee identified the increasing numbers of young people presenting as homeless. The Committee is deeply concerned at this trend, which, for example, has seen youth homelessness increase by 15% in the last 4 years.

Particular concern was expressed that, under existing arrangements, young people aged 16 – 21 years, who leave care, are not specifically identified as a priority group.

Evidence was also presented which suggested that the current provisions for 16 and 17 year olds lacked clarity.

Voluntary organisations confirmed that increasing numbers of young homeless were turning to the voluntary sector for both accommodation and support.3.7       Urban, Rural and Hidden Homeless

Whilst the majority of those presenting as homeless come to the attention of the authorities or the voluntary sector in urban environments, some organisations indicated that evidence was emerging to suggest that homelessness is extensive and on the increase in rural communities.

The limited availability of social housing in rural areas was cited as a possible underlying cause for increasing levels of homelessness in rural areas.

Some evidence was also presented to suggest that the true extent of homelessness, in all areas – both in urban and rural settings - is concealed by the willingness of extended families and friends to offer temporary and medium-term accommodation to those in need.3.8           Reliance on Bed & Breakfast facilities

It is clear from representations made to the Committee that an excessive reliance on Bed and Breakfast facilities is wholly unsatisfactory. Nevertheless, the Committee recognises that, through sheer pressure of numbers, and over a period of time, it has been necessary to use Bed and Breakfast facilities to meet short-term accommodation needs.3.9           Proposed Housing (Support Services) Bill

A number of organisations, which submitted evidence to the Committee, expressed concern about the financial implications of the legislative proposals contained in “Towards Supporting People”. The Committee shares those concerns and will continue to explore with the Minister responsible, how the required financial provision for support services might be guaranteed.

At the time of writing this Report, the Committee understood that the proposed introduction of this legislation to the Northern Ireland Assembly, was imminent.

4.0           Recommendations

The recommendations of the Committee for Social Development are recorded immediately below.4.1           Definition of Homelessness and Priority Needs

The Committee fully supports the calls for clarification of the definition of homelessness.

RECOMMENDATION 1

The Committee strongly recommends that the Minister for Social Development should adopt a revised definition of homelessness for inclusion in proposed housing legislation.

RECOMMENDATION 2

The Committee recommends that homelessness should be regarded as ‘the absence of a safe and accessible place to stay’.

The Committee further recommends that, in developing a revised definition of homelessness, consideration should be given to including

n     those living in hostels and temporary accommodation (provided by statutory agencies or recognised voluntary sector organisations),

n     those living in derelict, overcrowded * or unfit housing,

n     those living under threat of domestic violence, in fear of intimidation or eviction, or on un-serviced or illegal travellers’ sites, and

n     those living with friends or families and whose circumstances are officially recognised by a statutory agency (other than the Northern Ireland Housing Executive) as being housing related.

By way of illustration, the Committee draws to the attention of the Minister for Social Development the definition of homelessness currently in force in Scotland.

Section 24 of the Housing (Scotland) Act 1987, amended by the Housing (Scotland) Act 2001, defines homelessness as follows:

n     A person is homeless if he/she has no accommodation in the UK or elsewhere. A person is also homeless if he/she has accommodation but cannot occupy it, for example because of a threat of violence.

n     A person is potentially homeless (i.e. threatened with homelessness) if it is likely that he/she will become homeless within 2 months.

n     A person is intentionally homeless if he/she deliberately did or failed to do anything that led to the loss of accommodation that it was reasonable for him/her to continue to occupy.

[Source: Council for the Homeless, Scotland http://www.scsh.co.uk/facts.htm]

The Committee acknowledges the need to determine and prioritise need.

The Committee noted evidence which identified 18-25 year old males as amongst the largest group of homeless and the most likely to be long term or repeat homeless.

The Committee has reservations about automatically extending the priority need* category to include, for example, all 16-18 year olds.

The Committee considers that it may not be appropriate to automatically guarantee priority status to young people aged between 16 and 21 years.

RECOMMENDATION 3

The Committee strongly recommends that the Northern Ireland Housing Executive should consult with partner organisations in order to develop procedures which provide for prompt, professional input from relevant interests, by way of a ‘case conferencing system’, so as to ensure an urgent objective assessment of an individual’s status.

RECOMMENDATION 4

The Committee recommends that, whilst the rights of individuals must be respected, this must not be at the expense of contributing to the breakdown of the family as a stable and caring unit.

RECOMMENDATION 5

The Committee further recommends that the Northern Ireland Housing Executive should establish a specific, customised approach in assessing priority needs and dealing with young people presenting as homeless.

RECOMMENDATION 6

The Committee also recommends that the individual needs of children leaving care must be carefully examined before making a final determination on priority status.

The Committee also draws to the attention of the Northern Ireland Assembly, and its Executive, the need to ensure that the provisions contained in the Children Leaving Care Bill and any legislative proposals relating to housing and homelessness are compatible and beneficial to these vulnerable young people.

RECOMMENDATION 7

In the light of the prevalence of young males aged between 18 and 25 years presenting as homeless, the Committee recommends that the Northern Ireland Housing Executive develop a referral service, to other partner organisations, for those who are deemed to be homeless but who fail to secure priority need* status.

RECOMMENDATION 8

The Committee recommends that the Northern Ireland Housing Executive should, in the case of those leaving care or other institutions (such as Young Offenders’ Centres or prisons), make special arrangements to undertake assessments of housing need and support and that such assessments should be made prior to release.

4.2       A Clear and Cohesive Strategy and Action Plan

The Committee noted calls for a review of the strategy for tackling and preventing homelessness.

The Committee noted evidence, for example, which suggested that Bed & Breakfast facilities were the least cost effective means of providing temporary accommodation. The Committee concluded that there was a need for a re-assessment of the extent of homelessness and for the development of a clear and cohesive strategy and action plan which will lead to a more stable and supportive living environment for those who find themselves homeless in our society.

RECOMMENDATION 9

The Committee recommends that an integrated inter-Departmental and inter-agency approach to homelessness is developed, led and managed by the Northern Ireland Housing Executive and that work on this should begin immediately.

RECOMMENDATION 10

The Committee further recommends that, in developing a new strategy and action plan, which should define the roles and responsibilities of each of the partner organisations, the Housing Executive should engage directly with all those organisations which are presently providing services and meeting the needs of the homeless, whether they be in the public, private or voluntary sectors.

The Committee calls on these partner organisations to consider how best to pool resources and rationalise their existing working arrangements in order to provide and operate a Homeless Service which will meet the particular needs of those they aim to serve.

RECOMMENDATION 11

The Committee recommends that the new strategy and action plan should include proposals for a common ‘Code of Practice’ for the Northern Ireland Housing Executive and those partner organisations dealing with the homeless.

4.3       Inter-Agency Co-operation and Training

The Northern Ireland Assembly’s Programme for Government espouses ‘joined-up government’. The Programme for Government also acknowledges the need to address ‘homelessness’.

It is the Committee’s view that the objective of developing a new approach to address homelessness must be to meet the particular needs of all those who are genuinely homeless, therefore bringing about a dramatic and sustained reduction in the numbers presenting as homeless. It must also take sufficient steps to prevent homelessness.

The Committee commends the “Homeless Preventative Strategy” which deals with the prevention of homelessness amongst patients leaving hospital and mental health care, adult prisoners and young offenders leaving custody and young people leaving care - (published in February 2002 by the Republic of Ireland’s Departments of Health & Children, Education & Science, Justice, Equality & Law Reform and Housing & Urban Renewal) and suggests that this Report demonstrates that homelessness is, clearly, a cross-governmental issue.

RECOMMENDATION 12

The Committee recommends that the development of a new approach to addressing homelessness should be regarded, by the Northern Ireland Assembly, as an absolute necessity and an urgent priority, especially in light of initiatives such as Promoting Social Inclusion and New Targeting Social Need.

RECOMMENDATION 13

The Committee recommends that the Northern Ireland Housing Executive, and the partner organisations, should pursue the adoption of the highest possible training standards for those individuals dealing with the homeless.

4.4           Information Systems

The Committee noted calls for the sharing of information.

An inter-Departmental and inter-agency approach is advocated elsewhere in this Report. The Committee considers that information sharing between the Northern Ireland Housing Executive and partner organisations is a fundamental prerequisite to give effect to the proposed arrangements for such a ‘joined-up’ approach.

RECOMMENDATION 14

The Committee recommends that such information sharing between the Northern Ireland Housing Executive and the partner organisations should become standard practice, but without breaching legal obligations.

The Committee considers that such an approach would, for example, help identify trends and track the levels of repeat homelessness.

RECOMMENDATION 15

The Committee recommends detailed recording of case histories.

The Committee considers this would allow for an analysis of the factors which contribute to cases of repeat homelessness and would, therefore, represent an opportunity to review individual decisions in order to secure the most appropriate solutions and enable adjustments to be made in relation to policy in this area.4.5       Out of Hours Services

The Committee recognises that some of those presenting as homeless, especially out of hours, may prefer to have initial contact with agencies or organisations other than the Northern Ireland Housing Executive. However the Committee recognises the virtue of having a ‘lead organisation’.

RECOMMENDATION 16

The Committee recommends that the Northern Ireland Housing Executive should assume the primary responsibility for co-ordinating Out of Hours Services, in association with partner organisations.

It is the Committee’s view that the development of systems (referred to at 4.4 above), in the context of an integrated inter-agency approach, should enhance the Northern Ireland Housing Executive’s ability to respond promptly and objectively to cases of homelessness which occur outside normal office hours, taking advice from partner organisations as appropriate and through the use of the case conferencing system advocated elsewhere in this Report.4.6       Appeals System

The Committee recognises the need for a robust and objective appeals system.

RECOMMENDATION 17

The Committee recommends the development of a simple, speedy and effective independent appeals system as part of the new strategy and action plan.

4.7           Preventative Measures

The Committee concurs with those organisations which expressed concern about the absence of a preventative strategy for homelessness.

RECOMMENDATION 18

The Committee strongly recommends that the strategy and action plan should contain measures and targets to progressively reduce the levels of homelessness.

RECOMMENDATION 19

The Committee recommends that all those classified as homeless should have access to a programme of training in lifeskills, including personal and health care, home economics and financial management.

RECOMMENDATION 20

The Committee further recommends that an information and education campaign is prepared, in association with the partner organisations and educational institutions, with the aim of increasing awareness about homelessness..

The Committee considers there may be a need for further research into the particular causes of homelessness in order to develop a comprehensive preventative strategy.4.8       Social Housing Provision

The Committee acknowledges and supports the calls for a sustained building programme of socially affordable housing.

RECOMMENDATION 21

The Committee recommends that the Minister for Social Development urgently review the policy and practice of providing ‘new-build’ social housing in order to ensure that sufficient social housing stock is both accessible and affordable throughout Northern Ireland.

RECOMMENDATION 22

The Committee also recommends the provision of specialised, transitional, supported housing units to meet local needs in, for example, rural areas, and the needs of young people and those leaving care or other institutions.

The Committee considers that the ‘foyer’ model is an example which has proved effective and may be worth replicating to meet increasing demands for supported housing. The Committee regards small (4 or 5 person) units as an ideal and manageable option.

RECOMMENDATION 23

The Committee recommends that adequate financial resources should be provided to support its recommendations and that transfers of responsibility should be matched by a transfer of resources.

5.           Conclusions and Acknowledgements

It is the Committee’s view that Homelessness is a serious social and economic issue and one which must be accorded the highest possible priority. The Committee considers that it reflects poorly on our society that, for a variety of reasons, the numbers presenting as homeless continues to increase. It is the Committee’s intention to ensure that Homelessness is given a much higher profile and a sharper focus within the political context.

The Committee calls on the Executive to demonstrate political leadership and direction in promoting a ‘joined-up’ approach to dealing with, and committing resources to, the issue of homelessness.

The Committee also considers that prevention should be paramount in developing the new strategy for dealing with homelessness but that the plight of those presently experiencing homelessness, and who are vulnerable and in severe housing need, should not be overlooked.

It is evident, from the submissions which the Committee received during the course of its Inquiry, that there is a vast amount of experience, expertise, goodwill and commitment in the public and voluntary sectors and a desire to tackle the complex problems associated with homelessness.

The Committee is grateful to everyone who participated in this Inquiry and was greatly impressed with the various specific and general recommendations about improvements to services, and meeting needs, which were put forward by a range of organisations. These recommendations may be examined in detail by referencing those sections in this Report relating to “Written Submissions” and “Minutes of Evidence”.

The Committee commends all the recommendations put forward by those who gave evidence and urges the Northern Ireland Housing Executive, in undertaking the preparation of a new strategy and associated action plan, to consider these carefully before finalising its strategy.

MINUTES OF PROCEEDINGS
RELATING TO THE REPORT

Thursday, 8 November 2001
ROOM 144, PARLIAMENT BUILDINGS

Present: Mr F Cobain (Chairman)
            Ms M Gildernew (Deputy Chairperson)
            Sir J Gorman
            Mr E ONeill
            Mr M Robinson
            Mr J Tierney
            Mr S Wilson
            Mr T Hamilton

Apologies: Mr G Kelly
            Mr D O'Connor           

In Attendance:            Mr S Graham
            Mr L McLernon
            Miss F Douglas
            Ms A Montgomery

Mr Cobain took the chair at 2.23 p.m.

Private Session

5.            Housing Inquiry

The Committee discussed the arrangements for the debate on its first report on the Inquiry into Housing in Northern Ireland and agreed the terms of the draft Press Release.

The Committee also considered a letter from the Minister, dated 7 November, about the proposed Housing Bill and asked that arrangements be made for a presentation to the Committee.

The Committee discussed and agreed the proposed Terms of Reference for the next phase of the Housing Inquiry

"To investigate the extent of Homelessness in Northern Ireland, to examine current proposals in Northern Ireland for dealing with Homelessness, to conduct comparisons with England, Scotland, Wales and the Republic of Ireland, to identify models of good practice, and produce a report." The Committee agreed that written submissions should be sought by 10 January 2002 with a view to scheduling oral evidence sessions in February 2002.

The Committee agreed the Chairman should write to the Minister for Health, Social Services and Public Safety and the Chairman of the Health, Social Services and Public Safety Committee about the proposed Inquiry.

MR F COBAIN
Committee Chairman

[Extract]

Thursday, 6 DECEMBER 2001
ROOM 144, PARLIAMENT BUILDINGS

Present:            Mr F Cobain (Chairman)
            Ms M Gildernew (Deputy Chairperson)
            Mr E ONeill
            Mr T Hamilton
            Mr M Robinson
            Mr J Tierney
            Mr G Kelly
            Mr S Wilson
            Mr B Hutchinson

Apologies:            Mr D O'Connor

In Attendance:Mr S Graham
            Mr L McLernon
            Mrs Janette Anderson
            Miss F Douglas

Mr Cobain took the chair at 2.08 p.m.

2.         Matters Arising

            Housing Inquiry Phase 2 - Homelessness

The Committee considered a paper about the research element of the Inquiry into Homelessness and agreed, after discussion about the need for 'objectivity', that Research and Library Services should be invited to bring forward proposals to enable consideration to be given to making an appointment immediately after the Christmas recess.

Members agreed the Chairman write to the Minister highlighting the Committees deep concern at the growing level of homelessness in Northern Ireland and the urgent need for increased action to address it.

MR F COBAIN
Committee Chairman

[Extract]

Thursday, 17 JANUARY 2002
ROOM 144, PARLIAMENT BUILDINGS

Present: Mr F Cobain (Chairman)
            Ms M Gildernew (Deputy Chairperson)
            Mr E ONeill
            Sir J Gorman
            Mr T Hamilton
            Mr M Robinson
            Mr J Tierney
            Mr S Wilson
            Mr B Hutchinson

Apologies:                Mr G Kelly

In Attendance:            Mr S Graham
            Mr L McLernon
            Mrs Janette Anderson
            Miss F Douglas

Mr Cobain took the chair at 2.06 p.m.

Private Session

8.            Homelessness

Members noted the letter from the Minister, dated 8 January, indicating the Department will not be making a submission to the Committee's Inquiry into Homelessness. The Clerk confirmed that Members would be issued with copies of the written submissions which had been received in relation to the Homelessness Inquiry. Members undertook to consider the submissions in order to make decisions on 24 January about those organisations to be called to give oral evidence.

MR F COBAIN
Committee Chairman

[Extract]

Thursday, 24 JANUARY 2002
ROOM 144, PARLIAMENT BUILDINGS

Present: Mr F Cobain (Chairman)
            Ms M Gildernew (Deputy Chairperson)
            Mr E ONeill
            Sir J Gorman
            Mr T Hamilton
            Mr M Robinson
            Mr J Tierney
            Mr D O'Connor
            Mr B Hutchinson

Apologies:

In Attendance:Mr S Graham
            Mr L McLernon
            Mrs Janette Anderson
            Miss F Douglas

Mr Cobain took the chair at 2.16 p.m.

Private Session

8.            Housing Inquiry (Homelessness) - Written Submissions

Members reviewed the written submissions concerning the second phase of the Housing Inquiry (Homelessness) and the proposed schedule for Oral Evidence sessions.

Following discussion the Committee agreed that the majority of oral evidence sessions should be arranged at the beginning of the regular Thursday meetings of the Committee (prior to the disposal of normal Committee business) but that, where necessary, oral evidence sessions might be convened in the early part of Tuesday afternoons. Members agreed that the oral evidence sessions should commence in the week beginning 4 February with the aim of completing these sessions by 15 March. The Clerk was asked to arrange oral evidence sessions with those organisations which the Committee had selected from the list of those which had made written submissions.

The Committee further agreed that, over the next 8 weeks, it would be necessary to extend the duration of Committee meetings in order to dispose of all the business before it.

MR F COBAIN
Committee Chairman

[Extract]

TUESDAY, 5 FEBRUARY 2002
ROOM 135, PARLIAMENT BUILDINGS

Present: Mr E ONeill
            Mr T Hamilton
            Mr J Tierney
            Mr M Robinson
            Mr D O'Connor

Apologies:            Mr F Cobain (Chairman)
            Ms M Gildernew (Deputy Chairperson)
            Sir J Gorman
            Mr S Wilson

In Attendance: Mr S Graham
            Mr L McLernon
            Mrs Janette Anderson

The Committee Clerk took the Chair at 02.15 p.m. and called for a Member to speak.

Private Session

1.            Housing Inquiry (Homelessness) Research Paper.

The Chairman welcomed Alison Montgomery, Senior Researcher who presented an outline Research Paper which identified three themes, namely, Social, Legal and Financial which will form the basis of the Research document to be provided to the Committee in relation to its Inquiry. Members noted the paper and agreed the proposed format.

Public Session

2.            Housing Inquiry (Homelessness) Oral Evidence By Children's Law Centre

The Chairman welcomed the members of Children's Law Centre to the meeting at 2.27 p.m.

In attendance:            Mr Liam Mackle - Advice Line Co-ordinator
            Mrs Sandra McNamee - Training and Education Officer
            Miss Carragh McAreavy - Student Placement

Mr Mackle made a presentation to the Committee and a question and answer session followed.

The Chairman requested that the Children's Law Centre submit a supplementary written submission concerning a number of areas highlighted in the discussions.

The discussions are recorded separately in verbatim minutes of evidence.

The Chairman thanked the members of the Children's Law Centre and they left at 3.03 p.m.

3.            Housing Inquiry (Homelessness) Oral Evidence By S & E Belfast HSS Trust / Emergency
Out of Hours Service

The Chairman welcomed the members of S & E Belfast HSS Trust / Emergency Out Of Hours Service to the meeting at 3.03 p.m.

In attendance:            Mrs Jane Barry - Manager of Emergency Out Of Hours Service
            Mr Philip O'Hara - Principal Social Worker North & West Trust

Mrs Barry made a presentation to the Committee and a question and answer session followed. The discussions are recorded separately in verbatim minutes of evidence.

The Chairman thanked the members of the S & E Belfast HSS Trust / Emergency Out Of Hours Service and they left at 3.24 p.m.

MR E ONEILL, Committee Chairman

[Extract]

Thursday, 7 FEBRUARY 2002
ROOM 144, PARLIAMENT BUILDINGS

Present: Ms M Gildernew (Deputy Chairperson)
            Mr E ONeill
            Mr T Hamilton
            Mr J Tierney
            Mr B Hutchinson
            Mr M Robinson
            Sir J Gorman
            Mr D O'Connor

Apologies:            Mr F Cobain (Chairman)
            Mr S Wilson
            Mr G Kelly

In Attendance: Mr S Graham
            Mr L McLernon
            Mrs Janette Anderson
            Miss F Douglas

Private Session

Ms Gildernew took the chair at 2.09 p.m.

Public Session

1.            Housing Inquiry (Homelessness) Oral Evidence by NIACRO

The Chairperson welcomed the members of NIACRO to the meeting at 2.15 p.m.

In attendance:            Mr Pat Conway - Director of Development
            Mrs Sile McLean - Settlement Services Manager

Mr M Robinson joined the meeting at 2.19 p.m.

Mr D O'Connor joined the meeting at 2.29 p.m.

Mr M Robinson left the meeting at 3.02 p.m.

Mr T Hamilton left the meeting at 3.13 p.m.

The members of NIACRO made a presentation to the Committee and a question and answer session followed. The discussions are recorded separately in verbatim minutes of evidence.

The Chairperson thanked the members of NIACRO and they left at 3.15 p.m.

MS M GILDERNEW
Committee Chairperson

[Extract]

TUESDAY, 12 FEBRUARY 2002
ROOM 135, PARLIAMENT BUILDINGS

Present: Mr F Cobain (Chairman)
            Ms M Gildernew (Deputy Chairperson)
            Sir J Gorman
            Mr M Robinson
            Mr J Tierney
            Mr B Hutchinson
            Mr E ONeill
            Mr D O'Connor
            Mr S Wilson

Apologies: Mr G Kelly
            Mr T Hamilton

In Attendance: Mr S Graham
            Mr L McLernon
            Mrs Janette Anderson
            Miss F Douglas

Mr Cobain took the chair at 2.04 p.m.

Public Session

1.            Housing Inquiry (Homelessness) Oral Evidence by Chartered Institute of Housing (CIH)
in Northern Ireland

The Chairman welcomed the members of Chartered Institute of Housing in Northern Ireland to the meeting at 2.10 p.m.

In attendance:             Mr Kieran Walsh             -             Director Northern Ireland
             Mrs Adele Burgham             -             Policy and Professional Practice Officer
             Mr David Fotheringham             -             Head of Policy

Members expressed sympathy following the tragic fire at the Morning Star Hostel in Divis Street, Belfast and the Chairman undertook to write a letter of condolence on behalf of the Committee.

The members of the Chartered Institute of Housing made a presentation to the Committee and a question and answer session followed.

The discussions are recorded separately in verbatim minutes of evidence.

The Chairman thanked the members of the Chartered Institute of Housing in Northern Ireland and they left at 3.16 p.m.

Mr J Tierney left the meeting at 2.27 p.m.

Mr E ONeill left the meeting at 3.00 p.m.

F COBAIN
Committee Chairman

[Extract]

Thursday, 14 FEBRUARY 2002
ROOM 144, PARLIAMENT BUILDINGS

Present: Mr F Cobain (Chairman)
            Ms M Gildernew (Deputy Chairperson)
            Mr E ONeill
            Mr J Tierney
            Mr B Hutchinson
            Mr M Robinson
            Sir J Gorman
            Mr D O'Connor
            Mr S Wilson
            Mr G Kelly

Apologies:            Mr T Hamilton

In Attendance: Mr S Graham
            Mr L McLernon
            Mrs Janette Anderson
            Miss F Douglas

Private Session

Mr Cobain took the chair at 2.06 p.m.

Public Session

1.            Housing Inquiry (Homelessness) Oral Evidence by Shelter Northern Ireland

The Chairman welcomed representatives from Shelter Northern Ireland to the meeting at 2.09 p.m.

In attendance:             Mr Laurence Moffat             -             Campaign Officer
             Mr Ray Cashell              -             Committee Member

The representatives from Shelter Northern Ireland made a presentation to the Committee and a question and answer session followed. The discussions are recorded separately in verbatim minutes of evidence.

Mr E ONeill joined the meeting at 2.15 p.m.

Mr M Robinson joined the meeting at 2.15 p.m.

Mr G Kelly joined the meeting at 2.15 p.m.

Mr S Wilson joined the meeting at 2.26 p.m.

Mr D O'Connor left the meting at 2.44 p.m.

The Chairperson thanked the members of Shelter Northern Ireland and they left at 2.51 p.m.

Mr F COBAIN
Committee Chairman

[Extract]

TUESDAY, 19 FebRUARY 2002
ROOM 135, PARLIAMENT BUILDINGS

Present: Mr F Cobain (Chairman)
            Mr B Hutchinson
            Mr M Robinson
            Mr J Tierney
            Mr E ONeill
            Mr T Hamilton

Apologies:            Ms M Gildernew (Deputy Chairperson)
            Sir J Gorman

In Attendance: Mr S Graham
            Mr L McLernon
            Mrs Janette Anderson
            Miss F Douglas

Mr Cobain took the chair at 2.53 p.m.

Mr Cobain indicated that he would be vacating the Chair during the presentation and agreed by the Committee that Mr ONeill should take the Chair on Mr Cobain's departure.

In the confirmed absence of the Deputy Chairperson, the Chairman called for a Member to speak.

Mr J Tierney moved

"That Mr E ONeill do take the Chair of the Committee on it being vacated by Mr Cobain."

The Chairman asked for a seconder to the motion.

Mr B Hutchinson seconded the proposal.

The Chairman asked for any other nominations. There were no other nominations.

The Chairman put to the Members

"The question is that Mr E ONeill takes the Chair when vacated by Mr Cobain".

The Committee agreed the question.

Public Session

1.            Housing Inquiry (Homelessness) Oral Evidence by Homefirst Community Trust Antrim

The Chairman welcomed the members of Homefirst Community Trust, Antrim, to the meeting at 2.53 p.m. and apologised for the delay in beginning the proceedings.

In attendance:             Mrs Mary O'Boyle             -             Social Care Manager
             Mr David Burns             -             Senior Social Worker
             Mrs Enda Arrell             -             Senior Practitioner Addictions Team

Mr Hamilton joined the meeting at 3.01p.m.

The members of the Homefirst Community Trust, Antrim, made a presentation to the Committee and a question and answer session followed.

The discussions are recorded separately in verbatim minutes of evidence.

Mr Cobain vacated the Chair at 3.08 p.m.

Mr Cobain left the meeting at 3.08 p.m.

Mr ONeill took the Chair at 3.08 p.m.

The Chairman thanked the members of the Homefirst Community Trust Antrim Ireland and they left at 3.21 p.m.

2.            Housing Inquiry (Homelessness) Oral Evidence by Craigavon & Banbridge Community Health & Social Services Trust

The Chairman welcomed the members of Craigavon & Banbridge Community Health & Social Services Trust to the meeting at 3.22 p.m and apologised for the earlier delay in beginning the proceedings.

In attendance:             Mr Tom McGrath             -             Support & Lodging Scheme Co-ordinator
                 Mr Peader White             -             Project Team Leader

The members of the Craigavon & Banbridge Community Health & Social Services Trust made a presentation to the Committee and a question and answer session followed.

The discussions are recorded separately in verbatim minutes of evidence.

MR E ONEILL
Committee Chairman

[Extract]

Thursday, 21 February 2002,
room 144, Parliament buildingS.

Present: Mr E ONeill
            Mr J Tierney
            Mr B Hutchinson
            Mr M Robinson
            Sir J Gorman
            Mr G Kelly

Apologies:            Mr F Cobain (Chairman)
            Ms M Gildernew (Deputy Chairperson)
            Mr D O'Connor
            Mr S Wilson

In Attendance: Mr S Graham
            Mr L McLernon
            Mrs Janette Anderson
            Miss F Douglas
            Miss A Montgomery
            Mr G Harbison

Private Session

The Committee Clerk took the Chair at 2.20 p.m. and called for a Member to speak.

Mr B Hutchinson moved "That Mr E ONeill do take the Chair of the Committee"

The Clerk asked for a seconder to the motion.

Mr J Tierney seconded the proposal.

The Clerk asked for any other nominations. There were no other nominations.

The Clerk put to the Members "The question is that Mr E ONeill takes the Chair" The Committee agreed the question.

Mr E ONeill took the Chair at 2.22 p.m.

Public Session

1.         Housing Inquiry (Homelessness) Oral Evidence By Northern Ireland Housing Executive

The Chairman welcomed representatives from Northern Ireland Housing Executive to the meeting at 2.24 p.m.

In attendance:             Mr Paddy McIntyre             -              Chief Executive
             Mr Colm McCaughley              -              Director Client Services
             Mr Stephen Graham              -              Assistant Director Homelessness

Mr G Kelly joined the meeting at 2.45pm

The representatives from Northern Ireland Housing Executive made a presentation to the Committee and a question and answer session followed.

The discussions are recorded separately in verbatim minutes of evidence.

The Chairperson thanked the members of Northern Ireland Housing Executive and they left at 3.24p.m.

MR E ONEILL
Committee Chairman

[Extract]

Tuesday 26 February 2002,
Room 135, parliament buildings

Present: Mr F Cobain (Chairman)
            Ms M Gildernew (Deputy Chairperson)
            Mr B Hutchinson
            Mr M Robinson
            Mr G Kelly
            Mr E ONeill
            Mr T Hamilton

Apologies: Mr J Tierney
            Sir J Gorman
            Mr S Wilson

In Attendance:            Mr S Graham
            Mr L McLernon
            Mrs Janette Anderson
            Miss F Douglas

Mr Cobain took the chair at 2.14 p.m.

Public Session

1.            Housing Inquiry (Homelessness) Oral Evidence By The Northern Ireland Federation of  Housing.

The Chairman welcomed the members of the Northern Ireland Federation of Housing to the meeting at 2.15 p.m.

In attendance:         Alan Rea             -              Director of Housing, BIH Association
              Christopher Williamson         -              Director of NI Federation of Housing Associations
              Ms Maura McNally -              Director Dungannon & District Housing Association

The members of the Northern Ireland Federation of Housing made a presentation to the Committee and a question and answer session followed.

The discussions are recorded separately in verbatim minutes of evidence.

The Chairman thanked the members of the Northern Ireland Federation of Housing and they left at 3.09 p.m.

MR F COBAIN
Committee Chairman

[Extract]

THURSDAY 28 FEBRUARY
ROOM 144, PARLIAMENT BUILDINGS.

Present: Mr F Cobain (Chairman)
            Ms M Gildernew (Deputy Chairperson)
            Mr E ONeill
            Mr J Tierney
            Mr S Wilson
            Mr G Kelly

Apologies:            Sir J Gorman
            Mr D O'Connor
            Mr B Hutchinson
            Mr T Hamilton
            Mr M Robinson

In Attendance: Mr S Graham
            Mr L McLernon
            Mrs Janette Anderson
            Miss F Douglas
            Miss A Montgomery

Mr Cobain took the Chair at 2.14 p.m.

Public Session

2.            Housing Inquiry (Homelessness) Oral Evidence By Simon Community Northern Ireland

The Chairman welcomed representatives from Simon Community Northern Ireland to the meeting at 2.15 p.m.

In attendance:             Carol O'Bryan              -           Chief Executive
             Fiona Boyle              -              Director of Research & Development
             Mr Fergal Lynn              -              Director of Accommodation & Resettlement

The representatives from Simon Community Northern Ireland made a presentation to the Committee and a question and answer session followed.

The discussions are recorded separately in verbatim minutes of evidence.

The Chairperson thanked the members of the Simon Community Northern Ireland and they left at 3.15 p.m.

MR F COBAIN
Committee Chairman

[Extract]

TUESDAY 5 MARCH 2002,
ROOM 135, PARLIAMENT BUILDINGS

Present: Mr F Cobain (Chairman)
            Mr E ONeill
            Mr S Wilson
            Mr G Kelly
            Mr B Hutchinson
            Mr T Hamilton
            Mr M Robinson

Apologies:            Sir J Gorman
            Ms M Gildernew (Deputy Chairperson)

In Attendance: Mr S Graham
            Mr L McLernon
            Miss F Douglas

Private Session

Mr Cobain took the Chair at 2.15 p.m.

Mr Cobain indicated that he would be vacating the Chair during the presentation and it was agreed by the Committee that Mr ONeill should take the Chair on Mr Cobain's departure.

In the confirmed absence of the Deputy Chairperson, the Chairman called for a Member to speak.

Mr G Kelly moved "That Mr E ONeill do take the Chair of the Committee on it being vacated by Mr Cobain."

The Chairman asked for a seconder to the motion.

Mr M Robinson seconded the proposal.

The Chairman asked for any other nominations. There were no other nominations.

The Chairman put to the Members "The question is that Mr E ONeill takes the Chair when vacated by Mr Cobain" The Committee agreed the question.

Public Session

3.            Housing Inquiry (Homelessness) Oral Evidence by Housing Rights Service.

The Chairman welcomed representatives from Housing Rights Service to the meeting at 2.16 p.m.

In attendance:             Janet Hunter              -              Director Housing Rights Service
             Nicola McCrudden              -              Policy & Communications Co-ordinator

Mr S Wilson joined the meeting at 2.21 p.m.

Mr B Hutchinson joined the meeting at 2.25 p.m.

The representatives from Housing Rights Service made a presentation to the Committee and a question and answer session followed.

The discussions are recorded separately in verbatim minutes of evidence.

The Chairperson thanked the members of the Housing Rights Service and they left at 2.44 p.m.

4.            Housing Inquiry (Homelessness) Oral Evidence by Open Door Housing Strabane.

The Chairman welcomed the representative from Open Door Housing Strabane to the meeting at 2.45 p.m.

In attendance:             Paddy McGettigan

The representative from Open Door Housing Strabane made a presentation to the Committee and a question and answer session followed.

The discussions are recorded separately in verbatim minutes of evidence.

The Chairperson thanked Mr Paddy McGettigan for his presentation taking into consideration that it had been requested at short notice. Mr McGettigan left at 3.30 p.m.

MR F COBAIN
Committee Chairman

[Extract]

TUESDAY 12 MARCH 2002,
ROOM 144, PARLIAMENT BUILDINGS.

Present: Mr F Cobain (Chairman)
            Mr T Hamilton
            Mr M Robinson
            Mr E ONeill
            Mr D O'Connor

Apologies:            Mr G Kelly
            Ms M Gildernew (Deputy Chairperson)
            Sir J Gorman
            Mr J Tierney
            Mr B Hutchinson
            Mr S Wilson

In Attendance: Mr S Graham
            Mrs Janette Anderson
            Miss F Douglas

Mr Cobain took the chair at 2.23 p.m.

Public Session

1.            Housing Inquiry (Homelessness) Oral Evidence By Council for the Homeless (Northern Ireland).

The Chairman welcomed the members of Council for the Homeless (Northern Ireland) to the meeting at 2.25 p.m.

In attendance:             Ms Ricky Rowledge              -           Director of Council of the Homeless Northern Ireland
             Mr Tom McCann              -           Chair of Council for the Homeless Northern Ireland
             Ms Nuala Toman              -           Policy & Information Officer of Council for the
                                       Homeless Northern Ireland.

The representatives from the Council for the Homeless (Northern Ireland) made a presentation to the Committee and a question and answer session followed.

The discussions are recorded separately in verbatim minutes of evidence.

The Chairman thanked the representatives of the Council for the Homeless (Northern Ireland) and they left at 3:18p.m.

MR F COBAIN
Committee Chairman

[Extract]

THURSDAY 21 MARCH 2002,
ROOM 144, PARLIAMENT BUILDINGS.

Present: Mr F Cobain (Chairman)
            Mr E ONeill
            Mr J Tierney
            Mr T Hamilton
            Mr B Hutchinson
            Mr M Robinson
            Mr S Wilson
            Mr G Kelly

Apologies: Ms M Gildernew (Deputy Chairperson)
            Sir J Gorman
            Mr D O'Connor

In Attendance:            Mr S Graham
            Mr L McLernon
            Mrs Janette Anderson                       Miss F Douglas
            Miss A Montgomery

Private Session

Mr Cobain took the Chair at 2.13 p.m.

13.        Homelessness Research Paper.

The Chairman welcomed Patricia Casey, Roisin Kelly and Gary Andrews from the Research Department and asked Alison Montgomery, Senior Researcher to lead on the presentation of the Homelessness Research paper.

The presentations included:

n      The Legal Dimension

n      The Social Dimension

n      The Financial Dimension of Homelessness.

The Chairman thanked the Researchers for their presentations and they left at 4.20 p.m. the Committee agreed that the paper be included in the Committee's Report on Homelessness.

Mr S Wilson left the meeting at 4.20 p.m.

14.        Any Other Business

NIHE Social Development Inquiry - Homelessness

The Committee noted the letter from Paddy McIntyre Chief Executive NIHE, dated 11 March, which detailed the formal responses received to the NIHE Homelesness Strategy and Services Review Consultation document.

Members agreed that the correspondence be included in the Committee Report on the Inquiry into Homelessness.

NIAO Report 'Housing the Homeless'

The Committee noted the NIAO report and agreed to await the Public Accounts Committee response.

MR F COBAIN
Committee Chairman

[Extract]

MONDAY 22 April 2002,
In room 106 parliament buildings

Present: Mr F Cobain (Chairman)
            Mr G Kelly (Deputy Chairperson)
            Mr E Oneill
            Mr J Tierney
            Sir J Gorman
            Mr M Robinson

Apologies: Ms M Gildernew

In Attendance: Mr S Graham
            Miss K Kelly                 Miss F Douglas

Mr Cobain took the Chair at 12.46 p.m.

Private Session

4.            Housing Inquiry (Homelessness)

The Committee agreed the format for the report.

MR F COBAIN
Committee Chairman

[Extract]

THURSDAY 2 MaY 2002,
room 144 parliament buildings

Present: Mr G Kelly (Deputy Chairperson)
            Mr J Tierney
            Sir J Gorman
            Mr B Hutchinson
            Mr M Robinson
            Mr E ONeill

Apologies: Mr F Cobain (Chairman)
            Ms M Gildernew
            Mr S Wilson
            Mr T Hamilton

In Attendance: Mr S Graham
            Mr L McLernon
            Miss K Kelly                 Mr B Green

Mr Kelly took the Chair at 2.17 p.m.

Private Session

9.         Any Other Business

Committee for Employment and Learning - Housing Inquiry (Homelessness)

Members noted the letter from the Deputy Chairman Committee for Employment and Learning, dated 29 April, and the letter to Dr Esmond Birnie from the Minister for Employment and Learning, dated 16 April, in which the Minister for Employment and Learning gave a commitment to participate in the PSI working group on Homelessness.

MR G KELLY
Committee Deputy Chair

[Extract]

THURSDAY 16 MaY 2002,
room 144 parliament buildings

Present: Mr F Cobain (Chairman)
            Sir J Gorman
            Mr B Hutchinson
            Mr M Robinson
            Mr S Wilson
            Mr D O'Connor

Apologies: Mr G Kelly (Deputy Chairperson)
            Ms M Gildernew
            Mr E ONeill
            Mr J Tierney

In Attendance: Mr S Graham
            Mr L McLernon
            Miss K Kelly
            Miss F Douglas

Mr Cobain took the Chair at 2.34 p.m.

Private Session

5.         First Reading of the Homelessness Report

The first reading of the Homelessness was deferred.

MR F COBAIN
Committee Chairman

[Extract]

THURSDAY 23 MaY 2002,
ROOM 144 PARLAIMENT BUILDINGS

Present: Mr F Cobain (Chairman)
            Mr G Kelly (Deputy Chairperson)
            Mr B Hutchinson
            Mr M Robinson
            Mr S Wilson
           

Apologies: Ms M Gildernew
            Sir J Gorman
            Mr E ONeill
            Mr J Tierney
            Mr T Hamilton

In Attendance: Mr S Graham
            Mr L McLernon
            Miss K Kelly
            Miss F Douglas

Mr Cobain took the Chair at 2.15 p.m.

Private Session

8.         Any Other Business

First Reading of the Homelessness Report

Members agreed to begin the first reading of the Homelessness Report in closed session on Tuesday 28 May at 1.00 p.m.

MR F COBAIN
Committee Chairman

[Extract]

TUESDAY 28 MaY 2002,
ROOM 135 PARLIAMENT BUILDINGS

Present: Mr F Cobain (Chairman)
            Mr G Kelly (Deputy Chairperson)
            Mr B Hutchinson
            Mr S Wilson
            Mr D O'Connor
            Mr E ONeill

Apologies: Ms M Gildernew
            Mr M Robinson
            Mr T Hamilton

In Attendance: Mr S Graham
            Mr L McLernon
            Miss K Kelly

Mr Cobain took the Chair at 1.09 p.m.

Private Session

Second Report on the Inquiry into Housing in Northern Ireland (Homelessness): First Reading Draft Report

The Chairman invited the Committee to consider the first three sections of the main Report, and following discussion, the Clerk was invited to undertake a series of drafting amendments.

The Committee agreed that remaining sections of the draft Report be given a first reading at the Committee meeting scheduled for Thursday 30 May.

MR F COBAIN
Committee Chairman

[Extract]

THURSDAY 30 MaY 2002,
ROOM 144 PARLIAMENT BUILDINGS

Present: Mr F Cobain (Chairman)
            Mr G Kelly (Deputy Chairperson)
            Mr B Hutchinson
            Mr M Robinson
            Mr E ONeill
            Mr J Tierney

Apologies: Ms M Gildernew
            Sir J Gorman

In Attendance: Mr S Graham
            Mr L McLernon
            Miss K Kelly
            Miss F Douglas
            Miss A Montgomery
            Mr J McVey

Mr Cobain took the Chair at 2.16 p.m.

Private Session

7.         Draft Homelessness Report

The Committee completed the first reading of the Draft Homelessness Report and the Clerk was asked to include agreed amendments for a final reading at the Committee meeting on Thursday 6 June.

MR F COBAIN
Committee Chairman

[Extract]

THURSDAY 6 JUNE 2002,
ROOM 144 PARLIAMENT BUILDINGS

Present: Mr F Cobain (Chairman)
            Mr G Kelly (Deputy Chairperson)
            Mr B Hutchinson
            Mr M Robinson
            Sir J Gorman
            Mr E ONeill
            Mr J Tierney
            Mr S Wilson

Apologies: Ms M Gildernew
            Mr D O'Connor
            Mr T Hamilton

In Attendance: Mr S Graham
            Mr L McLernon
            Miss K Kelly
            Miss F Douglas
            Miss A Montgomery

Mr Cobain took the Chair at 2.17 p.m.

3.            Homelessness Report - Final Reading

            Mr S Wilson joined the meeting at 2.39 p.m.

The Committee conducted a final reading of its Second Report on the Inquiry into Housing in Northern Ireland (Homelessness).

Section 1 agreed.

Section 2 agreed.

Section 3 agreed, subject to the correction of minor typographical errors and the re-wording of Priority needs.

            Mr E ONeill joined the meeting at 2.42 p.m.

            Mr M Robinson joined the meeting at 2.57 p.m.

            Sir J Gorman left the meeting at 3.05 p.m.

Section 4 agreed, subject to the following amendments:

Rewording of Recommendation 2

Removal of Recommendation 3

Removal of 'urgent and' from Recommendation 4

Inclusion of 'individual' in recommendation 7 and explanation for priority need.

Inclusion of 'support' in Recommendation 9 and addition of explanation.

Recommendations 10, 11 and 12 to be amalgamated.

Include 'for the NIHE and partner organisations following 'Code of Practice' last sentence

 4.2.

Remove Recommendation 15

Recommendation 16 remove 'and adopt minimum standards' insert 'for those individuals

Dealing with the homeless.

4.4 insert explanation 'in light off'

Recommendation 25 insert explanatory sentence.

Section 5 agreed subject to the inclusion of the text from Recommendation 15 and references to financial resources and political direction.

The Committee further agreed to the inclusion of a series of annexes to the report.

Resolved: That the Draft Report should be ordered for printing, subject to amendments.

Mr M Robinson left the meeting at 3.50 p.m.

Mr M Robinson joined the meeting at 4.10 p.m.

Sir J Gorman joined the meeting at 4.14 p.m.

MR F COBAIN
Committee Chairman

MINUTES OF EVIDENCE 
RELATING TO THE REPORT

MINUTES OF EVIDENCE

Tuesday 5 February 2002

Members present:

Mr E ONeill (Acting Chairperson)
Mr Hamilton
Mr B Hutchinson
Mr O'Connor
Mr M Robinson
Mr Tierney

Witnesses:

Ms S McNamee                        )
Mr L Mackle                        )                        Children's Law Centre
Ms C McAreavy                        )

1.

The Acting Chairperson: Good afternoon, you are very welcome. If you would make a short presentation, Members will then ask some questions.

2.

Mr Mackle: I am Liam Mackle from the Children's Law Centre. Alongside me are Sandra McNamee from the Children's Law Centre and Carragh McAreavy, a student on placement who has come along for the experience. I have a written submission that I will go through and then hand copies to Members.

3.

The Children's Law Centre was established in September 1997. It is a charity employing 10 staff, and exists to help children, young people, their parents, and professionals work with and understand the laws that affect children. The centre complements existing services provided by the voluntary, community, statutory and legal sectors. Facilitating training, and working in partnerships with other agencies commit the centre to realising children's rights. We provide a comprehensive and accessible advice and information service on children's rights and the law, as it relates to children and young people.

4.

In the year from April 2000 to March 2001 some 12,694 households presented as homeless to the Northern Ireland Housing Executive. Northern Ireland experiences the highest ratio of homeless households of any other region in the United Kingdom. The equality dimension of the recent summary report of the Homelessness Strategy and Services review, produced by the Northern Ireland Housing Executive in September 2001, states that 1% of those households presenting as homeless are 16-and 17-year-olds. In 2001 the Children's Law Centre's advice service responded to 40 queries in relation to leaving home, housing and homelessness, representing some 3·9% of issues raised by our clients. In our experience, a homeless person aged 16 or 17 will experience difficulty in being assessed as homeless. It would not be unusual for a young person to be sent from their local district housing office to their local social services centre and back again without being assessed.

5.

The Children's Law Centre contends that the figure presented by the Housing Executive is not reflective of the actual extent of homelessness among 16-and 17-year-olds. The Simon Community Northern Ireland estimates that of the 2,195 young people who were presented as homeless in the year 2000, some 20% were aged 16 to 18. It is our view that it would not be an exaggeration to put the number of 16-and 17-year-olds who would experience homelessness each year somewhere between 500 and 1,000.

6.

At present, anyone over the age of 16 is entitled to present himself or herself as homeless to the Northern Ireland Housing Executive, and it has a duty to assess that person and provide a written decision on his or her housing status. People who present themselves and are assessed as being either homeless or threatened with homelessness, unintentionally homeless, or in priority need are classed as full-duty-applicants. The Housing Executive is under duty to provide accommodation to those applicants, and if no permanent accommodation is available, they may be placed in temporary accom­modation. The Housing Executive is also under a duty to temporarily house those people who present as homeless while investigations are carried out.

7.

In order to be considered a priority need, a young person aged 16 or 17 must fit in one of the six categories - they must be: pregnant; have dependent child or children; be at risk of sexual or financial exploitation; be vulnerable as a result of a mental or physical disability or any other special reason; be subject to, or at risk of, violence, or be homeless as a result of an emergency, such as a fire, flood or other disaster. It is our experience that 16-or 17-year-olds who are not pregnant, or a parent, are not considered to be a priority need unless suffering from a disability. Therefore, the Housing Executive is under no duty to provide accommodation for most 16-or 17-year-olds that present as homeless and are properly assessed. It is only under a duty to place applicants, who are not assessed as full-duty-applicants, on the general waiting list and provide information about other accommodation providers.

8.

Article 18(1)(a) of the Children (Northern Ireland) Order 1995 places a duty on each health and social services trust

"to safeguard and promote the welfare of children within its area who are in need".

9.

Article 21(3) states that

"Every authority or trust shall provide accommodation for any child in need within its area who has reached the age of 16 and whose welfare the authority considers is likely to be seriously prejudiced if it does not provide him with accommodation".

10.

At present, Northern Ireland does not have a framework for the assessment of children in need as exists in England and Wales. As a result, whether a 16-or 17-year-old, who presents as homeless to the local social services office, is assessed as a child in need and accommodated by, or on behalf of, a trust is largely determined by which trust area he or she lives in. Some trusts, such as the South and East Belfast Health and Social Services Trust, have agreed protocols with the local Housing Executive office for 16 and 17-year-olds. Any 16-or 17-year-old who presents as homeless in the south and east Belfast area is automatically referred to social services who will assess them and almost certainly class them as a child in need. If all trusts were to enter into an agreed protocol with their local Housing Executive, it would be an enormous step forward. If such protocols are agreed, it is important that all staff are familiar with the steps to be taken when 16-and 17-year-olds present themselves as homeless to either agency.

11.

Whether accommodation is provided, or assistance is given to obtain accommodation, will depend on the needs of the child as identified during the assessment. As with other provisions in the Children (Northern Ireland) Order 1995, the promotion of the child's welfare should be the paramount consideration. The wishes and feelings of the child in relation to the provision of accommodation should be given due consideration. It may be that the assessment process will show that other options, such as family reconciliation and family support, would be more appropriate for an individual child. It is the view of the Children's Law Centre that a homeless 16-or 17-year-old, who remains homeless and unable to avail of family support after assessment, should be classed as a child in need by social services. Unfortunately, it is our experience that that is not always the case.

12.

Homelessness among young people is further compounded by the lack of appropriate housing options. Temporary accommodation in hostels that cater for all age ranges would not be an appropriate placement for vulnerable 16-and 17-year-olds. Health and social services trusts and the Housing Executive often use bed and breakfast accommodation, and while useful in a crisis, it would not be appropriate for more than a few days. There is a need for the provision of more supported housing options for young people aged 16 and 17. That type of accommodation would provide a range of services aimed at assisting the young person's preparation for adulthood and independent living.

13.

The range of services could include advice and assistance in such areas as benefits and housing options, training and education, mentoring and peer education programmes, finding employment and finances. The Children's Law Centre has identified several schemes currently operating in Northern Ireland offering the type of accommodation that should be more widely available. In south Belfast, practitioners and those who have used the service have praised the Mulholland House aftercare project. The Foyer Project is currently operating in several locations across Northern Ireland, and the Mount Zion project in Lurgan and the Linencourt project in Armagh have attracted positive comments.

14.

In the joint research paper published by the Simon Community and the Housing Executive, 'Care in the Community: Housing Options for Young People Leaving Care', finding 18 reported on the type of accommodation young people identified as a favoured option. Based on their own experience of leaving care and through having identified barriers, young people recommend the development of accommodation that allows partial independence, but incorporates living with peers, support services and an environment, which allows learning through mistakes.

15.

There is much to learn about how homelessness can be dealt with effectively by directly asking those young people who experience it. Supported lodging schemes have operated in Britain for a number of years. With proper resources, such a scheme would add to the range of options available to those in Northern Ireland aged under 16 or 17. The schemes offer encouragement for householders who rent a room in their home to a young person. Householders are expected to offer advice and emotional support and generally to help the young person to acquire independent living skills.

16.

Social services staff are available to offer support and advice to both the householder and the young person. With proper text and potential providers, and the desire on the part of the young person for this type of option, such schemes would increase the range of positive options available to homeless young people. For those 16- and 17-year-olds that attempt to set up home on their own, there are added difficulties. It is not possible to enter into most legally binding contracts with persons under the age of 18. A 16- or 17-year-old will therefore find it impossible to become a tenant, and will require an adult to enter into an agreement on his behalf, which can be both dangerous and difficult.

17.

In 1997 the Simon Community and the Housing Executive launched a rent guarantee scheme. Under this scheme, the Simon Community acts as a guarantor for the young person, being liable in the case of default. The promotion and wider availability of the scheme would help those homeless 16- and 17-year-olds for whom independent living is appropriate. Housing benefit for those under the age of 25 is restricted to the cost of shared accommodation. That can very much restrict the housing options for 16- and 17-year-olds, particularly in the private rented sector.

18.

Setting up home can be very expensive. The only help currently available for young people setting up home is through the Social Fund. Housing Executive properties are let unfurnished, and the cost of furnishing a property can run into thousands of pounds. It can be very difficult for young people who are not care-leavers to obtain grants to help them set up home. When grants are made available, they are wholly inadequate and may enable a young person to purchase only the barest necessities. Benefit levels for young people are also reduced solely because of age. A 16- or 17-year-old in receipt of incomesupport or jobseeker's allowance can expect £31.95, or, in some circumstances £42, per week to live on. Such depressed levels of income can hinder young people in their search for employment and training. Maintaining a home on such a low income, as well as providing food and clothing, can often prove impossible.

19.

Shelter, a voluntary organisation operating in the field of homelessness, has recently launched a programme for use in schools. The homework programme has resources for teachers to use in the classroom. By working with schoolchildren, the project aims to educate young people about homelessness and the difficulties involved in setting up home. By inviting pupils to think about the issues involved, it is hoped that the project will help reduce youth homelessness in the future.

20.

The Homelessness Bill, due to come into effect in England and Wales in April 2002, introduces some encouraging measures. In particular, the requirement for local housing authorities to formulate a homelessness strategy is enshrined in legislation. The provision relating to specific actions which may be taken by other statutory and voluntary agencies in relation to the achievement of objectives set by the homelessness strategy is also encouraging. With adequate resources this type of joined-up approach can only improve the position of the homeless.

21.

Homelessness is a complex problem requiring a multidisciplinary and multi-agency approach. As Maurice Morrow, then Minister for Social Development, declared in summer 2001, the causes of homelessness are many, and its prevention is not something that my Department alone can achieve. It is very encouraging that the Assembly, through the Social Development Committee, has taken a keen interest in the issue.

22.

Children of all ages suffer due to homelessness, which can result from a number of factors. The main reason for homelessness among families is undoubtedly family breakdown. There is a need for more research into the effects of homelessness on children. In this submission, we have chosen to deal with issues raised by children contacting the Children's Law Centre in relation to homelessness. For too long those aged 16 and 17 who have become homeless have been overlooked. A lack of clarity about agencies' functions has meant that young people quickly become disillusioned with the help - or lack of it - available. Any strategy for dealing with homelessness must include provision for improving services for 16- and 17-year-olds that become homeless.

23.

I have put forward seven recommendations based on the submission.

24.

The Acting Chairperson: You will have an opportunity to put forward your recommendations later when Members will be asking questions. What effect will the Children (Leaving Care) Bill have on young homeless people?

25.

Mr Mackle: The Children (Leaving Care) Bill should be properly resourced. Several organisations, including First Key NI, have reservations about social services taking on the housing and social security budget, combined with their own budget. There is also the difficulty of whether there will be any extra money involved, or will it just be a movement of budgets. I have not considered the Children (Leaving Care) Bill in my submission, and I presume that the Committee will be hearing representations from First Key NI and other organisations that care for children leaving care.

26.

The Acting Chairperson: We may not. However, we would value your views if they were submitted separately.

27.

Mr Mackle: Certainly.

28.

Mr B Hutchinson: What would you include in a framework of need in Northern Ireland, if we had one? Would it tell us how to protect young people aged 16 and 17?

29.

Mr Mackle: The legislation is in place to prevent 16- and 17-year-old homeless children from falling through the net. A child who has no accommodation should come under the legislation as a child in need. However, that very much depends on which trust is involved. At the moment South and East Belfast Trust is taking the view that all homeless children of 16 and 17 are children in need.

30.

During the assessment process any framework should be looking at the whole picture concerning the young person, and contacting the family with a view to reconciliation, if that is appropriate. A trust may contact the family and the parents may say, "No, he or she can come back at any stage". Regardless of what the young person wants or feels, social services will then say that it has completed its assessment and it can see no reason why the young person cannot go home. That has happened in several cases that we have dealt with.

31.

Mr B Hutchinson: South and East Belfast Trust might be doing that, which is fair, but other trusts should be doing that also. A 16- or 17-year-old living in north and west Belfast should be entitled to exactly the same treatment as someone in south and east Belfast, Foyle or wherever. They all need equality, and need to be dealt with in exactly the same way. Is there any legislation, in terms of a framework of need, elsewhere in the UK that actually works and would fit those 16- and 17-year-olds?

32.

Mr Mackle: Yes. England and Wales have a framework for the assessment of children in need. In many circumstances the assessment of children in need will be clear. If you have a child with a severe disability, then you go through the assessment criteria relating to a disabled child. It will be clear what children fit into that criterion. It seems that 16- and 17-year-olds with no disabilities, and whose only presenting problem is homelessness - combined with other problems which may come out in the assessment - are not getting into an assessment process where everything else is then looked at, because there is no framework.

33.

Mr B Hutchinson: That is the point I am making.

34.

Mr Mackle: England and Wales have a very comprehensive framework.

35.

Mr B Hutchinson: You say that there is a clear case when the child is disabled, and that that does not become clear when the child is not disabled. Maybe a framework could be used that outlines and defines what homelessness is for 16- or 17- year-olds.

36.

Mr Tierney: You are saying that six categories are now available, and some children may not come under those criteria.

37.

Mr Mackle: Those six categories are the Housing Executive's categories for priority need.

38.

Mr Tierney: Are you saying that if 16- and 17-year-olds do not come under those six categories, there should be further legislation to allow that to happen?

39.

Mr Mackle: Yes. We would probably need only to amend the legislation. At present, the legislation says that a person would be considered to be vulnerable because of disability or some other special reason. It might require only departmental guidance to include home­lessness or age in the category of 'some other special reason'.

40.

Mr B Hutchinson: Mr Mackle may wish to think about this, and provide the Committee with an amendment to the legislation that would satisfy that provision. He could respond to that in writing.

41.

The Acting Chairperson: The Committee would welcome that.

42.

Mr O'Connor: You mentioned south Belfast. Could any encouragement be given to other trusts? Surely it is possible, at a higher level in the Department of Health, Social Services and Public Safety, the Depart­ment of Education or the Department for Social Develop­ment, to develop a cohesive Northern Ireland-led strategy that would ensure that people are not dis­advantaged because of where they live? You spoke about some of the best practices. The Simon Community have a hostel where they run a mentoring system for young people who live there and go out to work. How do you envisage develop­ing such a system, and how would you decide where it was needed? Do you envisage that as being the way forward?

43.

With regard to the joined-up approach to govern­ment, and the poverty that young people face, many people are caught in a trap where they cannot get money from benefits. I am not trying to tarnish the reputation of young people, but is something leading young people to try to get money in other ways?

44.

Mr Mackle: Yes. Money spent on vulnerable or homeless 16-and-17-year-olds is money well spent. If that money is not spent at that stage, it is almost inevitable that a homeless 16-or 17-year-old man, who has no money to live on, will drift into criminality. We may cost ourselves money further down the line because it is more expensive to keep a 25-year-old in prison than it is to provide accommodation and support services for a 16-or 17-year-old homeless person.

45.

With regard to the framework for assessment, and the different ways that it works in different areas, the Simon Community operates several hostels in various locations. Someone in Bangor may be in the same position as someone in Newry, but unlike Newry, Bangor has a Simon Community hostel. The Simon Community will take self-referrals from 17-year-olds, so provided that they live somewhere where the Simon Community has accommodation, they will at least have somewhere to go. Some trusts take the view that if they consider a homeless 16-year-old to be a child in need, they would open the floodgates and every 16-year-old would be looking for accommodation. However, if the Committee has read the report on the causes of homelessness in this age group, it will know that that is a very big step for any 16-or 17-year-old to take. There is no possibility that social services would be swarmed with 16-year-olds looking for accommodation and £30 per week.

46.

Mr O'Connor: You have spoken about the Simon Community and the rent guarantee scheme. Is there any way that scheme could be expanded? It would not necessarily have to be done by the Simon Community. Who would be the best people to sponsor such a scheme or to help young people if the possibility of a rent guarantee scheme was to be considered?

47.

Mr Mackle: The Housing Executive, the Simon Community, social services, and all agencies that young homeless people would consider to be a first port of call, should be aware of the rent guarantee scheme, how it operates, and its availability. The scheme was launched in 1997, and it has only been used in 200 cases since then. Very few of those cases were 16- and-17-year-olds. The scheme has been very underused.

48.

Mr O'Connor: What are your thoughts about the current proposals to withdraw housing benefit from people who are living in hostels?

49.

Mr Mackle: There would be big repercussions for the provision of hostel accommodation in the North. Many hostels, for example, the Simon Community hostels and Women's Aid hostels, rely on their income from housing benefit to keep them going.

50.

Mr O'Connor: How devastating do you think the loss of housing benefit would be?

51.

Mr Mackle: Very devastating. It would all but close many of the hostels. A lot of money has been invested in new schemes such as the Foyer Project in Lurgan and Armagh, which offer very good services, but withdrawal of housing benefit would have a devastatingeffect. Those projects cannot swim alone, and they need the income from housing benefit to survive.

52.

Mr O'Connor: All in all, everybody is doing good work. Is there is a need for somebody to co-ordinate all that good work?

53.

Mr Mackle: Yes.

54.

Mr O'Connor: Who should that be?

55.

Mr Mackle: The children's commissioner will go a long way to ensure that all Government Departments and agencies work for the benefit of children.

56.

Mr Hamilton: Can you give some examples of the circumstances that result in someone being classed as intentionally homeless? Perhaps you could outline your organisation's strategy and list your recommendations. Do you have any recommendations that you would like to see incorporated in the Housing Bill with regard to this particular issue?

57.

Mr Mackle: An example of someone who is intentionally homeless would be a young person who has had a placement, or several placements, and has abused them. That person might have been placed in a hostel and abused that placement. Many hostels have very tight regulations with regard to smoking and drinking, and that young person might have abused that rule and lost the placement. Social services and the Housing Executive will usually give young people several opportunities before deciding that they have come to the end of the road, that there are no placements left. Those are the only circumstances that would leave somebody intentionally homeless. Someone who leaveshome, due to difficulties in the family home, would not be classed as intentionally homeless.

58.

Mr Hamilton: Are those people classed as intentionally homeless at the moment?

59.

Mr Mackle: They are not classed as intentionally homeless - they are classed as not in priority need. They get over the "intentionality" hurdle, but fail on the priority need hurdle.

60.

Mr Hamilton: Your organisational strategy seems to suggest that the folk who end up as being classed intentionally homeless are people who have had several chances, but for one reason or another - through abuse of the system or the regulations - end up intentionally homeless. How do you deal with people who are at that end of the scale?

61.

Mr Mackle: Social services find it difficult to help 16- and 17-year-olds with behavioural difficulties who are in that situation, and it also causes problems for the community they live in. Our charity is very small, so all we can do is direct them to the relevant service that should be able to help them. Unfortunately, some young people exhaust all their opportunities, so when they turn 18, people's responsibility will evaporate, and they are left then to do their own thing.

62.

Mr Hamilton: Are there any changes or recommendations that you would like to see in the Housing Bill with regard to the intentionally homeless?

63.

Mr Mackle: Not in relation to the intentionally or unintentionally homeless, but in relation to priority need, which is where we see 16- and 17-year-olds slipping through the net. That comes back to changing the existing housing order and extending the priority need categories to include vulnerability due to age, so that 16- and 17-year-olds automatically qualify as full duty applicants. That then raises difficulties, because at 18 years old the situation changes.

64.

Mr Hamilton: Could classifying all 16- and 17-year-olds who are, or who become, homeless as priority needs have the detrimental effect of pushing other people down the scale? Would it reduce their chances?

65.

Mr Mackle: Not if, as I mentioned earlier, the type of accommodation available for 16- and 17-year-olds is suitable to guide them and build them up towards other accommodation in adulthood, and to get them through that important vulnerable stage.

66.

Mr Tierney: It is also the case that if the offer is refused, or if they leave accommodation voluntarily rather than abusing the facility, they are classed as homeless. Are you happy for the Housing Executive to carry out an assessment, so long as the other agency is involved?

67.

Mr Mackle: Social services take the primary responsibility for assessing the needs of 16- and 17- year -olds. They are still children and fall within the Children's (NI) Order 1995. However, the Housing Executive should take primary responsibility for the provision of accommodation, and the payment for accommodation through the housing benefit scheme. The two agencies must work closely. The advantage in England and Wales is that housing and social services are under one local authority. In Northern Ireland the agencies are separate and often each does not know what the other is doing.

68.

Mr Tierney: I understand your point, but given the need, one agency must determine if they are homeless under whatever category.

69.

Mr Mackle: The Housing (Northern Ireland) Order 1988 and the Children's (Northern Ireland) Order 1995 may need to be examined together. Sixteen- and 17-year-olds are possibly a special category and do not fit into the other categories of homeless person. They are children in need of accommodation.

70.

The Acting Chairperson: Much of the debate on the 16- and 17-year-old category concerns the definition of homelessness and, consequently, the criteria used to judge that. If you were asked to redefine home­lessness, could you put particular emphasis on any category to reflect more accurately the condition of home­lessness as you see it?

71.

Mr Mackle: The Committee should take a wider view of homelessness, and should not use the statutory definition of a homeless person as someone who is not intentionally homeless and who is in priority need. When homelessness was considered in the English legislation there was a very wide remit. There was an extensive list of all persons falling into the category of homelessness - the actual homeless, the hidden homeless, families, parents and young people. The Committee should examine a wide definition of homelessness.

72.

The Acting Chairperson: You can now read your recommendations for the record.

73.

Mr Mackle: I have seven short recommendations. The first is a requirement for health and social services trusts and local Housing Executive offices to agree protocols and assessment procedures for 16- and 17- year- olds who present as homeless to either agency. Designated officers in each agency should be tasked with ensuring that protocols operate effectively and that information is available to young people on services in each trust area. There should be a review of the priority need categories in the existing homeless legislation in the Housing (Northern Ireland) Order 1988. This review should consider the extension of the priority need categories to include vulnerability due to age so that homeless 16-and 17-year- olds can become full duty applicants.

74.

Clear assessment criteria should be introduced for use by health and social services trusts when considering whether a child is in need, and that criteria should be uniform across all trusts. There should be increased provision of accommodation options for homeless 16and 17 year olds. This should include not only an increased number of suitable options, but also an increased range of options. There should be a review of the housing benefit scheme to look at removing that age differentiation which significantly reduces the accommodation choices of those under 25. There should be a consideration of benefit levels for young people and the lack of assistance available to young people to establish a home. Finally, there should be promotion of the rent and deposit guarantee schemes throughout Northern Ireland.

75.

The Acting Chairperson: The Committee will be grateful for your response to the two items we have asked you to look at further. Several times in the definition you compared the existing legislation here with the United Kingdom. Could you also draw out the differences in the legislation, as you see them, between here and there, which would be helpful to the Committee as a contrast. Thank you all for coming along.

MINUTES OF EVIDENCE

Tuesday 5 February 2002

Members present:

Mr ONeill (Acting Chairperson)

Mr Hamilton

Mr B Hutchinson

Mr O'Connor

Mr M Robinson

Mr Tierney

Witnesses:

Mrs J Barry    )                     North and West Belfast Health and                                        Social Services Trust

Mr P O'Hara  )                     Principal Social Worker

76.

The Acting Chairperson: You are very welcome. You will have 10 minutes for an introductory presentation to complement your submission, and then Members will ask some questions.

77.

Mrs Barry: Good afternoon. I am Jane Barry, the manager of the out-of-hours emergency duty social work team, and Philip O'Hara is the principal social worker responsible for the team's operational arrange­ments. I thank the Committee for giving us the opportunity to talk about our service. My presentation will broadly follow the content of my written submission with some extra detail added for your information.

78.

The emergency duty team was established in July 2000 to provide a comprehensive out-of-hours emergency social work service for health and social services trusts in the Eastern Health and Social Services Board area. The team consists of eight full-time office-based pro­fessionally qualified social workers, and we can also access the services of 12 locum social workers contracted to the team. North and West Belfast Trust has the highest number of referrals to the out-of-hours service, and as a result it has been tasked with the operational management of the service. The service is available to all members of the public, all statutory agencies and other organisations in the Eastern Health and Social Services Board area where circumstances require an immediate response to fulfil statutory duties of the four trusts. The service also responds to all calls relating to homelessness on behalf of the Northern Ireland Housing Executive and out- of- hours enquiries in relation to the Social Security Agency.

79.

The service is based at Knockbracken Healthcare Park. Contact with service users is primarily by telephone, although in cases of assessed need, home visits will be made. There is no public access to the office, and its location is not publicised. The service operates from 5 pm to 9 am each weekday, with 24-hour cover on weekends, bank holidays and public holidays. In providing the service, we have two to three social workers on duty at the office base from 5 pm to 1 am, while one social worker is on call from home between 1 am to 9 am. Contact with the service is by telephone, and the telephone number is publicised within the four trusts, the Northern Ireland Housing Executive and the Social Security Agency.

80.

Until 1988, social services held the statutory responsibility for homelessness. However, with the introduction of the Housing (Northern Ireland) Order 1988, this responsibility was statutorily transferred to the Housing Executive. It was agreed at that time, betweenthe Housing Executive and the social work directors of the four trusts, that the out-of-hours provision in relation to homelessness would continue to be provided by social services on behalf of the Housing Executive. The rationale for this decision was based on the fact that social services already had the mechanism in place to deliver the service, and that homelessness accounted for only approximately 2% of calls to the out-of-hours service. There were also financial implications for both the executive and the Trust if the Housing Executive had had to set up a separate out-of-hours service.

81.

In providing such a service to homeless people, the emergency duty team (EDT) fulfils the Housing Executive statutory responsibility under the Housing (Northern Ireland) Order 1988, which requires the executive to ensure accommodation is made available to certain groups of homeless people. The emergency duty team will make an assessment in relation to all out-of-hours requests for accommodation from persons 18 years and over and their families under articles 3 and 6 of the Housing (Northern Ireland) Order 1988. Single adults who are not assessed as vulnerable under the legislation are provided with advice and information to help them secure accommodation. Single adults who are assessed as vulnerable under the legislation, which is; those suffering from mental and physical disability, risk from violence at home, elderly persons, those subjected to intimidation, pregnant women, and those homeless due to an emergency, will be found accom­modation by the team and transported, if necessary, to that accommodation. In the case of families with dependent children, accommodation will again be secured and transport to that accommodation provided.

82.

The emergency duty team can only provide temporary accommodation until the next working day, when the matter is referred to the Northern Ireland Housing Executive. The emergency duty team can access placements in hostels, bed and breakfast accommodationand hotels. The Housing Executive pays for all accom­modation provided by the emergency duty team to clients eighteen years and older, and their accompanying children. The number of homeless referrals to the team between September and December 2001 is included in my written submission. Approximately 30% of single adults and families who contacted the service were provided with accommodation by the team. The remaining 70% were given advice or the telephone number of self-referral hostels, or declined the accommodation offered by the team.

83.

As well as providing a service in relation to homelessness for adults, the emergency duty team is also statutorily obliged to provide accommodation for those between 16 and 18 years under article 21, paragraph 3 of the Children (Northern Ireland) Order 1995. Homelessness in the 16 to 18 year age group is an expanding area of work for the team, and increases in the number of homeless young persons has also been noted by the Simon Community. It is concerning that recent research indicates that almost a quarter of young care leavers were homeless at some stage in the six months immediately following their leaving care. The emergency duty team would find that a substantial number of referrals for accommodation within this age range come from young people with a care history. The figures of referrals made to the team during September to December of last year can be found in the written submission; the emergency duty team would accom­modate approximately 40% of referrals in this age group made to the team. The remaining 60 % of young people who have contacted the team with regard to homelessness received counselling or direct intervention that permitted them to return to their families. Otherwise, they did not accept the placements offered to them by the team. It is important to note that the majority of 16-year olds accommodated by the team are housed in bed and breakfast accommodation, as most hostels will not accept young people under the age of 17. The placements made for this age group are financed by the health and social services trusts.

84.

While the emergency duty team is providing a high standard response to homeless people it seems that the service provision could be enhanced. Details on how this could be achieved are contained in the written submission. A more integrated response to home­lessness by the Northern Ireland Housing Executive and the social services trusts would provide a more seamless service for those adults and young people who find themselves homeless. A dual financial and operational commitment to the out-of-hours provision for homeless people would bring about a sharing of information and expertise, ensuring that people receive a responsive, well-informed service and are placed most appropriately according to their needs.

85.

An assessment of the current accommodation provision, and how this is meeting the needs of homeless persons, could inform future planning for homeless provision, offering improved access for homeless people to a wider range of accommodation options. This could allow for the development of more specialist accom­modation for those people with special needs, such as those suffering from mental health problems, young persons and families.

86.

The Deputy Chairperson: It is clear from the written submission and your oral presentation that, from your point of view, there is considerable difficulty due to the lack of joined-up co-operation between the EDT and the Housing Executive. When you talk about an integrated approach between the Housing Executive and the team, what kind of specific arrangements do you mean? Are you talking about Housing Executive staff being available for out-of-hour services, for example?

87.

Mrs Barry: That would be helpful. Emergency duty teams in England have access to somebody from the local authority housing department. If a homeless person approaches them they can contact the person on call. There needs to be commitment to providing a service from both the trusts and the Housing Executive. They must be involved equally, and their roles and responsibilities must be clarified. Our out-of-hours service has little input from the Housing Executive in relation to the work that we are doing. We get little feedback about the appropriateness of our assessments of our clients' vulnerabilities, which concerns me. We are doing what we think is correct.

88.

Mr ONeill: You do not have all the information, which is quite frightening - particularly in relation to the possibility outlined in the submission that vulnerable people could be placed beside those who may want to exploit their vulnerability. The Committee will have to take cognisance of including this recommendation.

89.

Mr Tierney: It seems that what you are suggesting is a bit of common sense. Has there ever been a meeting with the Housing Executive in order to make those suggestions? I cannot envisage the Housing Executive objecting to members of its staff being on call. In some cases I believe that members of the EDT contact people in the Housing Executive when someone comes to them - to find out what is available for that person. I also believe that the Housing Executive would have no problem with that. Have you put these points to the Housing Executive, and sought its co-operation on things that need to be done?

90.

Mrs Barry: I have discussed the issue of accessing out-of-hours placements with the Housing Executive. The EDT can access a manager by going through the housing repair service, in some cases. However, that would be an informal, ad hoc arrangement, and there is room for a more formal arrangement.

91.

Mr O'Hara: The development of an out-of-hours social work service is relatively new to the Eastern Health and Social Services Board. We have been operating for a year and a half now, and over the next month we plan to have a formal review of the service. We have arranged for an inspector, who has developed similar services in England, to come over and guide us in developing the service. Within that context, I see scope for a more formal mechanism of consulting with the executive to develop that service. Within our own trust we are meeting at a senior level with the executive about a variety of issues, which have been touched on in previous presentations. My responsibility will be to raise the issues that Mrs Barry has brought up about the out-of-hours service.

92.

The Acting Chairperson: Is it an out-of-hours service only, which you are providing, and during normal hours, the Housing Executive provides this? Are you satisfied with that aspect, or would you prefer that joint approach applied to both services?

93.

Mr O'Hara: This relates to some of the previous presentations about homelessness among those less than 18 years old. It is essential that there is joined-up thinking, with more co-operation between the Housing Executive and social services trusts. I have not consulted with my colleagues about this, but I would imagine that social services would not want to revert back to pre-1988, when we were responsible for homelessness.

94.

The Acting Chairperson: Would you like to see a joint approach all the time?

95.

Mrs Barry: Yes, particularly with regard to vulnerable groups of people, such as young persons and those who suffer from mental health problems. Research has indicated that between 30% and 50% of homeless persons suffer from a mental health problem. We have to look at the types of accommodation that we are providing. If we had a review of the current arrangements, we could look at what the future needs are, and use that to inform our future provision for the vulnerable groups.

96.

Mr Hamilton: In your written submission you state that a violent offender could end up being placed in bed and breakfast accommodation alongside children because your service does not have access to information held by the Housing Executive. Have you approached the Housing Executive on this matter with a view to gaining access to the information? If you have, what reasons are given by the Housing Executive for not permitting you access? I am concerned that vulnerable people are placed at more risk because one group cannot get the relevant information.

97.

Mrs Barry: We have spoken to the Housing Executive about getting more information about clients. On occasions, we have received phone calls from them to alert us that a person may attempt to access our service and for a particular reason it is not felt suitable to house them in a certain type of accommodation. That sometimes happens.

98.

However, given the use of computers and databases, there should be a more formal way for us to access information about the particulars of an individual and about the placements available at any one time. It is difficult for us to access the placements. There may be several hundred homeless placements, but by five o'clock in the evening the chances are that most of those places have been filled, and we are dealing with a limited number of placements.

99.

Mr Hamilton: Has the Housing Executive given you any reasons for not allowing you to have the information that you need?

100.

Mrs Barry: We have not actually asked for a reason. We do not have meetings with the Housing Executive to bring up the sorts of issues that arise out-­of-hours. As Mr O'Hara explained, this is a new service, and this work accounts for about 10% of the team's total work. There are many areas that we need to examine, and that is definitely one of them.

101.

Mr Hamilton: Would you recommend that the Committee should consider incorporating a mechanism for sharing information into the Housing Bill, to make information sharing compulsory?

102.

Mrs Barry: It can benefit the person we place if we have access to up to date information about the difficulties that person has had. For example, a person who has problems with alcohol may have had difficulty in obtaining a placement, and, therefore, some places would be better than others for that person. If we had that sort of information, we could make better choices of accommo­dation for the individuals we are dealing with.

103.

Mr B Hutchinson: The out-of-hours work that you do is very valuable. Many people find themselves homeless after hours for different reasons, including civil disturbances. How effective are the existing arrange­ments, and what changes are needed to bring the levels of homelessness down?

104.

Mr O'Hara: Do you mean within the out of hours team?

105.

Mr B Hutchinson: No. I know that you provide an out-of-hours service, but the question applies to the effectiveness of existing arrangements and measures to reduce homelessness in general.

106.

Mr O'Hara: I was interested in Mr Mackle's presentation on youth homelessness. Wearing my other hat, I have responsibility for residential childcare in north and west Belfast, and there is an obvious interface between aftercare and homelessness. I would like the issues that we have discussed today to be developed - the Housing Executive initiatives, uniform assessments of children in need, and the partnerships that we can enter into with voluntary agencies such as the Simon Community and Mulholland House aftercare. There should be a range of provisions for vulnerable young people, from supported hostel accommodation, with our staff on duty 24 hours a day to help young people, to the more independent type of provision that we have talked about. Our response would be focused around young people's provision and a variety of provisions.

107.

Mr B Hutchinson: You probably know about the provisions in your own area, but are such places available across Northern Ireland?

108.

Mr O'Hara: The services are limited and patchy across Northern Ireland. There is emerging need, and the figures that we have show that, between our trust and the local Housing Executive offices in districts four, five and six, there are 40 referrals of people under 18 years of age per month. We must examine what provision is on offer at present, and plug any gaps in it.

109.

Mr B Hutchinson: Who would provide the units?

110.

Mr O'Hara: North and West Belfast Trust intends to provide accommodation and aftercare for the more vulnerable young people who need structured support. At the other end of the continuum, we will have a unit for the more independent people. Therefore, there will be a range of providers, from the social services trust at one end of the scale to the voluntary agencies and independent accommodation at the other end. We are talking to Mulholland House aftercare and entering into partnership with the Simon Community to provide hostel accommodation in north and west Belfast. However, we need more accommodation.

111.

The Acting Chairperson: What about the other health board areas?

112.

Mr O'Hara: I cannot comment on what is available in other board areas. I could try to get such information through the trust, but my focus is on the out-of-hours team and the North and West Belfast Trust.

113.

The Acting Chairperson: Do you know if they provide a similar service?

114.

Mr O'Hara: They are developing an out-of-hours service.

115.

Mrs Barry: The Southern Board and the Western Board use the same type of system that we were operating before our team was created - that is, a group of social workers who elect to be on a rota to receive phone calls from the public. If it were assessed that a visit had to be made, they would have a panel of social workers that they could contact. The Northern Board currently operates that system, but it is looking towards developing a team similar to ours.

116.

Mr O'Connor: When you began to develop your service, did you look at other models and what other people were doing, or did the service develop itself to meet the needs that were coming in?

117.

Mrs Barry: Both. The numbers of contacts to the service made it clear that it could not continue with one person answering telephone calls for a whole board area. Therefore, we had to look at different ways to bring about the same service more effectively. Research was carried out on different teams in England and Scotland. The formation of EDTs is widespread in England - most have been going for about 17 to 20 years. We were able to get much information there, and our system would be set up broadly similar to those.

118.

Mr O'Connor: We all want to develop the best possible service for the people of Northern Ireland. In our different board and trust areas the type of service provided to someone is dependent on where they live because of geographical difference. To take that a stage further, if we were looking at a review of public administration where there may be an amalgamation of boards in the future, how do we develop one clear strategy - not one for the Southern Board or one for the Northern Board - to provide an out-of-hours service to the people of Northern Ireland, that can access information regarding that person to help them? If you access that information, there obviously must be some protection of the information obtained. How would you envisage what you are doing expanding right across Northern Ireland, creating a delivery of service that can meet the needs of the whole community but not disadvantage anybody because of where they currently live?

119.

Mr O'Hara: Your point is well made. In the Eastern Health and Social Services Board area, we feel the service that we have developed is the most appropriate way forward. We are reviewing the out-of-hours social work service for the Eastern Board. We have invited the one expert that we could get our hands on in Great Britain to come across and give us some guidance and support as to how services have developed across the water. We have invited the Department to that review. We would hope to see similar teams develop in the Southern Board and Northern Board areas. Representatives from those boards are also coming to the review, so we will have a uniform service.

120.

Mr O'Connor: This maybe slightly different, but we all have this emphasis on going to see how things are done in England. Have you ever looked to see what is happening in south Dublin or a similar area? There can be different problems and legislation, but I am referring to how best we can meet peoples' needs.

121.

Mr O'Hara: I still feel that a dedicated team set up to respond to out-of-hours issues is the most effective way forward to meet the needs of the people of the Eastern Board area.

122.

Mrs Barry: I was not involved at the establishment of the service. However, in relation to the South of Ireland, I have been in contact with different social services there to find out about their out-of-hours provision. It seems to be much more based on the system that we used to have, and they are also looking at how best to provide that.

123.

The Eastern Board out-of-hours service is getting quite a lot of attention from other trusts and boards recently because they are interested to see how it works. We are at the early stages of setting up our team, but we are already receiving very positive comments about it. An initial survey of service users was very positive, and we hope to build on that. We are currently arranging links with each board, to look at what each board is doing. Sharing of information and expertise is very important and we can all learn from it. It will hopefully bring all services up to a better standard.

124.

Mr O'Connor: It is very important to talk to other boards. In Mr Mackle's presentation he mentioned that young homeless people in south Belfast were all classed as children in need, which helped with applicant points for homeless young people. That is one example of where a co-ordinated approach between all boards could deliver a better service. There are shortcomings with all services - it is the nature of it. It is sometimes difficult to get something done at 3 am. Rather than having services in Knockbracken, Ballymena, or wherever, each trying to do a little bit, could there be an overarching team? The Southern and Northern Boards could each provide three people, and a central overarching unit couldspecifically deal with that type of service.

125.

Mr O'Hara: That may come out of the current review. Other boards have been invited to the formal review, at which the Department of Health, Social Services and Public Safety will also be represented. However, I am not sure about the logistics of a social worker responding from Knockbracken to a problem in Newry. We picked Knockbracken because it is quite central to the Eastern Board area, with quick access to the motorways and the Westlink. We are able to respond quite quickly to emergency calls, and can get to most referrals within 30 minutes. As regards personal contact, we must be able to respond quite quickly. However, we could look at some form of overarching service as part of the review between the four boards.

126.

Mr O'Connor: You could even look at co-ordinating the service, rather than an "on-the-ground" thing.

127.

The Chairperson: Thank you for your views. The Committee is collecting evidence to help form recommendations that the Committee will want to see included in legislation. Some issues that the Committee has dealt with will not be legislated for, but they will appear in the practice guides that will be issued as a result of the legislation. In that sense, it is valuable to hear your evidence.

MINUTES OF EVIDENCE

Thursday 7 February 2002

Members present:

Ms Gildernew (Deputy Chairperson)

Sir John Gorman

Mr Hamilton

Mr B Hutchinson

Mr O'Connor

Mr ONeill

Mr M Robinson

Mr Tierney

Witnesses:

Mr B McMullan                        )

Mrs S McLean                        )                        NIACRO

Mr P Conway                        )

128.

The Deputy Chairperson: You are very welcome; may the Committee hear your evidence.

129.

Mr Conway: I am Pat Conway, director of de­velopment and communication with the Northern Ireland Association for the Care and Resettlement of Offenders (NIACRO). Síle McLean is our resettlement manager, and Barry McMullan is our advice officer.

130.

NIACRO is not an accommodation provider, but we take an interest in accommodation issues through our work in the criminal justice system. We have close working relationships with other organisations that act as providers: the Housing Executive, EXTERN, the Simon Community, the Salvation Army, and the Probation Board for Northern Ireland.

131.

NIACRO is a non-governmental organisation that provides services in five operational areas: training, resettlement, crime prevention, families, and youth justice. Our interest in accommodation stems from various sources. It is obvious that a person who is homeless is more likely to be driven into crime. As we are particularly interested in crime prevention, we are concerned that homelessness issues be sorted out sooner rather than later. A homeless person may turn to crime to get money to live.

132.

In our annual report we list the five areas that we must address when trying to resettle individuals who have been through the criminal justice system, and if possible before they reach it. These are finance, accommodation, employment and training, behavioural programmes for those engaged in criminal activity, and welcoming social networks. Tackling those five areas will reduce crime and will reduce the number of victims of crime. In all its work, NIACRO attempts to reduce crime and the number of people affected by it.

133.

Mr McMullan: My name is Barry McMullan, and I am the advice officer in the family services unit of NIACRO. I offer information and advice to prisoners' families. I also work at Hydebank Young Offenders' Centre, HMP Maghaberry and HMP Magilligan. I work with prisoners at different stages of imprisonment - on remand, during their sentence and before release.

134.

Much of my work focuses on housing. Regardless of the offence, remand is a very confusing and stressful time. At that point it is important that information and advice on welfare rights, benefit support and housing rights is available.

135.

When a person is remanded he worries about how he will pay mortgage or rent now that he has lost his income Remand prisoners are entitled to claim and to receive housing benefit for up to 52 weeks. Housing benefit will be paid from the date that one enters prison. However, homeowners cannot apply for housing benefit because they do not pay rent; they can, however, apply for income support.

136.

A homeowner who pays a mortgage can apply for income support for help towards housing costs. The problem with applying for income support is that no help with housing costs will be paid until week nine of one's incarceration. For the following 18 weeks only half the eligible housing costs will be paid. A remand prisoner who rents accommodation in the private or voluntary sector will have all his housing costs met without question, but a homeowner will be penalised. A homeowner will inevitably run into debt and risk losing his accommodation. We help in negotiations with the mortgage lenders to gain a breathing space.

137.

A person who is sentenced in the community - in other words, one who has not spent any remand time and whose sentence is less than 13 weeks - may claim housing benefit for private rented accommodation while in prison. A person whose sentence is more than 13 weeks, even a day over 13 weeks, is not entitled to housing benefit. Homeowners who are sentenced receive no help during their sentence; they are penalised. However, homeowners may cut their losses by putting their house up for sale, as they may face repossession. Alternatively, they may rent the house out. I advise them to contact a solicitor or an estate agent to arrange to do so if they want to hold on to their accommodation.

138.

Tenants who receive a lengthy sentence and who are not entitled to housing benefit may be under pressure to terminate the tenancy, especially Housing Executive tenants. If they terminate their tenancy voluntarily, they will face a problem on release because the Housing Executive will deem them inten­tionally homeless and therefore not a priority for rehousing.

139.

Tenants who must give up their property because of imprisonment often find that storing their belongings can be a problem. The Housing Executive can offer no help, except in cases of intimidation. Individuals often lose all their personal possessions as well as their property and furniture. The landlord will dump everything unless the tenant can make alternative arrangements with family or friends. The cost of storage is often a problem.

140.

We assist prisoners in making applications to the Housing Executive for accommodation in preparation for release. Under the present system, an application will be posted to the district office near the prison. For example, for the young offenders' centre it will be Church Road, Dundonald, for Maghaberry it will be Lisburn Housing Executive District Office and for Magilligan it will be Limavady. Unfortunately, it will lie in the office without assessment, regardless of the amount or detail of information that is included. A prisoner has zero points and is persona non grata until he returns to the community. However, article 3(6) of the Housing (Northern Ireland) Order 1988 states that if a person is threatened with homelessness, or will be homeless within 28 days, the Housing Executive has a duty to carry out an assessment of need. That is not happening.

141.

We advise ex-prisoners who approach the Housing Executive for accommodation to do so under the Housing (Northern Ireland) Order 1988. The Order sets out three tests: a person must show that he or she is homeless; that he or she has a priority need based on personal circumstances; that he or she is not intentionally homeless. All released prisoners are tarred with the same brush; they are classed as intentionally homeless, regardless of their circumstances. We have challenged some of the Housing Executive's decisions in order to get a decision about "intentionalities" reversed, because the Housing Executive has not considered personal circumstances.

142.

Under the present housing selection scheme, a person who is not regarded as a full-duty applicant under the Housing (Northern Ireland) Order 1988 may get additional points. One of the categories is release from prison. However, different districts employ differentpractices - there is no uniformity or consistency of approach for ex-prisoners.

143.

There are also disqualification criteria. An ex-prisoner who has rent arrears of more than four weeks can be disqualified from the waiting list unless an agreement is made to repay the arrears. Where ex-prisoners have entered into agreements to repay and are making repayments out of their benefits or other income, the Housing Executive adds the stipulation that they must pay a substantial amount of the arrears before they are offered accommodation. That is not in the legislation. That practice is employed in district offices, but there is no legislative base for demanding that a substantial amount of arrears must be repaid before accommodation is offered.

144.

Mrs McLean: NIACRO, which is a voluntary organisation, has discussed resettlement issues with the Prison Service and with the Probation Board, and with the support of the Department for Employment and Learning, it has made joint proposals to the European Union. It has secured equal funding to initiate a small project, which will begin to meet the needs of people on release from prison in a more coherent way. It will also target prison resources more towards preparation for release. NIACRO's objective is to improve the employ­ability of ex-prisoners to help them to get jobs. However, ex-prisoners face many difficulties when trying to secure accommodation.

145.

There are particular problems in rural areas when a prisoner cannot return to the family home. That is made more difficult if the person has been convicted of sex offences. Finding accommodation for such people is very difficult for communities and organisations. It is important to acknowledge that there are many different kinds of sexual offence. The need to assess risk is being addressed through interagency co-operation. However, NIACRO wants to draw the Committee's attention to the issues of accommodation and of supporting people when a sex offender returns to a community. These are particular difficulties that the Housing Executive and the Probation Board face.

146.

NIACRO also has concerns about young people. Young people who come through the care system are occasionally accommodated by social services. However, if they begin to offend and if their behaviour goes out of control, there can be real difficulties in finding them suitable alternative accommodation. They are not accommodated in the care system, and they are not old enough to have independent accommodation. Nor would that necessarily be suitable for them because sometimes when they obtain flats, their friends stay with them and the flats can become a focus of anti-social behaviour in the community. There is a real need to solve the problems of young people who need support but who, for one reason or another, cannot live at home.

147.

Resettling people with mental health problems also gives NIACRO cause for concern. These include those who have been diagnosed and who receive treatment for mental illness as well as those whose mental health problems have been induced by addictions and those whose needs are not addressed by the psychiatric services - such as those who have personality disorders. Those people are now less likely to be hospitalised. Community care arrangements and accommodation arrangements present a real challenge to all the organisations involved. I want to acknowledge that our sister organisation, EXTERN, has been working in Belfast to establish a homeless support team, and that has taken several years. The problem is evident across Northern Ireland.

148.

I particularly want to highlight the needs of women. Although fewer women are in custody in Northern Ireland they do have accommodation needs. One difficulty is that the self-referral hostel provision is used pre­dominantly by single males. It is therefore not always appropriate for vulnerable young females who have been involved in offending behaviour to be accommodated in such hostels.

149.

There is also a stigma attached to women offenders. There is some level of acceptance of a young man with a conviction for burglary, but a young woman with a similar conviction is at times viewed with much more suspicion. Private landlords can have difficulty in taking on someone whom they know to be coming out of prison.

150.

Repeat homelessness is a feature of people who have left prison, particularly of those who serve shorter sentences and are regularly in and out of prison. It is on these people in particular that our resettlement approach focuses. Their offences may not be the most serious, but they create disturbance and cause a great deal of concern for local communities. While those people are in the cycle of imprisonment they are also in the cycle of homelessness. It is difficult to sustain accommodation and support. The Housing Executive is examining support, and we are anxious to see a co-ordinated approach.

151.

Although these figures are from England and Wales, they reflect our situation in that almost 60% of prisoners are unemployed before sentencing and almost 40% are homeless on release. It is a recurring problem and a co-ordinated response is required.

152.

Mr Conway: The Base 2 project deals with people and families who are under paramilitary threat and has been in existence for approximately 10 years. Members of the Committee will be given a copy of the report for 2000. A copy of the report for 2001 will also be made available to the Committee as soon as it comes off the presses. The 2000 report covers the period of the feud in the Shankill Road. We thought at the time that the numbers of people who were experiencing intimidation had spiked - there were approximately 850 - but the figure for last year surpasses that. The problem still exists.

153.

During 2000 there were 854 referrals to the project; of those 658 were male and 196 were female. The number of females affected is therefore significant. They were mainly aged between 18 to 25 and 25 and over. The statistics may be slightly skewed because of events on the Shankill. The figure of 121 aged 17 and under is significant and has repercussions for childcare. Most of those affected were single.

154.

The number of families in 2000 was 180. The definition of "family" is where children are involved, not just a couple.

155.

We get referrals from statutory, voluntary and community organisations. I must emphasise that these figures only relate to the work carried out by Base 2; they do not reflect the work of other organisations. The alleged source of threat in 2000 was 371 Loyalist and 262 Republican. That is what those who are threatened tell Base 2; we preface it with "alleged".

156.

Belfast, as one would expect, has the highest number. However, it happens across Northern Ireland in Derry, Lisburn, Bangor, Newry, Rathcoole, Ballymena, Larne, Antrim, Portadown, Lurgan, Carrickfergus, Newtownards, Downpatrick, Coleraine, Glengormley, Armagh and others.

157.

Most people who come to Base 2 give antisocial behaviour, drugs and auto-theft as the main reason for their being under threat. There are many other reasons. Most of those who come to Base 2 have not been kneecapped, beaten or had any physical violence visited on them. They come to Base 2 either believing or knowing that something is about to happen to them, or they may have been told to get out of the country.

158.

The services provided by Base 2 include transport, verification advice, mediation, a supporting letter, assistance with accommodation and help to get people back into their areas. The Committee may be aware that the House of Commons Northern Ireland Affairs Committee conducted an investigation in November/December 2000. We, along with other interested parties, made a submission to the Committee. It focused on individuals who were ending up in England, Scotland or Wales.

159.

Base 2 actively discourages people from leaving Northern Ireland, as they experience cultural dislocation elsewhere. Whether they come from Nationalist or Loyalist areas, most, although not all, come from working-class backgrounds, are fairly young and have low educational attainment. If they cannot survive, develop and grow in their own communities, how can they do so in other, less-welcoming communities? One example is the Irish accommodation networks in London. They date mostly from the 1950s and 1960s and are organised by the Catholic Church, and they are often ambivalent about anybody from the North. A person from a Loyalist area would not be very enamoured with hostels that have a very clear Catholic ethos. There are many problems of cultural dislocation.

160.

Mr ONeill: The Committee wants to find out the causes of homelessness; it wants to find out about young offenders who, after passing through the care system, offend and are released into the community.

161.

Does your organisation provide help and support to young people to ease the transition from sentence to release and to help them to adjust to the difficulties they may experience, especially as they may have problems stemming from having spent time in care? What agencies help people who have just been released and who have difficulties in coping? What support exists for them?

162.

Mrs McLean: NIACRO and the trusts will provide a mentoring scheme for young people who are released from care. Juveniles who have committed offences and who are on remand and subsequently sentenced will be supervised by the Probation Board under juvenile justice centre orders. Approximately half the people in the young offenders' centre are on custody probation orders. As the Committee may know, that sentence is unique to Northern Ireland and was introduced only recently. The orders stipulate a period of planned supervision for the person on release. That is not to say that all the resources that are required for the period of supervision are available to the Probation Board. However, those orders apply to half the people who come through the system.

163.

Others in the young offenders' centre are serving short sentences, and they will be released without supervision. There are also many people who will be in and out of custody, serving time for non-payment of fines. On any given day in Northern Ireland, half the people who arrive at the prison door are there because they have not paid fines. Those people spend a short time in sentenced custody, but they suffer the same disruption to their lives.

164.

The uncertainty of the remand system causes difficulties in planning for the release of those on remand. The young person in custody and on remand may have only limited involvement in the prison situation. He may, by the time of his sentence, have been on remand for many months and may, indeed, have served most of his time on remand. Many will spend only a short period in custody before release.

165.

The Probation Board and the Prison Service have been examining that issue with us, and we are entering into partnership with them under Equal. We are trying to link all three establishments to co-ordinate a better response to people's resettlement needs. We already have an employment project in the young offenders' centre. We offer the gateway part of New Deal to those who are interested in participating in it before their release.

166.

Several organisations, such as Challenge for Youth and other volunteer organisations operate in the community. At present, we are trying to work with those organisations to improve the co-ordination of release plans for young people.

167.

Mr Hamilton: You mentioned the clauses in the legislation about intentional homelessness and you say that many people who are sentenced find themselves classed as intentionally homeless when they are released. What is your organisation's strategy for dealing with those people? Would you like to see specific requirements included in the proposed Housing Bill to address that issue?

168.

Mr McMullan: I want to go back to the inten­tionality issue. A person who voluntarily or deliberately leaves his accommodation and for whom no alternative accommodation is available will be deemed intentionally homeless.

169.

 If a person has a tenancy agreement with a landlord to pay rent every month, the landlord may evict him if he fails to pay the rent, in accordance with the tenancy agreement. The Housing Executive will deem that person to be intentionally homeless because of a deliberate act on his part that led to his becoming homeless. That is the simple explanation of intentionality.

170.

The Housing Executive applies the rules because this relates to public sector accommodation. If a former prisoner applies to the Housing Executive he will be asked where he last lived and why he had to leave. Since he served a sentence he will be classed as intentionally homeless; other factors, such as lifestyle, social skills and the ability to seek accommodation without support are not taken into consideration.

171.

One life sentence prisoner lived with his mother and father before going into prison. He served about 13 or 14 years before being released on licence. With the support of his probation officer, he applied to the Housing Executive for accommodation in Belfast. He was turned down on the first ground - that he did not have a priority need under the Housing (Northern Ireland) Order 1988. We argued that spending 13 or 14 years in prison had institutionalised him; that all decision-making powers had been stripped from him during his time in prison. He did not have the social skills or the networking skills to seek accommodation. He did not even know where to seek accommodation.

172.

It was then accepted that he had a priority need for accommodation as he was institutionalised and had not lived in the community for a long time. His application was refused again on the grounds that he was intentionally homeless. It was stated that his homelessness was due to the fact that he had committed an offence that led to his being imprisoned. The Housing Executive deemed that it was therefore his fault.

173.

However, because he was living at his parents' address and not at his own address or at a tenancy in his own name, the intentionality test should not have been applied. We had to challenge and to mount an appeal on each of those points. It took a substantial time, as we had to approach the district manager and eventually the head of client services. Such delay causes frustration. The ex-prisoner feels that he is playing his part and doing what his probation officer advised him, and yet he seems to meet only obstacles in his way.

174.

Mr Hamilton: How should the legislation address the problems of persons who have served a prison sentence being classed as intentionally homeless?

175.

Mr McMullan: The present legislation should be applied properly for a start. Interpretation, application and guidance on the legislation should be clearer. There is much inconsistency in the district offices across Northern Ireland. We should lobby the Housing Executive forcefully on this matter to raise its awareness.

176.

Mr ONeill: Do you have specific ideas on what you would like?

177.

Mr McMullan: I have not been asked that question before. I would have to go back to my team to get a response.

178.

Mr Conway: We want the intentionality stipulation to be dropped in any homelessness legislation, as few of the people with whom we deal believe that they make themselves intentionally homeless by committing a crime - that is not how it works. Tackling homelessness in a co-ordinated and effective manner will reduce crime and therefore the number of victims of crime. If home­lessness is not reduced the crime rate will not be reduced. Removing the intentionality element would make things much easier for those who are trying to engage in resettlement.

179.

Mr Hamilton: Would you like to see it enshrined to exempt this category?

180.

Mr Conway: Yes.

181.

Mr B Hutchinson: Do you agree with the statutory definition of homelessness, or should it be redefined?

182.

Mr Conway: What do you mean by the "statutory definition of homeless"?

183.

Mr B Hutchinson: I mean the definition that the Housing Executive applies to applicants.

184.

Mr Conway: We are constantly having tussles with the Housing Executive over people who leave their home because they have committed a crime or they because they have been threatened. A police report to the Housing Executive that a person's lifestyle led to his present situation does not aid in his resettlement. Homelessness must be addressed upfront.

185.

Mrs McLean: The Housing Executive is referring to people whom it registers and who meet the criteria. There is a big hidden homelessness problem that does not come under the definitions, and it is not being dealt with. Many people do not register as homeless; their circumstances may have changed; they may have been knocked back before and they just move around. That applies to young people who know that their chances of getting accommodation are very poor, particularly in the area to which they are limiting themselves. They may be too young to be considered as tenants without the support of social services aftercare personnel to allow a tenancy to be agreed. There is a section of young people who move from house to house, and even when they are offered the opportunity to go into a self-referral hostel they may be afraid to leave their area. They may also be unattracted to the idea of living by the rules of a hostel that can only function with rules that forbid drinking or taking drink into the hostel and which closes its doors at certain times.

186.

There are supported lodgings that have been geared up for young people leaving care. We want to look at the accommodation needs of those 17 to 21-year-olds and use support that is not hostels and is not independent. We want something new and different tied in with many other resources such as training and employment.

187.

Mr McMullan: Ex-prisoners or ex-offenders who are looking for private sector accommodation face obstacles in getting a deposit or rent in advance. Regardless of the legislation, when they apply to the Housing Executive, it all boils down to availability - demand and supply. If no Housing Executive accommo­dation is available, it does not matter what legislation is made because there will still be homeless people. The simple solution is to build new Housing Executive accommodation.

188.

Mr B Hutchinson: It is not as simple as that. You mentioned that 40% of the homeless people in England and Wales were ex-offenders. Do you know the current figures for Northern Ireland?

189.

Mrs McLean: I said that 40% of people coming out of custody were homeless, not 40% of the homeless population. I do not have that figure, but the Housing Executive may know. That has not been properly measured in Northern Ireland, and the focus on those kinds of issues is only beginning to take hold.

190.

Mr B Hutchinson: Mr ONeill made the point that we need to identify the types of people who end up homeless. If there is a large percentage of homeless people, tweaking or changing the legislation may be able to reduce that.

191.

Sir John Gorman: I reminded the Minister for Social Development in a supplementary question on 5 February of the 12,600 homeless people in Northern Ireland last year. That is the highest rate in the UK. I noticed that your 11 recommendations, which all seem sensible to me, do not include those at the end of your submission. Those further recommendations state that the real strategic requirement is that there should be a substantial provision of houses that are "decent and affordable". Is that not the key for the future, regardless of the Housing Executive? The Housing Executive's difficulty is that it does not have houses at its disposal.

192.

Mr Conway: We have direct experience in assisting the running of self-build projects for ex-prisoners. That was a practical scheme.

193.

Sir John Gorman: I was responsible for that.

194.

Mr Conway: Yes. That project never really took off because the main problem was raising capital to buy the materials. However, we felt that ex-prisoners were interested in the scheme, especially those who were politically motivated. They carried out refurbishmentsas well as new self-builds. People came out of prison, received training through the Construction Industry Training Board (CITB) and built accommodation. In one case six houses were successfully built from scratch. That was an excellent project.

195.

Sir John Gorman: Was that the project in Downpatrick?

196.

Mr Conway: No, it was on the Suffolk Road in west Belfast. The model provides a practical example of how that idea could work, and the concept of self-build could be introduced for ordinary ex-prisoners. The main problem was capitalisation of materials; individuals and groups were unable to borrow or raise the money needed for materials. They would then provide their own sweat equity to build accommodation. That idea is worth revisiting. The project is continuing through the Open Door Housing Association.

197.

Sir John Gorman: That is an excellent example of an area in which the private sector could come in. I know the public sector intervened in the shape of the Housing Executive, for I was the one who gave them the money. The private sector would not touch it, but things have now changed.

198.

Mr O'Connor: Many housing issues are connected with the issue of offenders. A prisoner that leaves jail is more likely to claim income support or some other benefit. As you rightly say, housing benefit for a single man or woman is not sufficient to allow private-sector renting. It is a vicious circle; how does one break it? The Simon Community has operated a rent guarantee scheme for young homeless people. Can you envisage something like that playing a constructive role? We have had funding for prisoners' groups, but many of them tend to focus on former Republican or Loyalist inmates rather than prisoners in general. Can something be done to guarantee that rent be paid for a certain time to give the person a chance to get back on his or her feet, back into work and properly rehabilitated back into the community?

199.

My second question concerns sex offenders. 'The News of the World' caused hysteria by sensationally printing their names and photographs. People are afraid to send their children to local swimming pools because they believe paedophiles are around every corner. Your report says that

"Resources are required to provide a menu of purpose built housing for sex offenders including a mix of independent and supported accommodation with a package of supervision, treatment and care as directed. Information, education and support on the issue of sex offenders should continue to dispel the hype and myth reported in the media."

200.

That is fair enough, but if a unit is created for six or 10 ex-offenders, will that not also create a focus for a great deal of community strife? People must be rehabilitated, but a community may be angered by the housing of such people together. What is your view?

201.

Mrs McLean: We do not promote the view that sex offenders should be housed in groups. We need a range of accommodation for those leaving custody, which includes sex offenders, but that is not to say that sex offenders or any type of offender should be grouped together in that manner. Reintegration and resettlement are about people linking back into the community, and we are examining ways of supporting isolated individuals through mentoring and volunteering to help them feel connected with the community.

202.

I acknowledge your points about hysteria and the pressure people are under to respond negatively if they are aware that a sex offender is living in their community. We wish to encourage public debate about communities managing risk. They should discuss and deal with such issues as part and parcel of any changes to accommo­dation.

203.

Mr O'Connor: It may be unfair to ask, but we have people in Northern Ireland who are classed as NIMBYs - not in my backyard. All those ideas are great on paper and sound well when you say them, but are you prepared to put your money where your mouth is?

204.

Mrs McLean: Through our involvement in communities we have gone out and talked to people about particular situations that they have faced.

205.

Mr O'Connor: Would you be happy to have a convicted paedophile living next door to you? How do we educate the public? We have a duty to rehabilitate offenders, but we also have a duty to protect the public. How do we manage both?

206.

Mrs McLean: The situation is a difficult one, and it is why the main statutory social services, the Probation Board and the police are working together closely, under new arrangements, to assess and manage risk. There are different views about how much the public can know at any time. However, I am not going to address those views here. I will say that the public debate needs to look at differences among sex offenders, and differences among types of risk. Communities also need to be encouraged to know more about child protection, and not to assume that people who have had convictions and gone through the courts system are the only people that present risk.

207.

Mr Conway: I shall deal first of all with Mr O'Connor's question about a paedophile living next door to me. There might be. There are over 350 people on the sex offenders' register and you can be guaranteed that those were adjudicated. They are people who have been caught. There are many more that we cannot put a figure on. As Mrs McLean says, the most important thing is to protect the vulnerable - our children. That is what drives everything, and everyone, whether in the community sector, the voluntary sector or in the statutory agencies, understands that the issue is one of risk management.

208.

I will re-emphasise to the Committee that home­lessness, especially from a crime prevention and crime reduction point of view, must be addressed in an upfront way. Not to address it causes crime. If we let the situation continue, people will still be homeless. However, employment, training, jobs and finance are also important factors.

209.

Mr O'Connor: Do you suggest some sort of rent guarantee scheme? Who would administer that or take responsibility for it?

210.

Mrs McLean: We have already talked to the Simon Community about that.

211.

Mr O'Connor: They will not take certain scheduled offenders.

212.

Mrs McLean: That is correct. We may be able to develop that as part of our resettlement strategy. It is very much on our agenda.

213.

Mr Conway: If the principle were established it does not really matter who administers it. If it gets people into half-decent accommodation so that homelessness ceases to be a problem, we can begin to address other matters.

214.

The Deputy Chairperson: Thank you very much for your time. We look forward to working with you on this issue as we develop our recommendations.

MINUTES OF EVIDENCE

Tuesday 12 February 2002

Members present:

Mr Cobain (Chairperson)

Ms Gildernew (Deputy Chairperson)

Sir John Gorman

Mr B Hutchinson

Mr O'Connor

Mr ONeill

Mr M Robinson

Mr Tierney

Mr S Wilson

Witnesses:

Mrs A Burgham                        )                        Chartered Institute of Housing                         Mr K Walsh                        )                        in Northern Ireland

Mr D Fotheringham                        )                        Chartered Institute of Housing

215.

The Chairperson: As part of our inquiry into homelessness, the Committee welcomes Mr Kieran Walsh and Mrs Adele Burgham from the Chartered Institute of Housing in Northern Ireland, and Mr David Fotheringham from the Chartered Institute of Housing head office.

216.

Mr Walsh: I want to begin by thanking the Chairperson for participating in our launch of Lifetime Homes last Monday, and other Committee members who attended. I particularly thank Mr ONeill who accompanied some of those who had arrived from England on their first visit to Northern Ireland and was able to show them around the Assembly. We are very grateful for that.

217.

The homelessness review is timely, not least with the tragic loss of life in the Morning Star hostel last night. The hostel catered for a particular client group, and no doubt media coverage will reinforce the mis­conceptions of many that a stereotypical homeless person is a down and out, itinerant, alcoholic or drug addict. The real image of a homeless person in Northern Ireland is more accurately a single person who has fallen out with his or her family, or a young mother with a child who has suffered a relationship breakdown.

218.

Proposals in the forthcoming legislation appear to be passive, and are simply an opportunity to correct some of the anomalies in current legislation in the rest of the UK. For example, someone from Northern Ireland presenting themselves as homeless in England can be deemed not to be homeless because he or she has accommodation in Northern Ireland. However, someone from England presenting as homeless in Northern Ireland is deemed to be homeless because that person is not legally entitled to occupy a residence in Northern Ireland. The statutory test of homelessness is that someone is deemed to be homeless if he or she is not legally entitled to occupy any accommodation, or that he or she is legally entitled to occupy accommodation but cannot do so, or that is no longer reasonable for them to continue residing in that accommodation. This test does not always mean that the applicant is on the streets. Someone who is likely to become homeless within four weeks is equally deemed to be homeless.

219.

Having satisfied the single test of homelessness, an applicant must fall into a specific category of priority need, and must not be deemed to have made himself intentionally homeless by an act or an omission. If an applicant fails any of those three tests there is a range of duties imposed on the Housing Executive by current legislation. They include no duty if the person is not homeless, a duty to only provide advice and assistance, a duty to provide temporary accom­modation, a duty to provide temporary accom­modation only for a reasonable time, a duty to provide temporary accommodation until permanently rehoused, and a duty to protect the personal belongings of the individuals. In Northern Ireland, the length of time that a homeless person is likely to remain in temporary accommodation will depend on the demands for rehousing in areas where that person wishes to live. That can range from a few days to many months. The temporary accommodation needs of homeless people are met by a combination of Housing Executive hostels, voluntary sector hostels and bed and breakfasts. As you know, the Housing Executive is carrying out its own review of homelessness services, and we welcome the opportunity to contribute to that.

220.

What are the current issues here and in the rest of the UK? Valuable lessons can be learnt from develop­ments elsewhere in the UK, and consideration should be given to adopting some of those initiatives in Northern Ireland. My colleague David Forthingham, the head of policy in our head office in Coventry, will inform the Committee on legislative proposals, new legislation and Government initiatives and taskforces that have been established in England, Scotland and Wales to tackle the causes and effects of homelessness. He will set out the context of those developments in the rest of the UK.Adele Burgham will highlight the main points of our submission as part of this review.

221.

Mr Fotheringhan: I am from the institute's office in Coventry. I know that you are interested in looking at how homelessness is being tackled in other parts of the United Kingdom, so I will talk mainly about the new Homelessness Bill, which is passing through Westminster and should be implemented soon.

222.

Tackling homelessness is becoming a more important political priority for the Westminster Government. They are sensitive about the fact that the numbers of homeless families and the use of temporary accommodation have rocketed since they came to power, particularly in the south-east and south-west of England and in London. The main problem there is a lack of affordable housing, as there have been dramatic increases in house prices, and development is expensive due to increasing land prices and labour costs. The institute has reminded the Government that even in parts of the country where is there is no shortage of affordable housing, there are still problems with homelessness because of factors such as anti-social behaviour, harassment, drug use, domestic and financial problems. That means that prevention and support are particularlyimportant. We expect that those causes of homelessness will be addressed in the National Homelessness Strategy, which the Department for Transport, Local Government and the Regions is working on.

223.

When the current Labour Government came into office, their most high profile initiative on homelessness was the rough sleepers' unit (RSU). However, now that this unit has met most of its targets, the focus is shifting to mainstream homeless people who are not out on the streets, but who are nevertheless in unsatisfactory temporary accommodation - sleeping on friends' floors or whatever. The Government has established a new unit to try to reduce the extensive use of bed and breakfast hotels in some of the high demand areas, particularly the London boroughs and some seaside authorities. Everybody recognises that those hotels are bad news, particularly for families with young children.Work on the new bed and breakfast unit will complement the work on rough sleepers, and both will be brought together in a new homelessness directorate in the Department for Transport, Local Government and the Regions. That directorate is designed to pull together the different aspects of the Governments' work on homelessness, and have overall responsibility for implementing the National Homelessness Strategy. I know that the Housing Executive leads on homelessness here, but in the rest of the United Kingdom local authorities have the main legal responsibility for dealing with homelessness, although with stock transfer housing associations play a growing role in meeting the needs of homeless people by giving them accommodation and support.

224.

In a way the new Homelessness Bill takes the legislation on homelessness in England and Wales full circle. The Housing Act 1996 removed some of the protections for homeless people, for example, they were entitled only to a temporary duty for two years' accommodation rather than enjoying access to permanent accommodation as they had before. The new Bill brings back the requirement to provide permanent housing for homeless people in priority need, and in that way it returns to the pre-1996 situation and is broadly in line with the position in Northern Ireland. It also goes much further than that. For example, it strengthens duties on housing advice, gives local authorities more flexibility over their letting schemes, and allows for the introduction of choice-based lettings. The priority need categories will be extended to include those aged 16 and 17, care leavers up to the age of 21, people who are vulnerable as a result of violence, and those vulnerable due to an institutionalised background. However, some groups of single people are classed as non-priority under the legislation. The Scottish Executive have gone one stage further with the Housing (Scotland) Act 2001 under which even non-priority homeless households will be entitled to temporary accommodation.

225.

The most significant change in the Homeless Bill is that local authorities are required to carry out reviews of homelessness in their areas. For example, they will need to identify trends in homelessness, and look at local available resources that can be used to deal with the problem. From those reviews they can produce a homelessness strategy. The idea is to move away from a firefighting type of approach, in which dealing with homelessness starts when a homeless family comes through the door, and be much more strategic - bringing about measures to prevent homelessness happening. There is a legal requirement for social services to be involved in the process, and it is also expected that housing associations and the voluntary sector will be involved in these reviews, and with the implementation of strategies.

226.

During the drafting of the Bill, there was extensive consultation with people involved in housing. This included the establishment of a homelessness sounding board by the Department of Transport, Local Government and the Regions, on which the Chartered Institute of Housing (CIH) and other main national housing organisations were represented. A lot of ideas, which eventually ended up in the Bill, were thrashed out at meetings of that board. A homelessness task force is being set up in Scotland. Task groups in Wales looked at issues such as letting and homelessness, and their research fed into a national housing strategy for Wales. The Homelessness Bill could be implemented as early as May, and local authorities would be required to produce their first homelessness strategies by the following May.

227.

The institute has been involved with setting up six seminars with the Department of Transport, Local Government and the Regions in different parts of England, which will help housing professionals get to grips with what the Act means for their homelessness services. We are expecting an updated code of guidance from the Government to accompany the Act, which is sorely needed because the current code is very out of date.That would really help housing workers to implement the legislation.

228.

The Government were keen on choice-based letting in their Green Paper on housing. They are funding 27 pilot schemes to be developed by local authorities across England, both in areas of high and low demand. Most are based around the Delft model - so called because it is based on schemes that are common in the Netherlands. The basic idea is to move away from the current situation where housing officers allocate homes based on a professional judgement about what people need, and move to a position where available properties are advertised in free newspapers or on the Internet. Applicants select properties, and submit coupons to indicate those that they are interested in. Given the history of housing, and issues around discrimination in the Province, I suspect that there would be concerns about such an approach here.

229.

There are concerns about choice-based letting on the mainland, such as how vulnerable people would fair under such a system. Those are the things that the Department of Transport, Local Government and the Region's pilot schemes are designed to evaluate, in conjunction with an intensive research evaluation pro­gramme. The institute has researched some of the new ideas, and I have reports that I would be happy for the Committee to look at.

230.

Mrs Burgham: Homelessness is a significant problem in Northern Ireland. Last year, Housing Executive figures indicated that almost 13,000 households presented as homeless. That is an increase on previous years, where the numbers fluctuated between 10,000 and 11,000. The worrying thing is that this figure does not reveal the full extent of homelessness. It only records the people who physically presented themselves to, or telephoned, the Housing Executive. That means that there is considerable hidden homelessness in the Province, the extent of which is difficult to judge.

231.

The hidden homeless includes people who are staying with relatives or friends because they have nowhere else to go, and those who are sleeping rough. Importantly, a significant number of those who have presented to the Housing Executive are single - almost 50%. That generally means that they do not qualify for assistance with accommodation because they do not meet the priority need category. Therefore, those people face difficulty in finding their own accommodation, and that is why they are often forced to stay with friends or family in overcrowded or unsuitable accommo­dation. They may find it difficult to afford their own accommodation, and there are high waiting lists for social housing.

232.

We have compiled a list, which is included in our submission, of issues that we would like the Housing Executive to highlight, but not necessarily change. The changes that the institute would like to emerge include the introduction of a homelessness strategy, including details of how homelessness will be tackled, as the Housing Executive will be required to review homelessness on a local level. This will require the introduction of a target for reducing homelessness. Rather than just acknowledging the level, there will be a target to reach as a performance measure. We should look at the possibility of extending the priority league categories to include other vulnerable groups such as 16- and 17-year-olds, which is currently being looked at elsewhere. There is a need for a greater emphasis on prevention, which requires research into the issues behind home­lessness and repeat homelessness. We need a greater focus on advice and assistance to prevent homelessness occurring in the first place, a reduction in the use of bed-and-breakfast accommodation, and an authoritative code of guidance for housing officers to refer to for clarity.

233.

The Homelessness Bill will introduce a power, but not a duty, to secure accommodation for homeless people who do not have a priority need, and that will address some of the current issues with single people who are homeless. There is a greater need for more tenancy support services, as some people are falling into repeat cycles of homelessness because they do not know how to manage on their own. We need greater research into homelessness, looking at initiatives elsewhere for tackling that. Housing policies such as the right to buy, rural housing strategies, supporting people and sustainability all have an effect on homelessness in one way or another. As Mr Fotheringham suggested, the Housing Executive could pilot some choice-based letting schemes in areas where it would be suitable.

234.

Mr Walsh: I would like to conclude by welcoming this opportunity to address the Committee, and to articulate the principle recommendations in our report. We are pleased that the Committee has embarked on this process of consultation. It will assist in the con­sideration of the proposed legislation to develop a more strategic approach to homelessness, and to underpin future services for the most vulnerable people in our community. Members have recognised this challenge, and you can be assured of our continued support and co-­operation in developing coherent policies to help shape the future. We commend our recommen­dations to you.

235.

Mr ONeill: It is appropriate to mention Mr Walsh's comments about the disaster at the Morning Star hostel last night and communicate our sympathy and support for them. The proposed legislation is timely for this complex issue. Mr Walsh described the proposedlegislation as passive, and in doing so I assume that he is talking specifically about responsibilities such as creating a power, and not a duty, to deal with home­lessness and other aspects that have been indicated in today's presentation.

236.

However, how can we ensure that more rigour is put into our legislation? Is the legislation in England, which Mr Fotheringham described, sufficient, and is it suitable for us? Do we need more than legislation, as sometimes we can make a law without delivering a service? How do we get that wholeness into homelessness, which has been missing in the past, and bring a central, driven approach so that we can encompass all of the various problems? What is your view on that?

237.

Mr Walsh: You are right about the suggestion about the passive approach. The proposed legislation - and we have suggested this to the Committee before - when it comes before the Assembly, or wherever it is at present, is simply to dot the i's and cross the t's on changes that were proposed, and in the offing, in 1996. It is trying to catch up with the situation that was primarily developing in England at that time. The situation has moved on considerably since then, which has lead to the various pieces of legislation that are being proposed in other parts of the UK. It appears that these are still trying to catch up - getting legislation on the statute book to correct some of the anomalies that existed in 1996. However, we do not necessarily have the consultation mechanisms or processes to allow the strategic debate to take place openly and transparently, bringing the various players together to ensure that a more strategic approach to homelessness is adopted.

238.

There is a very important element to the process that this Committee has embarked on as part of that review. However, my opinion is that the Committee for Social Development, when it is presented with legislation, will not have not allowed the various groups that have an impact on developing and shaping the future to come together to present their proposals. The Committee's difficulty is that it is dealing with the particular interests of specific groups, and people coming before it are talking about their own little niche of homelessness. The Committee has to balance and arbitrate between those competing demands.

239.

Several things are happening in other parts of the United Kingdom. The task forces and time-focussed groups, which have been established in Wales and Scotland, are useful examples that we could use. There are some strategic changes. In Wales they are making 16-year-olds, and people aged over 16, an automatic priority need, and that is an important development for tackling youth homelessness, and an important part of the overall strategy of how to develop measures to prevent homelessness.

240.

We have not so far detailed how we should educate our young people about what they should do when they are homeless. The reason the majority of single people become homeless is because they have a fall-out at home. They then look to family or friends for accommodation, or they end up sleeping on a floor somewhere. A reason for that is that they do not know where to go for the help and assistance they need. Those young people, who are the most vulnerable, are presenting to the Housing Executive, which tells them that, even though they are homeless, they do not fall into a priority need category, and, therefore, it has no responsibility to provide temporary accommodation for them. The Housing Executive simply refers them to a self-referral hostel run by a voluntary group, such as the Simon Community, to see if they can meet the competing demands of other young homeless people to get a bed for the night. If there was a statutory requirement on the Housing Executive to provide young people with a safe and settled place where they could tackle their family trauma, that would give them the space required and provide the support services already highlighted by Mrs Burgham.

241.

Mrs Burgham: There are three points that would be worth looking at. The first is the homelessness strategy, which is actually set out. However, it must be reviewed to clearly show how it is going to be addressed, and that would give more rigour to any means of tackling homelessness. Secondly, I would suggest an authoritative code of guidance. At the moment there is a code of interpretation, and that is open to people to use if they wish. In England it is much more firm - although their code of guidance needs updating - and people right across the country can look at it for clarification on how they should deal with a particular issue.

242.

Finally, and most importantly, there is a statutory duty towards the prevention of homelessness in England. Local authorities there are required to give advice and, if necessary, intercede on behalf of a potentially homeless person. Someone getting involved earlier to help people sort out rent arrears or whatever, would certainly help, and if that were on a statutory footing it could even prevent cases arising.

243.

Mr ONeill: When you talk about that strategy, are you talking about what is included in the English legislation, where there is a review, an identification of trends and resources, and then the strategy - that oneness in approach? Is that what you mean when you talk about the homeless strategy here, and how can that be included in legislation or in practice?

244.

Mr Fotheringham: The Homelessness Bill states that local authorities are required to undertake those reviews and involve social services. It covers the main points that should be included in their strategies, and some of the things that I mentioned. They are required to produce their first review within 12 months of enactment, and at least every 5 years afterwards. That can be clearly set out in legislation.

245.

Mr O'Connor: I am interested in seeing an overarching strategy to deal with the situation, tied in with both health and social services and, where necessary, the Department for Social Development. We must have a strategy to support the homeless. Quite often these people cannot get access to healthcare. How do we eliminate homelessness? Is it good enough to have a strategy to deal with it, or do we need one to eliminate it? What sort of realistic timetable should we set ourselves to tackle this growing problem in Northern Ireland, which rose 20% last year? There will always be people presenting themselves as homeless owing to individual circum­stances, but there are currently some who have been in hostels up to three years waiting for accommodation in parts of north and west Belfast, which is wholly un­acceptable. What sort of targets should we set to eliminate long-term homelessness? Obviously we cannot do it overnight. What is happening in Scotland, where there is a duty to provide a strategy?

246.

Mr Walsh: I agree that there should be targets. If you are to have a strategic approach, you need something to measure its success and outcomes. We need to analyse our starting point. Mrs Burgham has presented the current figures. Thirteen thousand households presented as homeless last year - a 20% increase on the recent average, which has been 10,000 to 11,000. We must analyse where those increases have been concentrated. It is a fact that nearly half of that number is made up of single people. We must examine how we can best advise our young people, through the school system, about where they can go for assistance before the trauma of homelessness happens to them. We cannot say that homelessness will be alleviated, because someone going home tonight could become involved in a family situation, and they may find that the only safe thing they can do is extricate themselves from that difficult situation. We need a safety net to ensure that they are able to find accommodation to allow them to deal with that trauma and, if necessary, be rehoused.

247.

We also need adequate, safe and properly resourced hostels and other self-contained accommodation to deal with those who find themselves homeless. We must reduce the reliance on bed and breakfast. If you examine Northern Ireland, you will see the large number of bed spaces in Housing Executive hostels tend to be around Belfast. Voluntary groups also tend to be based in that area. However, if you are homeless in Enniskillen or Newry, you are more likely to have to rely on bed and breakfast than on the support services that may be provided through the work of a voluntary group or the Housing Executive.

248.

It is important to have strategic targets as part of the overall approach, but no one should be beat with a big stick if they do not achieve those targets. We need to use the targets as a lead-in to dealing with overall measures to prevent homelessness and any crisis situation that may occur.

249.

Mr O'Connor: Section 9 of the Housing (Scotland) Act 2001 states

"An applicant for housing held by a local authority or a registered social landlord is entitled to be admitted to a housing list unless the applicant is under 16 years of age."

250.

That is not currently the situation in Northern Ireland for young homeless people. What type of provision should we examine to deal with the problem?

251.

Mr Walsh: I shall draw a distinction. The Housing (Scotland) Act 2001 suggests that a 16-year-old is able to appear on the waiting list. However, the Scots have not gone as far as the Welsh, who have determined that a 16-year-old is in priority need. The Scottish legislation simply allows a 16-year-old to apply for accommodation, meaning the person would not be precluded from doing so. The selection scheme previously operating in Northern Ireland precluded anyone under the age of 18 from applying. That was because it is the age of majority, meaning you could not enter into a legally enforceable contract without a guarantor unless you were old enough. The common selection scheme intro­duced in Northern Ireland addressed that situation.

252.

In Wales, the legislation has been extended to 16-and 17-year-olds, who were not previously covered by the legislation. Under the Children's Act 1989, it is not the responsibility of the housing authority, but social services to provide safe accommodation. Welsh legislation now states that 16-year-olds are automatically in priority need. They are not a current priority need category in Scotland or, indeed, in Northern Ireland. Evaluating the number of single people aged between 16 and 17, who have thus far dropped out of the homeless system operated by the Housing Executive as part of the 50% young singles, would be a consequence of extending the age range.

253.

Mr O'Connor: The South and East Belfast Trust has an arrangement with the Housing Executive where every 16-and 17-year-old who presents himself or herself as homeless is a child in need.

254.

Mr Walsh: That applies to children coming out of care.

255.

Mr O'Connor: There is scope to extend that. Where does the extra money come from for the Department for Social Development to fund and support all those children, as it cannot come from housing benefit alone?

256.

Mr Walsh: No. The Member will be well aware that from April next year housing benefit, because it is a UK-wide benefit, will only fund bricks and mortar. They are sizing the pot for the level of services to provide the level of care and support services and housingmanagement services needed to support people. We must decide and, with the greatest respect, the Committee must decide on the priority spend categories within its particular remit and within the Assembly to determine those key priorities. Our young people, who are the most vulnerable, could and should be a priority.

257.

Ms Gildernew: My question relates to that. I am glad that you believe that young people should be a priority, because there is a lack of understanding of young people's needs, here - especially of young people leaving care or young people who find themselves homeless. The laissez-faire attitude of the Housing Executive in not allowing them onto a waiting list until they are 18 years old is intolerable.

258.

I am particularly interested in rural homelessness and homeless women. There are very few bed spaces for women who have nowhere to go. When Women's Aid in Enniskillen closed down, there were no bed spaces in County Fermanagh for homeless women. The situation is nearly as bad elsewhere. What recommendations can you make on that?

259.

 Rurally, there is a lack of affordable housing and insufficient social housing. In a rural community, the local office might be 10 or 15 miles away and it would be hard enough to even get there to present yourself as homeless. People often go to a friend or relative because they know that they will not get on to waiting lists and that they will not be treated as a priority need. Compared to the amount of homeless people, £13,000 is a modest figure.

260.

Your paper examined practices across England, Scotland and Wales. Have you looked at any of the best practices in the 26 counties? Although we can look at best practices in other places and adopt the best aspects out of them, the situation in my constituency is much more closely related to that in the 26 counties than to the experience of England or Wales. You said that the Committee has a responsibility to ensure that priorities are clear. We will try to do that. I hope that the Minister will take on board the Committee's recommendations, because supporting people will be of huge importance to the most vulnerable in our society. Homelessness has increased by 20% this year, and could increase substantially next year.

261.

Mr Walsh: First, I do not share your view that the Housing Executive adopts a laissez-faire attitude in its implementation of this. The Housing Executive is constrained by the legislative requirements that it must comply with. Therefore, it only carries out policies. It would not be fair to challenge the professionalism of the Housing Executive staff who process homelessness applications, man the hostels or who deal with the homeless clients whom they must place.

262.

I share your concerns about rural homelessness, and as part of past reviews of rural housing, we have commented on the difficulties for homeless people in rural locations. People in Enniskillen and elsewhere are victims to the same extent and for the same reasons as homeless people in Belfast. In Belfast there is a supply of temporary accommodation, so people can at least look at alternatives. Those alternatives mean that the family can keep their support network, and the children can attend the same schools so that the disruption and trauma of homelessness can at least be reduced. I am not trying to understate that trauma in any way, but it can be reduced.

263.

In rural locations people are invariably asked to move to bed and breakfasts that might be 20 miles away and where they will be far from their extended families, schools and the networks that they have grown up with. Therefore temporary accommodation becomes the worst option, and the family must go to a relative to relieve their trauma.

264.

It is unfeasible for the Housing Executive or voluntary organisations to build hotels everywhere, but the existing stock must be used creatively through better use of the private rented sector and various other lettings. It is also important that no applicant, homeless person or family should be disadvantaged because they have found their own temporary accommodation. The legislation does allow that to happen. The circumstancesthat led to their homelessness, rather than the fact that they have found their own temporary accommodation, should be evaluated. If someone has been disadvantagedbecause they have moved in with a family or friend, even if it is deemed that they have been reasonably re-housed by moving back in with their mother who is in a three-bedroomed house where all the children have a bed, they should not be assessed as being properly accommodated. If that were their situation, I feel that the local district manager would be keen to ensure that it was assessed properly.

265.

We have compared our developments with those in England, Scotland and Wales. When the Housing (Northern Ireland) Order 1988 came into effect - and I declare an interest here - I was assistant district manager in the homeless unit in the Housing Executive which was established in 1989. Therefore I was actually involved in many of the things that I am talking about. People could point to me and say that in some way I had my fingerprints on many of the difficulties that have been highlighted. Before 1989, social services were responsible for temporary accommodation, and the Housing Executive's statutory duty was only to those people who were seeking to be permanently re-housed. If a homeless person or family came to the local Housing Executive district office, they were told that they had to go to social services if they wanted temporary accommodation. Social services then had to look at their temporary accommodation needs, and the Housing Executive took the case and did the assessment once the person or family had been temporarily re-housed.

266.

Things have improved considerably, in that the Housing Executive is now solely responsible for temporary and permanent allocations. In the Republic of Ireland they have not got to the stage where those are accepted as being the same. The other disadvantage in how local authorities are set up in the Republic of Ireland is that there is no proper career structure for housing officers. Somebody who works today in a housingoffice could be working in agriculture tomorrow and in economic development next year. The workers have skills, developed through training, that enable them to deal with the sensitivities and trauma of homelessness for a short time, and they are then promoted out of the housing department to another area of social policy. We lack the continuity that allows for the development of a long­-term approach that will successfully tackle the problems of homelessness throughout Ireland.

267.

Sir John Gorman: I must declare an interest because I have been a member of the Chartered Institute of Housing for more years than I care to remember, so I am extremely sympathetic to its views. Last week I asked the Minister for Social Development, Nigel Dodds, a supplementary question in which I pointed out that there were 12,600 homeless presentations last year. His reply was highly sympathetic to this, and it was by no means dismissive. However, he pointed out that it is not solely the requirement of the Committee or the Depart­ment for Social Development to look after this. There is a strong educational point to be made here, and you made it yourselves. The requirement for funding this, as opposed to other destinies of funds, must be taken into account.

268.

One thing that depresses me is that 40% of these presentations for homelessness come from young people. I have four children and nine grandchildren, and I know what children are like. Children can get into a huff and say that they are not going to put up with things - they are going to go. Then they phone the district manager and say that they are homeless. If we take this to its logical conclusion, must that not be an adverse housing situation - not a bad tempered grandfather or father - but a housing situation? What proportion of people presenting as homeless come from homes that are below the acceptable and affordable social standard, which, in my day was the challenge and the objective of the Housing Executive? In some ways we may be putting this requirement onto Rough Sleepers Unit and other units which I see Lord Faulkner so interested in - he is a great man for units of one sort or another. If we could see ourselves get back to the days when the Housing Executive had a huge challenge to produce affordable housing of good quality - the sort of housing we built then - would that have an effect on the 40% of applicants who are looking now?

269.

Mr Walsh: Yes. In response to Mr O'Connor's question on the strategy, numbers and determining outcomes, one of the difficulties and imponderables is that the adoption of a policy of duty to provide temporary accommodation for 16-year-olds might increase the number of 16-year-olds who are going to present. I understand that argument.

270.

The other side is that those people present already. The difficulty is that no one accepts respon­sibility for them. They present for accommodation and seek help from the Housing Executive, where they are told that while the Housing Executive accepts that they are homeless, it does not have a responsibility to provide them with temporary accommodation. Therefore, they are told to find out about a self-referral hostel. They are given a list of estate agents to contact about renting temporarily, but they are not helped in their need.

271.

We have to turn 16 and 17-year-old people away, saying that we do not have a statutory responsibility for them. We cannot formally refer them for temporary accommodation, which may be the only respite that is needed for them to come to terms with the significance of breakdown in the family, and might give them the space to decide to go back into the family home again.

272.

Many of those who present themselves as homeless return home after a time, since in the intervening period they have been able to deal with the trauma that has led to their situation.

273.

Mr B Hutchinson: I was interested in what you had to say about the hidden homeless, Mrs Burgham. You mentioned the figure of 13,000, saying that it is probably be far greater but that you cannot quantify its true extent. How do you define and identify the hidden homeless? Through our scrutiny of the Bill before us, what can we do to eradicate the problem?

274.

Mrs Burgham: People often tend to think of the hidden homeless in stereotypes. Rough sleepers - people who might be sleeping in doorways in large towns - are part of hidden homelessness, since quite often they are aware from friends and others that, if they go to an authority - whether in Northern Ireland or England - they will not be given priority. For that reason they often do not even bother going along.

275.

Elderly people living with their families might not really want to be there, but circumstances give them no choice. People leaving care are initially given assistance, but that gradually wanes. When it stops, they cannot manage, and drop back into the cycle of repeat homelessness. Sisters or brothers who cannot afford to buy property on their own club together. When someone loses a job he has to sell his house and move in with a sibling. All of those people will not necessarily go to a housing authority and ask for help. Some do not know that they are entitled to assistance; some know they will not be entitled.

276.

I should like to quantify those figures, but I do not know how anyone could ever give an accurate picture of the hidden homeless. An estimate could be made by going through all the different categories, but it would be a real challenge to identify them fully.

277.

I mentioned that research is a key issue in addressing the problem. You must identify the reasons behind homelessness. Social issues contribute greatly; tackling those might eliminate the causes. There are many different reasons, and one must research whether those behind homelessness and repeat homelessness are the same. Would greater intervention help? Research is the key, and, if you can start to examine those issues, you might be able to address the problem. It will never be fully addressed, but, if people could make an effort, it would certainly go some way towards doing so.

278.

Mr B Hutchinson: So there is no single thing we can put in the Bill which would address the problem?

279.

Mr Fotheringham: The idea of homelessness reviews would help. If the Executive were leading the review and had to consult voluntary organisations and housing associations, dealing with all kinds of different client groups and perhaps setting up focus groups among homeless people in hostels, they would begin to understand the different causes of homelessness and how they must be addressed.

280.

Mr Walsh: The Simon Community produced their report, showing that they dealt with 1,200 different cases. However, over 4,000 people presented themselves as homeless. The other 3,000-odd people had to go somewhere else. They did not necessarily go to the Housing Executive, because they did not have the status of priority need to be accommodated. This gives a tangible example of the hidden homeless.

281.

Mr S Wilson: I want to ask you about several things in your presentation which caused me some concern. Thirteen thousand people presented as homeless last year. How many of those were deemed homeless under the current definition? That is the more importantstatistic to us.

282.

Through my constituency work I can think of many people who present themselves as homeless and who are not. Perhaps they are swinging the lead a bit to try and get up the housing waiting list.

283.

Rather than firefighting once a person has become homeless, there should be some requirement to prevent the problem happening in the first place. I hear of many people in poor rented accommodation whose landlords become sick and tired of demands for repairs and the like and - sometimes gladly - write to the tenants that the house will be repossessed in three or six months' time. The landlord has no intention of doing that, and the tenants are not really homeless from that point of view, but it is a get-out for him if the tenant is being difficult with regard to repairs or whatever. How can such situations be overcome?

284.

There is a duty to prevent homelessness. If a landlord wrote to a tenant to say that in three months time he or she would be out of the house, would it require that person to be rehoused? If so, how should that kind of abuse be stopped?

285.

You mentioned many things that should be done or included in the Bill, such as tenancy support, having a power and not a duty, choice-based learning schemes, et cetera. Have you estimated what additional resources would be necessary? There is no point in putting something into legislation to find that the resources are not available. That disappoints everyone.

286.

I am not happy with the situation concerning 16- or 17-year olds. I take some of the points about temporary homelessness. However, you went further. Someone said that going back to suitable accommo­dation in the family's house should not preclude anyonefrom staying on the waiting list. That worries me a little. Social legislation should not be designed to weaken families. Many of our social problems arise because people left home, were given accommodation, were not really supervised, could not deal with it and caused immense problems for neighbours. Does that kind of proposal not provide a recipe for even more of that?

287.

Mr Walsh: I am sorry if I have misled you in relation to people who present as homeless and have a home. If it is found that there is a statutory duty to provide temporary accommodation for someone pre­senting as homeless who then returns home, that person is no longer homeless and the case dies. If someone presents as homeless and is deemed to be homeless, there is a temporary accommodation duty. If the person makes his or her own temporary accommodation arrangements - returning, for example, to his or her mother with the children after a relationship breakdown - the fact that someone who is homeless from one accommodation means that person is not assessed as now living with a relative, the mother in our example. The assessment comes from the cause, regardless of who else the person is living with. In that case, therefore, the person can make his or her own temporary accommo­dation arrangements and still remain on the list.

288.

The case is dropped regarding anyone - whether a young person or a family - who leaves the family home, goes away, is put up but is then reconciled.

289.

I do not have the dropout figure for those who present as homeless but are deemed not to be homeless, but it is included in the Housing Executive's review. The drop-out rate is not very substantial. There are three hurdles to get over concerning homelessness. The first is to determine if someone is homeless or if he or she is legally entitled to occupy any property. If someone living in the family home has a row with their mother who then revokes their licence to occupy, that person is still legally entitled to occupy that property. However, that person is deemed to be homeless if the mother tells him or her to get out.

290.

The second hurdle is priority need, and the third is intentionality - in other words, whether someone is intentionally homeless because of something he or she has or has not done. The statistical analysis shows that many people are deemed to be homeless but then drop out. The largest category of dropout is through failure to meet the criteria for priority need, and people do not get over that hurdle primarily because they are young.

291.

In relation to the private rented sector, if someone arrived at the office with a letter from the landlord telling them that they would be put out in three months, the Housing Executive's response would be that the case would be assessed but that the person will not be deemed to be homeless unless he or she is actually homeless or is likely to become homeless within 28 days. That person could get advice and assistance about whether he or she has a licence or a lease, its terms, and whether the landlord was putting pressure on the tenant. The environmental health section in any local council can take action against any landlord who evicts someone illegally.

292.

Realistically, we recognise that if the landlord wants the tenant out and the tenant is happy enough because he will be accommodated, it is the Housing Executive's duty to make all reasonable enquiries to enable them to arrive at a decision. That enquiry would mean talking to the landlord. If he says that he needs the tenant out because he needs the property for himself, or it is the end of the lease, the Housing Executive is powerless to insist that that person needed to stay to take appropriate court action against the landlord for an illegal eviction. It has to deal with the situation that it is presented with, and its duty is to carry out all necessary enquiries to enable it to make a decision. That is what it endeavours to do. That is why some cases of homelessness take longer than a month for a decision to be arrived at because of the nature and extent of the enquiries that have to be carried out.

293.

Sir John Gorman raised the question of funding. The funding for what we have suggested has not yet been costed. However, we have suggested to the Committee that the funding that comes into the Assembly is in relation to the block grant allocation, rates and rent. The Housing Executive used to be able to get the capital funding to do the building that was required. That situation has changed. The reason for that change is not because the housing associations had asked for it, or that anybody believed that the housing associations could deliver the development programme better than the Housing Executive, but solely so that private moneys could be more easily accessed. As a consequence of that, the consistent pattern of rent setting that we have in Northern Ireland is being slowly demolished, bit by bit.

294.

We have previously spoken to the Committee about the net loss through the right-to-buy scheme, in which we are selling over 5,000 properties a year. The Housing Executive is currently reviewing the right­-to-buy scheme. There are over 10,000 new applicationsbecause they are likely to be capping the right-to-buy scheme. The likelihood of that, along with the replacement of less than 1,500 properties this year - perhaps even as little as 1,200 or 1,000 new properties - means that there will be a net loss of 4,000 properties a year.

295.

Surely, as part of the review of public admin­istration that the Assembly is to undertake, the asset base of the Housing Executive could be used to access private moneys to sort out the funding of various priorities. It cannot be done with the existing resources of the Department for Social Development. More creative funding solutions are required.

296.

Sir John Gorman: I promise you, I did not brief him.

297.

Mr B Hutchinson: What is your opinion of the effectiveness of the current definition of homelessness? Would you redefine it, and if so, how?

298.

Mr Walsh: That is a difficult question, Mr Hutchinson. We need to settle on something that we can all consistently apply. Many people would say that the definition and the rules on homelessness disadvantage one particular need group or another. We must decide what the definition is, and look at the rules that allow people to be described in a way that makes them accessible to certain duties. I am not that hung up on what a definition of why or what a homeless person is. As far as I am concerned, if somebody -

299.

Mr B Hutchinson: But do you think it is effective at present?

300.

Mr Walsh: Yes. In my view it is. It allows the assessment to be made. It is not simply that someone has nowhere to go and is out on the street sleeping rough. It may be that they have nowhere that they can legally occupy. They may have somewhere that they can legally occupy, but are not able to because of a violent partner, or the revocation of the parent's licence, or because of intimidation. If a person had presented in a local office two years ago to be told, "You have a house up the Shankill Road", that would be totally unacceptable. In such a case, there are good reasons not to return to the property that the individual was legally entitled to occupy.

301.

I believe that the Housing Executive has administered the legislation before it, along with the amendments to the Housing (Northern Ireland) Order 1988, in as professional a manner as is possible. There have been constraints on what staff would have liked to do; sometimes they were unable to act as they saw fit, because the requirements were not there to deal with it. The most soul-destroying thing for a professional housing officer to encounter is to turn a 17-year-old away telling him that you cannot accommodate him and giving him a list of hostels, when you do not know if he will have a bed for the night. They leave your door and you do not know where they are likely to end up, what trouble they may get into or under whose influence they may fall.

302.

Ms Gildernew: I asked about the problem of women and the lack of temporary accommodation, which you did not touch on. Also, Mr Wilson made a point about 16 and 17-year-olds who present themselves as homeless, and then find suitable temporary accommo­dation. Are they still on the homelessness list if they go back to their family home? The circumstances which caused them to leave in the first place could still be at work. However, if they have nowhere else to go and it is a choice between the street or going back home, are they taken off the waiting list?

303.

Mr Walsh: If a 16 or 17-year-old presents to the local office as homeless because of an argument at home - [Interruption].

304.

Ms Gildernew: Or abuse.

305.

Mr Walsh: If something has happened to prevent that person returning home that night, they can go to the local district office where they are assessed. While that individual may be homeless, he may not meet the current criteria for priority need and therefore there would not be a statutory responsibility on the Housing Executive to provide temporary or permanent accommo­dation. When he found another address he could be reassessed and pointed accordingly. However, under the existing rules he would not be deemed as being in priority need.

306.

Abuse is a different category because it falls outside the remit of being determined solely by a housing professional, and social services would have to become involved. If a young person were to arrive in the homeless unit in Belfast and suggest that there was abuse involved in his case, we would insist on the social services becoming involved. Social services could explain that. The Executive would ensure that the case was treated in utter confidentiality. We would not ask the family or whoever if they were abusing the child. That case would be dealt with by social services as that staff has experience in handling such cases. Therefore, we would work jointly with another agency that has the professionals who can deal with the needs of that individual.

307.

If a 17-year-old was put out of home after a row with his mother and he presented as homeless, there would not be a duty to provide temporary accommo­dation for him. Some of those people are the most vulnerable, and to say that the rules do not allow us to provide temporary accommodation is not sufficient. If temporary accommodation was provided but they patched up the differences and felt able to return home, then they would be deemed to be no longer homeless, and the case would be closed. I am making a distinction between someone who can return home because the matter has been rectified, rather than being forced back home because there is no alternative. That would not happen.

308.

The woman's refuge you referred to - and others - could not be sustained for financial reasons. The Committee has already examined the Supporting People initiative. They will break the rules down into a pot for the various services that are needed and the housing benefit element of that. The departmental officials have discussed that with the Committee, and the Minister has addressed it. There are some people who will view this as a threat to the level of services, but in April 2003 we will broadly have the same level of resources.

309.

The Chairperson: We cannot assume that. You may assume that for 2003, but you cannot assume that for every year after that.

310.

Mr Walsh: That is exactly the point that I was about to make. In 2003 the pot will be sized to guarantee this level. We have to develop the long-term strategy of how to meet need in various locations, including Women's Aid refuges in some locations. That is why the strategic approach that we suggest in our submission is not about a Northern Ireland strategy, but a local strategy to meet the needs of local people are homeless. The Supporting People fund will broadly be the same resources for the same people in a different way, but the difficulty is that there is nothing to say what that will be.

311.

The Chairperson: I do not think it is a simple as that either. There are three or four levels when dealing with homelessness, including social services, education and legislation, and they all have a role to play in this. Although we may be the lead Committee or lead Department, other Departments also have responsibilities. We do not want to be left with issues, as we were with others, such as the special purchase of evacuated dwellings (SPED) scheme. The Committee is taking responsibility for an issue that is not ours, as far as housing associations are concerned. Thank you.

MINUTES OF EVIDENCE

Thursday 14 February 2002

Members present:

Mr Cobain (Chairperson)

Ms Gildernew(Deputy Chairperson)

Sir John Gorman

Mr B Hutchinson

Mr G Kelly

Mr O'Connor

Mr ONeill

Mr M Robinson

Mr Tierney

Mr S Wilson

Witnesses:

Mr L Moffat    )                      Shelter Northern Ireland

Mr R Cashell   )

312.

The Chairperson: Oral evidence in the homeless­ness inquiry will be given by Mr Moffat and Mr Cashell from Shelter Northern Ireland.

313.

Mr Moffat: I thank the Committee for setting up the inquiry and for inviting us to make an oral presentation. We are happy to do that because the issue is important. Housing Executive statistics show that more than 12,000 applicants presented as homeless last year. Of the 9,000 who were found to be homeless, more than 6,000 were accepted as priority homeless. Homelessness is a serious problem in Northern Ireland and a specific system is required to deal with it.

314.

There are two strands to that system. First, there must be a statutory system that involves legislation. Secondly, there must be an adequate supply of both temporary and permanent accommodation. The legislative framework must do two things: define homelessness clearly; and place a clear duty on a statutory body to receive, identify and house homeless people. We argue for legislation and an adequate supply of both temporary and permanent accommodation as the twin means to tackle homelessness. The Housing (Northern Ireland) Order 1988, which deals with homelessness, is already in place. It defines homelessness and places a duty on the Housing Executive to identify, prioritise and house homeless people. We are generally happy with the legislation.

315.

Shelter Northern Ireland spent some time in the 1980s arguing for legislation. In October 1983, we met Chris Patten, the then Under-Secretary of State at the Department of the Environment. We are sympathetic to and supportive of the legislation. However, we wish to see it improved on and used as a framework around which a preventative strategy can be built.

316.

I shall go through the recommendations that we have made to the Committee, which are in section 5 of our document. Our first recommendation is that the present legislative framework. It should continue to define homelessness and place a clear duty on the Housing Executive to deal with it. In that context, we wish to see improvements made to it.

317.

The first improvement that we wish to see is that the Executive must be required to draw up a strategy to ensure that homelessness be prevented. They must be more proactive than at present. Secondly, we wish to see those priority groups which currently exist expanded to include 16- to 21-year-olds leaving care or subject to the Children (Northern Ireland) Order 1995 and 16- to 18-year-olds who are homeless or threatened with homelessness. The Housing Executive must be responsible for dealing with their housing needs

318.

Thirdly, we wish to see improvement to the concept of intentionality, which unfortunately we feel is necessary to deal with abuse of the system. However, it must be more tightly defined to include only the intention of an act rather than its consequences. If theintention of the act were to become homeless, that would be seen as intentionality, but if homelessness were the consequence, that would not be seen as such. We wish to see the matter of intent more clearly focused and defined than at present.

319.

Fourthly, we wish to see a speedy appeals system put in place so that those homeless applicants who are rejected can go through an independent appeals system to put their case for a reassessment of the Housing Executive's decisions. The next matter concerns the common selection scheme. The selection scheme allocates housing to those defined as being in need. We now have a common selection scheme, but it has to some extent modified and undermined the priority originally given to the homeless. We should like to see an assessment done on the scheme's impact on the rehousing of homeless applicants, especially full-duty applicants.

320.

Our next recommendation concerns temporary accommodation, which we believe should be provided by the not-for-profit sector, which essentially means voluntary groups, rather than by the private sector. The voluntary sector is in a better position to understand the needs of homeless people and provide them with the necessary support.

321.

That leads on to the issue of the private, furnished sector. That sector is uncontrolled, and some controls should be introduced into that sector for security of tenure and affordable rents. Many non-priority homeless people end up in the furnished sector. The furnished sector is also one of the causes of homelessness according to recent documentation produced by the Housing Executive. People are forced to leave the furnished, unregulated sector. Regulations should be brought into that sector to tackle that problem.

322.

Our next recommendation concerns the supply of public sector housing. The Committee is probably aware that the supply of new buildings in the public sector has been falling consistently in the past 10 years. In fact, 2000-01 was the lowest on record, with 1,156 completions, which is totally inadequate. The Housing Executive, in its most recent review of the market, argues that just to keep on top of urgent need, we need to provide 1,500 completions per annum in the public sector. We are falling well below that. Moreover, the Housing Executive's house sales scheme is racing ahead. It sells around 5,000 houses per year, and in the 1990s there was a net loss of around 25,000 public sector houses. That is not a sustainable policy. Public sector housing is required for re-allocation to those in need, and we want to see a study of the impact of the house sales scheme on rehousing those in need, including the homeless.

323.

Our final point concerns resources. We are aware that there has been an increase in people presenting as homeless, partly as a result of inter-community, sectarian violence, and various fallouts within paramilitary organisations. There have apparently been more cases of intimidation. That increase indicates that homelessness is, to some extent, demand-led. We would argue that cash for emergency accommodation should not be limited, but demand-led. That is essential if we are to tackle the whole issue of homelessness, especially in a situation in which there are considerable levels of sectarian violence and paramilitary-sourced intimidation.

324.

Mr O'Connor: You said that Shelter Northern Ireland would like there to be a clearer definition of homelessness. What would you specifically like to see contained in that definition? You also talked about building for supply to meet demand in the Housing Executive. My area has a homeless problem yet we also have 250 unoccupied properties. How do we marry those two things? I partially accept what you said about house sales. You mentioned that Shelter Northern Ireland would like to see an appeal system. Does the Housing Executive decide that somebody is not homeless and the same body reviews that decision? Is an inde­pendent appeals system needed? I have raised that matter with the Minister, as I know it concerns some people.

325.

Mr Moffat: An internal system operates at present, but as you have rightly described, those making the original decision are being asked to reassess it. That is not satisfactory, so we are arguing for an independent appeal system. We stand by that argument.

326.

The question of supply is straightforward. Supply is falling - it is now down at 1,100 completions per year in the public sector against a minimum target of 1,500, which is the figure for which the Housing Executive argues.

327.

That supply is now inadequate, despite the fact that there are around 200 empty properties in your area. Those properties should be brought back into use if they are fit in which to live. I do not know the particular circumstances in Larne. Perhaps the houses are unfit or there are problems in the area. Perhaps there is insufficient money in the Housing Executive's kitty to improve the houses and make them habitable. Empty houses should be brought back into use if possible.

328.

Shelter Northern Ireland is not arguing for a change to the definition of homelessness. We are saying that any statutory system must have a clear definition. The Housing Executive should have a duty to draw up a strategy in order to prevent homelessness. That strategy should become a new element in the legislation. That should be the Housing Executive's job, instead of reacting to homelessness in a "firefighting" way.

329.

Mr Cashell: One definition in the legislation is that a person can have an address but that it is not reasonable for that person to remain there. That is a rather broad definition, and it allows the individual assessing officer a large area of interpretation and discretion. I would not necessarily argue that the legislation should be more precise. However, there must be transparent guidelines that explain the boundaries of reasonableness in any individual case. That definition could be widely interpreted, or it could strictly interpreted - especially if there is an appeal against a decision. Some sort of framework must exist. I am not arguing that it must become primary legislation. However, it should be in the system.

330.

Problems exist in the UK with under-supply or over-supply on popular estates and with extensive demolition programmes. Those problems co-exist with extensive homelessness in most cities. The Housing Executive in Northern Ireland is demolishing buildings at the same time as it is undertaking new building programmes in the same area. Much of that is to do with why individual properties are vacant. Shelter is unhappy with a formula that forces homeless people to live on the worst estates where no one else wants to live. That creates an entirely new set of problems. However, I agree that that needs to be seen as part of a prevention strategy in the context of a real strategy that deals with the reasons why individual locations are unpopular, are difficult to let or are surplus to require­ments. Such buildings must be replaced with what is needed and with what people want.

331.

Mr B Hutchinson: Do you believe that the definition is effective in dealing with homelessness?

332.

Mr Cashell: No. Because the definition can be so widely interpreted there is much litigation regarding whether people are homeless or not. The real problem is in tackling the priority-need group effectively. Many people who are recognised as homeless are not entitled to the full amount of support and intervention because the definition of the priority-need group is being rigidly interpreted. Those people are not being given full duty applicant status and, therefore, are not given a fast track.

333.

Shelter Northern Ireland is concerned that the concept of a priority-need group needs to be reconsidered and that everybody who is homeless gets the appropriate help. That help might take the form of temporary or permanent accommodation. However, Shelter has always had a problem with the priority-need group concept. That could be dealt with either by abolishing the test or by having a more generous definition. The problem of young single people who fall outside that definition has been specifically mentioned. Those people need assistance.

334.

Mr B Hutchinson: The view of other people who have given evidence is that the Housing Executive figure of 12,600 applicants is much higher because of the notion of the "hidden homeless". Do you agree with that?

335.

Mr Moffat: Shelter does not disagree with that. We have used official statistics because it is difficult for people to argue against them. The Simon Community and Women's Aid, for example, collect statistics on the homeless. Those figures should be taken seriously by anybody who looks at them. Shelter is not saying that there are no more than 12,600 applicants per year. We have used those statistics because they are probably more acceptable.

336.

Mr ONeill: I apologise for arriving late. I may have missed some important points. However, in reply to Mr Hutchinson's question, you said that the existing legislation was inadequate, which is correct, as there was a 20% increase in applicants in the past year. I shall focus on the new housing Bill. I do not know whether your presentation mentioned whether you had seen it or knew what was to be included in it. The Committee is concerned about getting the legislation right.

337.

What are your views on the strategies employed by agencies in Britain or the Republic of Ireland that could prove effective? Do you have any views on the current legislation in Britain or examples of good practice that would be suitable for us to adopt? I am worried that we may end up with a housing Bill that only keeps pace with problems, rather than overtakes them. Given the 20% increase in those presenting as homeless, we must take control of the situation. In your experience, what examples of good practice and what strategies would help us to get on top of the escalating problem?

338.

Mr Cashell: Unfortunately, I am not sure that we can identify many examples of broad-based good practice. The last draft housing Bill that I saw was dated 1996. That was largely geared towards mirroring the proposals for the 1996 housing legislation in Britain, which was dictated by the philosophy of the Conservative Government. We were unhappy with the direction that was being taken and with much of the content of the Housing Act 1996, and we would have been very unhappy had it been brought in here. Some components of the draft housing Bill that remained intact while it moved through different systems here are still trying to follow the old Conservative agenda that is redundant in England. We want to ensure that, whatever direction it takes, the legislation follows more up-to-date thinking.

339.

The Westminster Government's action in reversing what we consider to be the damaging effect of the Housing Act 1996 is not as far advanced as we would like. Many issues still apply in England that do not apply here, such as those affecting people moving across boundaries. For example, there was a notion in Northern Ireland that a person could be in category A in his or her own district, but that did not mean that he or she would be in category A in another district. That sort of mechanism compounded the problem, because homeless people who wanted to be rehoused were restricted to their own district. The equivalent provision in England was much more rigid. People must have much more mobility. That is a problem of the admini­strative, rather than the legislative, system.

340.

Many local authorities - in Scotland more than in England and Wales - are taking a much broader view of the extent to which young people are vulnerable. Therefore, they automatically take the view that a wide range of young people can be considered to be vulnerable and to have priority need. They do not have to be so severely at risk that they have already come to the attention of social services, or become the respon­sibility of social services under the Children (Northern Ireland) Order 1995. That is an example of good practice in which local authorities are taking such a broad view. They are also taking a pragmatic view of the sort of housing and the sort of help that those young people need. It is not just a housing issue for many homeless people.

341.

I cannot give you specific examples at the moment, but there is a general trend towards recognising that young people need help. They are only going to be successfully rehoused if they get back-up and support.

342.

We are involved in the design of housing projects here based on English models. The example of the foyer movement is one that is often cited. There are four pilot foyers in Northern Ireland and the Department here has taken the view that there will not be any more until there is a proper assessment of their success. We would like to see that develop, and a decision taken as to whether that type of provision is a real contributor. That type of project is widespread in England. There is a policy that every town should have one. There is an assumption that the foyer movement is working for young homeless people. However, we need to consider whether it applies to Northern Ireland's circumstances, and if so, to expand it.

343.

The other point is that the traffic, the throughput and the success in housing people is primarily a system and supply issue; it is not a legislative issue. The large number of people who are getting full duty applicant status, but are still in the system, is part of the problem. The fundamental factors are the speed of throughput, and the availability of suitable and permanent housing in the areas where people want it.

344.

Throughput in Northern Ireland is generally faster than in many areas of England, Scotland and Wales. However, that is not a reason to be complacent. A stay of more than one year in temporary accommo­dation is relatively unusual in Northern Ireland. However, even that is unsatisfactory if the temporary accommo­dation is not good. The quality and range of temporary accommodation in Northern Ireland needs to be seriously addressed. Again, that is a delivery issue, not a legislative one. We should not be using hotels and bed and breakfasts. Small rural towns should not be shifting people, for example, from Omagh to Five­miletown to stay in a hotel because they are homeless. Once again, however, that is not a legislative issue, but a funding and planning issue.

345.

Mr ONeill: You rightly separated the legislative issues from the delivery of the service. It strikes Committee members in listening to contributions, that there are many well-meaning people and agencies involved. However, the delivery of the service seems to suffer from a lack of cohesion. Although it may not be included in the legislation, is there anything that you would suggest should go into the advice notes of the legislation that would ensure a more coherent approach to what is a multi-faceted problem?

346.

Mr Moffat: The Housing Executive should have a duty to draw up a preventative strategy in conjunction with the various groups - especially the voluntary sector and the health boards - that come into contact with homeless people, in order to ensure that there is a comprehensive range of solutions. Of course, that requires resources, and there is an issue of supply meeting need. We would argue that the Housing Executive must take charge of the system. It should be working with organisations that deliver other services, such as health bodies.

347.

Mr Cashell: It comes back to one area of good practice. Several local authorities in England, and certainly in London, had private sector conciliation operations under the aegis of their housing departments, which actively worked to prevent evictions in the private sector, rather than pick up the homeless case that was the result of the eviction. That was in the context that private sector tenants had at least some basic rights in the English legislation, which they do not have here.

348.

We would like to see more legal protection for tenants in the private sector, and that the illegal evictions that take place be more rigorously policed. There have been practically no prosecutions of private landlords for illegal eviction in Northern Ireland. In the few cases that there have been, derisory fines of £50 were imposed. The Housing Executive should have a preventative role to play. Its homeless unit should be able to assist people who present as homeless and say that their landlord is going to throw them out. The homeless unit should be able to deal with that problem, either by preventing the eviction, or, at least, by going through the proper legal channels. That would be better than asking the person to come back when they are out on the street.

349.

The Housing Executive has that sort of role to play. Due to the extent of the problem in cities in England, that has been seen as a valid role that can work. However, it must be in the context of a legislative framework, so that the tenants have that protection.

350.

Primarily, it is a question of making sure that cases are properly heard. There has been a shift under the common selection scheme, which we welcome. It used to be implied that if a person did not use the magic word, "homeless", when he or she went into the Housing Executive district office, then the fact that the person may be homeless was not considered. One of the core principles of the new common selection scheme is that everybody is considered to be potentially homeless and is assessed for that possibility before the mainstream assessment. If that is actually happening, it is a major step forward. It may be a while before we see the impact of that on the ground, but it is one of the principles enshrined in the new system. It has been clearly declared as one of the core principles of the new system - everybody is considered as perhaps being homeless. That culture shift is a great improvement if it is occurring.

351.

The Chairperson: You can understand the difficulties with house sales. My personal opinion is that there is no possibility of us restricting house sales. That has been in force for several years. Any attempt to restrict house sales could quickly lead to the courts. Tenants already have that right; it would be difficult to take it away.

352.

I also seek clarification on the issue of homeless­ness and where people want to live. That causes enormous difficulties in that there is high demand for certain areas. Mr O'Connor has indicated some areas - and I am sure that there are others throughout the Province - where people do not want to live. That restricts the stock even further. The problem cannot be addressed through resources alone.

353.

Mr S Wilson: When you were talking about someone priority need in one area but not in another, one of your recommendations was that priority need should be carried over to whatever area a person chose in which to live. Is that suggestion not likely to exacerbatethe problem to which the Chairperson has referred? I am sure that we all know of people who, once they obtain homeless status, will hold out for a property on the best estate. I do not blame them for that; they know that they will never have a better chance to get it. They refuse properties in areas that are regarded as less popular. Does the proposal that an individual can carry that to anywhere in Northern Ireland not ensure that housing stock becomes even more underused, because it discourages people from taking up offers in certain areas?

354.

Mr Cashell: The problem of effective use of the property is difficult; it is a multi-faceted issue. Our basic principle would be that someone who is homeless should not be treated any worse than someone who is seeking rehousing under other circumstances. Most people on the waiting list probably do as you described. They may feel less pressurised because they are being rehoused out of a damp or overcrowded house and may be in a better position to wait, but they are also holding out for the area that they want. It is not only homeless people who are doing so. There is absolutely no reason that people who find themselves to be homeless should be treated worse than anyone else in the system. That is one of the fundamentals.

355.

All applicants in the system can lose their priority or lose their entitlement to further offers by declining reasonable offers. The same penalty exists for the homeless person as for anyone else if during the process a person turns down what are otherwise reasonable offers because he or she is holding out for a certain area.

356.

There is a risk that, because it is very difficult within all the policies to get a transfer out of an unpopular area, people will be afraid that if they are offered and accept only the unpopular area they will be trapped there. What have been labelled "sink estates" have developed in some parts of the United Kingdom. Even in Northern Ireland blocks of flats in some areas have a high turnover and a highly transient population. Only homeless people will accept an offer in them, because that is all that they will be offered. That is very damaging to the reputation of an area; much of that damage could be limited by developing a system that gives homeless people the same priority and entitlement as anybody else.

357.

We should ensure that if a person wants to move into an area - which may be an unpopular area outside the area in which he has declared himself homeless - he has the widest possible choice in order to better use the property. There should be no artificial barriers. The problem occurs when homeless people are told that they will be offered anything in the Greater Belfast area but that they will be disqualified if they refuse two offers. We do not want such a system, because its restrictions apply only to the homeless. We must widen people's choice.

358.

Mr Moffat: We do not argue that the house sales scheme should be modified or stopped. House sales have increased, yet the rate of replacement new buildings is falling. That will have consequences for the future. We should try to find out what the consequences of the sales policy will be on the quality of the stock and what opportunities are left.

359.

The Chairperson: Judging by your figures, one need not be a rocket scientist to work out the consequences.

360.

Mr Cashell: We need a minimum of 3,000 more houses a year than are currently planned.

361.

Ms Gildernew: The house sales scheme has affected the homeless; yet your recommendations do not mention rural homelessness. We know that there is a problem of hidden homelessness in rural areas. There are far fewer facilities for people who find themselves homeless in rural areas. How might that be tackled? There is a lack of facilities for women. Women with children often find their way to Women's Aid - wherethere is a Women's Aid hostel or temporary accommo­dation - but there is rarely accommodation for single women. Young women can find themselves in very difficult situations. Often they are away from home or from their own areas, and they can end up in Belfast or somewhere where they are much more vulnerable.

362.

Mr Cashell: The house sales debate has already gone through the Committee, and I do not want to re-open it. Any attempt to change the sales policy would be difficult. The Rural Housing Association is gearing itself to creating small-scale village and crossroads develop­ments and small local responses. We hope to open a hostel for young homeless people in Omagh, for example, with capacity for 12 to 18 people.

363.

Rural responses must centre on the nearest medium-sized town, and therefore very localised responses would probably be quite difficult. There must be much more small-scale localised provision, particularly in the west of the Province, which should be run by the not for profit sector. The small-scale developments, such as those being created by the Rural Housing Association, should take into account localised demand.

364.

Ms Gildernew: What about women?

365.

Mr Cashell: The hostel that we are talking about will be for men and women. Women's Aid is probably better at providing separate provision. It is the only experienced provider for such accommodation. If it develops it will take people without children as well as people with children, and I understand that it does so already.

366.

Ms Gildernew: If there is room.

367.

Mr Cashell: People without children do not get the same priority. That is one of our problems with the system. I agree that there must be provision for lone adults, particularly young lone adults.

368.

Mr G Kelly: Can you expand on the redefinition of intentionality? You said that it should include only those situations in which homelessness is the intention, not the consequence, of the action? How should primary legislation deal with that?

369.

Mr Moffat: If a tenant refuses to pay rent because the landlord refuses to carry out repairs under the terms of the lease the tenant may be evicted. That would be the consequence of a legitimate act by the tenant in trying to ensure that the landlord adhered to the lease. A tenant who stopped paying rent for no reason would appear to want to be evicted - in other words, homelessness would be the intention.

370.

Mr G Kelly: How would you deal with that legislatively? Would you deal with that as part of guidelines in the Housing Executive strategy?

371.

Mr Cashell: There are two ways of dealing with it. The first is through an anti-fraud measure. "Deliberately worsening your circumstances" was the phrase that was used in the selection scheme in the past. That is how intentionality should be defined. It should be clear that a person had deliberately worsened his circumstances in order to benefit from the scheme. It would be possible to remove intentionality and to cover the matter under the general deliberate worsening of circumstances or fraudulent application provision. I do not believe that the legislation defines intentionality. The system does not define intentionality; therefore a system change could deal with it. We are concerned that many young people make misguided decisions, and they become homeless as a consequence. Inten­tionality is being used in that framework unfairly.

372.

Sir John Gorman: Mr Moss, a previous Environment Minister, took the Housing Executive out of new house building and put the housing associations into it. Chapter five of a White Paper for local authorities in the United Kingdom, which was issued on 20 December 2001, deals with housing finance. It states that housing bodies with a proven record of achievement in housing could be allowed to enter the private market for borrowing. The difference is often no more than 0·5%, and that results in the Housing Executive's no longer being able to build new houses.

373.

At least 1,500 Housing Executive houses are needed between now and 2005. We now build 900 houses a year, and that has dropped over the past three years. I urge you to attend to that and to use whatever muscle you have to raise the figure to 5,000 new houses. Forget about the disappearance of house sales because this year the Housing Executive proposes a capping scheme that will bring up the discounted value of housing. However, people will be eager to get in before that takes place. It is bad now, and it is getting worse. I do not count solely on you to consult us - perhaps the public could get involved.

374.

Mr Cashell: Shelter has no problem with the Housing Executive's re-establishing its development programme. We are concerned that the shift to housing associations is financial and ideological, and it is not based on an assessment of ability to deliver or equality of management. We have no problem with parallel work between the Housing Executive and housing associations. The target is to build 5,000 houses a year.

375.

Mr Moffat: For obvious reasons we have not dealt with the role of the Housing Executive, the housing associations and finance for housing - of who can build and in what circumstances. We have not argued that the house sales scheme should be abolished - it is politically impossible to do that, even if it were desirable. However, more public sector houses must be provided.

376.

The Chairperson: Thank you for your interesting and informative contribution.

MINUTES OF EVIDENCE 
RELATING TO THE REPORT

MINUTES OF EVIDENCE

Tuesday 19 February 2002

Members present:

Mr Cobain (Chairperson)
Mr Hamilton
Mr B Hutchinson
Mr ONeill
Mr M Robinson
Mr Tierney

Witnesses:

Ms M O'Boyle                        )
Mr D Burns                        )                         Homefirst Community Trust
Mrs E Arrell                        )

425.

The Chairperson: The Committee welcomes Ms Mary O'Boyle, Mr David Burns and Mrs Enda Arrell from Homefirst Community Trust, Antrim.

426.

Ms O'Boyle: We are approaching this from the viewpoint of mental health social work and our experience of working out of hours. We use a definition of homeless­ness given by Shelter: "A home is somewhere affordable, of adequate size and design, in good repair, safe, secure, with support when required, within strong and inclusive communities."

427.

The most common cause of homelessness is mental illness. About 30% to 50% of people who are homeless have a mental illness. It can be a cause of homelessness, and it can also be a result of homelessness. Some people who are homeless have a dual diagnosis - a mental illness plus an addiction problem. People who are homeless have no one to alert mental health services. You will have heard of the Christopher Clunis case. The point was strongly made at the inquiry that he was wandering around homeless, and nobody knew that he had a sister who was terribly worried and trying to get services for him.

428.

After mental illness, substance misuse rates highly. Others reasons for homelessness are relationship breakdown, intimidation, paramilitary threats, domestic violence, eviction, lack of family support and poor housing in the private sector. I have already forwarded some information to the Committee, but I want now to relate that to our local situation. The following infor­mation has not been validated in any way. It was put together by a member of the addiction team - a senior social worker - when we were looking at need in relation to the necessary provision of accommodation.

429.

In the Northern Board area, the total number of people identified with substance misuse and accom­modation problems in the financial year 2000-01 was 111. I will break that figure down. Fifty of those people were in the Ballymena area - you will know from the press that there is a high incidence of drug abuse in that area. Thirty-six were from the Magherafelt and Cookstown area; 14 were from Antrim; five from Larne, Carrick and Newtownabbey; and six from Coleraine.

430.

As for my own experience, in July last year the out of hours social work service had 10 referrals in two weeks, and in two months last year - May to July - probation had eight referrals in our local area. That gives you an idea of the large number of homeless people, under our definition.

431.

We use Housing Executive accommodation, and we work closely with the Housing Executive. We also use private accommodation such as bed and breakfasts, hotels and voluntary hostels such as the Simon Community, the Mid-Ulster and South Tyrone (MUST) hostel in Cookstown, Women's Aid, et cetera. That is not without problems, because the voluntary hostels all have restrictions, and several of them do not take people who have alcohol or drug problems. The majority do not take people who are suspected or convicted sex offenders, and when we have people referred with that kind of background, we have great difficulty finding accommodation. I have spent hours on the telephone with the Housing Executive between 9.00 am and 5.00 pm trying to get accommodation, and then out of hours, sometimes in co-operation with the police, who help us out.

432.

Issues relating to the provision of care for the homeless centre on staffing - there is a need for staff to be trained, to have training in mental health and substance misuse and to have a tolerance for people with those problems.

433.

Accessing health services is a big issue. We find that GPs are unwilling to add homeless people to their caseloads, and dentists are unwilling to treat them. Therefore, their general health and mental health deteriorate. We approach the Central Services Agency in such cases - a GP can be compelled to take a person on for a month, but they usually sign them off at the end of that time, and the cycle continues.

434.

There are also issues about the social and rehabilitation needs of homeless people. The Homefirst Community Trust aspires to having people assessed and rehabilitated, so that they can become independent like everyone else and access normal housing. However,they can only do that with support, but there is no support for them. Homefirst does what it can, but its time and resources are limited.

435.

Homeless people find it difficult to access benefits because they must keep moving. They might stay for one or two nights in one place and then move on. Therefore, they are always claiming benefits in retrospect, which is difficult. There is also a big problem with community tolerance. Nobody wants the problem in their back yard. That affects people who have alcohol and drug problems, or who are sex offenders, in particular.

436.

The Committee asked what arrangements we have in place to deal with homelessness. As I said, the 9.00 am to 5.00 pm service is provided by the Housing Executive and an out of hours service is provided by social services. We only deal with vulnerable people, those with mental health problems or physical disabilities, or those who have been discharged from prison.

437.

The Committee asked how well our arrangements address the issues. As I said, the services are OK for some people. The big problems involve alcohol, drugs, sex offenders and families. It is difficult to accommodate families together. Our existing arrangements are inadequate. If we get accommodation for someone, they only get a bed for the night. If, for example, we accommodate a family, there are generally no cooking facilities or meansof preparing babies' bottles. Those people rely on the goodwill of the proprietor, which is variable.

438.

The mix of residents can also cause difficulties, particularly in guesthouses. For example, we would not want to arrange accommodation for someone with a history of sex offences in the same place as a family. Unfortunately, we do not have the selection of accommodation to allow us to pick and choose. Often, our priority is simply to get a roof over a person's head. The majority of proprietors are unwilling to take Housing Executive or social services clients.

439.

I would like to say more about the changes that Homefirst would like. In Homefirst's area there is a need for what we call a "wet hostel" - some sort of accommodation that will tolerate people with alcohol or drug problems. There is also a need for a "move on" place. I do not know whether the Committee members know of Carlisle House in Belfast. The Presbyterian Church's Board of Social Witness runs it. It provides "move on" accommodation for people who are receiving treatment for addiction problems. They are supported there for a while, and, hopefully, they then move on to greater independence.

440.

Homefirst would like more accommodation to be provided for teenagers, not only those who have been in care, but those who have family difficulties or behaviour problems and are no longer able to live with their families. There is also a need for accommodation that is exclusively for women. We would also like more formal co-ordination and stronger links between Homefirst and the Housing Executive. We work well with the Housing Executive on a local level, but there is no overall formal co-ordination to tackle homelessness.

441.

You may be aware of a pilot project that took place a few years ago in Belfast along those lines, involving the Housing Executive and social services. Any contact I had with them resulted in good outcomes, and it was very successful. They had a much more co-ordinated approach, and, being in Belfast, they were able to access a better range of accommodation. I know that some folk that we referred to them were rehabilitated and moved to independent support.

442.

Our knowledge and experience of other organ­isations in Northern Ireland is good, but outside Northern Ireland it is limited. We use the Housing Executive's Alveston House in Ballymena, which is comprised of flats. We use voluntary hostels. We use the MUST hostel in Cookstown. It has a high tolerance level for people who have been released from prison, but does not accept those who have convictions for sex offences or are potential sex offenders. We use Women's Aid, the Lighthouse in Ballymena, and the Simon Community. The arrangements provided by other organisations have their good points and their bad points.

443.

The difficulty is that admission into much of the available accommodation needs to be planned in advance. That is a problem in an emergency situation. You cannot have a planned admission at 1 am or 2 am. We would like to have more emergency accommodation. As I said earlier, accommodation is not open to all groups. Finance often causes problems, because people get a bed but have no money for food. If they are vulnerable, we can meet that need through social services. However, if they are able-bodied and have come out of prison, we are unable to help.

444.

At present, we work closely with the Housing Executive. We carry out their role out-of-hours. Funding enables us to provide a bed and a taxi to wherever the client is going. What do I feel about funding for the homeless? I believe that we need more than beds. Support and rehabilitation is important. Some money needs to be spent on creating an inter-agency approach. Organisations are all too willing to avoid a particular problem. There is not, at present, a good climate of inter-agency co-operation.

445.

We need a range of accommodation to cater for difficult-to-place groups. We need rehabilitation and support services. We need move-on facilities, and we need good access to the health services.

446.

The Chairperson: I must apologise as I have to go to another meeting. We agreed earlier that Mr ONeill would chair the rest of the meeting.

447.

Ms O'Boyle: I have brought a copy of an article about homelessness and mental health risk assessment, which you may find useful. I will leave it with you.

448.

The Acting Chairperson: Thank you very much.

449.

Mrs Arrell: You may be aware that in the past year we have opened a new facility dealing with addiction and substance misuse. As part of our pro­gramme, we advise clients to avoid the people and the places where substances are used. That is difficult when there is nowhere else for them to go. Very often, at the point when they come to us in the addiction unit, family relationships have broken down. They are sleeping homeless in the streets, or are in houses often frequented by four or five other people. They may go on to Carlisle House, but they will stay with us for two to three weeks. At the point of discharge, they may be homeless.

450.

As Ms O'Boyle said, we do not have an overall agreement, but we have been able to have people assessed as homeless prior to leaving the ward. That means that there will be some arrangements in place before they walk out onto the street. This is something new that I have developed over the past few months. It is a problem when people go out onto the streets and meet those with whom they used substances before.

451.

You may also be aware that maintenance prescribing is not yet available in Northern Ireland for people who have been abusing substances. Dr Karen McElrath at Queen's University is currently investigating that problem. It is hoped that when that committee meets in June, some form of substitute prescribing will be available, which is tied into a GP and a pharmacist being able to prescribe. For example, situations have arisen where people who leave the unit have a GP in one town and the Housing Executive is offering them accommodation in Belfast. We have in place an arrangement where a GP and a pharmacist may offer a longer detox programme in the community. That is not feasible, however, if they are going to be offered accommodation in Belfast, Portrush or wherever. We need accommodation appropriately located.

452.

The Acting Chairperson: I am sure that Members will have questions to put to you. Your invaluable experiences will help the Committee understand the problem throughout the whole of Northern Ireland. You discussed a "wet hostel". Have you in mind something like the Brunswick Street hostel?

453.

Ms O'Boyle: We are thinking along the lines of the hostel in Derry, which has a high tolerance level for people who are still drinking, and it is successful. I am not familiar with the one in Brunswick Street.

454.

Mr Tierney: I am from Derry, and I know that one of the problems is becoming listed as a homeless person. In Derry, it can take over a year to be re-housed. Even if a social worker reports that a person has a priority need, there are those homeless also. Being given priority need does not automatically mean a person will be re-housed. Once a person is in the hostel, classified as homeless and assessed for points for housing, it can take a while to be re-housed, because of the lack of housing. The easy solution is to build more homes; that would take away the problem. However, we are not going to get the needed new housing in the near future.

455.

Is it your opinion that homeless persons should stay in the hostels until they are re-housed? You mentioned earlier someone who was on the ward for a month.

456.

Mrs Arrell: The normal length of stay is three to four weeks. Ms O'Boyle has explained that some people go on to Carlisle House alcohol and drug treatment unit or to Northlands - those are eight-week programmes. However, some people decide to leave after the three or four weeks, and supported accommodation is then needed where staff have some understanding of addiction and relapse prevention and are available to help. The problem with some of the hostels, such as Women's Aid, which I have used for women leaving hospital, is that no-one is available after 5.00 pm or at weekends when the staff are only available on call. We need more supported accommodation with a phased re-entry into the community.

457.

Mr Tierney: I would support that proposal. Are you talking about purpose-built accommodation, with the proper staffing, for the second phase after the three to four weeks?

458.

Mrs Arrell: Carlisle House and Gray's Court do have that sort of supported accommodation. It helps the person to move on from the intensive treatment and breaks them gently back into the community, with support from the Gray's Court staff.

459.

Mr Tierney: I have a final question. You said that different agencies are involved and that that there are so many homeless people that each says, "It is not my problem". Someone has to take the decision on the homeless person's needs and the treatment that they require. Who would you see as making that decision? Would it be the Housing Executive or social services?

460.

Ms O'Boyle: It is both. The Housing Executive would make the decision between 9.00 am and 5.00 pm. While the Housing Executive staff are experienced, they would not be trained to assess health and social care needs. After hours, we do it. Ours is an emergency service. I was co-ordinator on duty for the Northern Board a week ago last Sunday, and I had three referrals for homelessness. I dealt with them all over the telephone by ringing different agencies, et cetera. I talked to the individuals on the telephone, but you cannot assess someone that way. It is very much an emergencyservice and dealing with the people who present; it does not involve doing a full assessment.

461.

The Acting Chairperson: You seem to have a considerable degree of experience in dealing with people who suffer from substance abuse, as opposed to alcoholism. Is there a difference in how people are treated, or is addiction in the homeless generally treated much the same? I am talking about solving the problem and how to rehabilitate people.

462.

Mrs Arrell: In Northern Ireland, drug misuse is relatively new. Substance misuse, specifically alcohol misuse, has been going on for a long time. In my experience, there is certainly more tolerance of alcohol. If people have been known to be drug users, or perhaps drug dealers, they will not get private accommodation anywhere. Their reputation goes before them in attempting to deal with estate agents or GPs. They find it extremely difficult to get GPs. We are constantly going through the Central Services Agency.

463.

The public are generally intolerant of drug users. If they see someone lying in the street intoxicated from alcohol, they are more likely to pity them or say "Poor so-and-so", but if the person's state is due to drug misuse, they are very much seen as having brought it on themselves. There is not the same understanding.

464.

Ms O'Boyle: Behavioural problems and challen­ging behaviour often accompany both alcohol and drug misuse. It is difficult for proprietors to tolerate that. You need staff who are able to manage that type of behaviour. That comes with training and experience.

465.

Mrs Arrell: The other thing about relapse pre­vention is that if someone leaves hospital in a clean state and goes into a hostel where there are two other users, they have absolutely no hope of surviving. They will be using in a short time. That is the other important thing.

466.

The Acting Chairperson: Are there no other questions?

467.

Mr Hamilton: I apologise for being late; I was at another meeting. Drug abuse was mentioned, and how landlords will not touch people known to be drug users. Those people obviously must experience a greater degree of difficulty in finding accommodation. What happens when they cannot, when no landlord will touch them? Is there any back-up there?

468.

Mrs Arrell: At the point where someone comes into the unit, families have often disengaged; they have said that they cannot tolerate the behaviour anymore. However, once someone comes to get help again, families often come back on board. Families often say that the person deserves another chance and will give them accommodation. I also do much work with families in providing support and helping to rebuild relationshipswhen the person is with us for treatment. That is followed up by a community addiction team.

469.

Ms O'Boyle: I recall a few occasions when people who had no conviction for sex offending moved into a neighbourhood and the neighbours assumed that, because they had just moved into the area, they had such a conviction. That has resulted in some not getting accommodation and in people standing outside the police station all night. It is an extreme example, but such things happen.

470.

The Acting Chairperson: Thank you for your evidence. We are collecting evidence on a range of homelessness issues, which will be distilled and used when we make any housing recommendations. All the evidence that we receive is valuable.

MINUTES OF EVIDENCE

Tuesday 19 February 2002

Members present:

Mr ONeill (Temporary Chairperson)

Mr Hamilton

Mr B Hutchinson

Mr M Robinson

Mr Tierney

Witnesses:

Mr P White      )                       Project Team Leader

Mr T McGrath  )                       Support and Lodging Scheme                                                Co-ordinator

377.

The Acting Chairperson: Welcome, Mr White and Mr McGrath. This is an opportunity to make additional comments to your written submission.

378.

Mr White: I have some additional material that the Committee might find useful.

379.

My name is Peadar White and I am a social work team leader in Craigavon and Banbridge Health and Social Services Trust. I manage a project called the young persons' project. With me is my colleague, Tom McGrath, who is also a social worker and who is also on the project. I thank the Committee for inviting us and giving us an opportunity to talk about the supported lodgings scheme.

380.

I will explain briefly the framework behind the young persons' project, which includes the supported lodgings scheme. Information is given on the back of the document 'STAY Project: Supported Temporary Accomo­dation for Youth', which has just been given to the Committee. This is a social work project but, unlike any other social work project in Ireland or further afield, it operates on a voluntary basis with young people perceived to be at risk of going into care or custody, or who are involved in behaviours or activities that put them at risk.

381.

We work in a voluntary capacity with young people and their parents. The project is very much community led and we are aware that in order for it to survive we must not use the statutory authority at our disposal. We have to listen to what young people, in particular, and the community, in general, are telling us.

382.

In 1998 it was clear that many 16- or 17-year-olds were being placed in the community mainly by their families because parents wanted them "off site". Those parents were prepared to act as guarantor for houses, and so young people ended up in flats alone and vulnerable. At that time the Housing Executive were referring cases to us, and people such as Mr McGrath and myself went out knocking on doors. I am sure that when Committee members are canvassing they will sometimes recognise the hollow sound of a knock on the door, which tells you that there is no furniture within. The young people were lying on mattresses: perhaps they had a small cooker, but they did not have much else. They were very vulnerable, and local people fed on that vulnerability.

383.

We told those young people about the support we could offer them. We tried to get them employment; we tried to ensure that they got the benefits they were entitled to, and we extracted money from local charities to try to set them up. It worked for some of them, but not for the majority.

384.

Accommodation is not the issue for us. We are from Craigavon and Portadown and there are estates full of houses that we could give to young people. Youth homelessness is not about bricks and mortar; they only support roofs. We must support the young people in the buildings.

385.

We talked to the young people. We told them that as a social services trust, we have options - we could offer them residential or social work places. However, they did not want that. It was practically impossible to find foster placements for them, so we decided that we had to come up with our own scheme - a supported lodgings scheme. We advertised in local papers; we recruited several people, checked their credentials and trained them to provide accommodation for young people in their own homes and communities. This is not rocket science; it is a simple idea about keeping young people in their communities and placing them with families where there is care and support. It is not the same as fostering. Young people can learn the skills that will enable them to live independently.

386.

Mr McGrath: The document sets out the wider supporting people schemes. There are certain key words: social inclusion, vulnerability and flexibility. Our model is flexible, and we are finding that other trusts are increasingly expressing interest.

387.

When we first set up the scheme, we looked at models in England. The article from 'The Guardian' in our submission is on a project called the Merseyside accommodation project, which is similar to ours. That project started with five providers eight or nine years ago, and it now has 150 providers as well as various teams.

388.

Our scheme is still on a small scale; we have six providers who live in their own homes. There are two in the Portadown area, two in Lurgan, one in Tandragee and another near Moira. The scheme has an urban/rural dimension. Costs are low because the scheme uses people's own homes. Young people usually present from social services or Housing Executive out-of-hours service, or have been kicked out of their homes. Increasingly I receive enquiries from young care leavers, and 'The Guardian' article talks about their vulnerability and the fact that they must be prepared for life skills.

389.

The project is like a bridging scheme; we have an 18-month period in which young people have an opportunity to develop life skills and become independent. They will have bricks and mortar around them and a roof over their heads - but the support side is as real as the bricks and mortar. Many supporting people initiatives are becoming available and we have made submissions to them about our young people's vulnerabilities.

390.

The issue is tied in with statutory legislation, and in the document, under the heading 'Legislation' you will see the relevant articles in Children (Northern Ireland) Order 1995. In the mid-to-late 1990s the Simon Community researched the matter and that led to the establishment of a working group.

391.

Under the heading 'Background' you will see a diagram showing two red circles with a grey section between. We have identified a small but significant number of young people who are in need, who are vulnerable and who are homeless. Ten young people have come through the scheme since it started in September 1999.

392.

A young person currently with us came from a young offenders' centre. He was heavily involved with the Probation Service and was known to the police. He has been in our supported lodging scheme since June 2001. When he came out of the young offenders'centre all the agencies involved were pessimistic about the viability of his remaining in the community. They all recognised that, had he been placed in a flat in the Craigavon/Portadown area, there would have been a strong likelihood that he would have returned to offending behaviour or attracting a certain type of person.

393.

The young man is now living with a Lough Neagh fishing family in a rural area just outside Lurgan. He is learning nursery gardening on a scheme called 'Give and Take'. His ambitions are to apply for his own accommodation by the end of 2002. That gives yousome insight into the type of young person currently availing of our service.

394.

Tomorrow night I shall place a young girl from foster care who wishes to get a job in the Portadown area. I have a placement for her in Tandragee. Another young lad is currently on a training course in Lisnevin. Last weekend we conducted an introductory phase-in programme for him. He went to stay overnight with providers just off the Garvaghy Road in Portadown. It is obviously a cross-community initiative. Its beauty lies in its flexibility regarding urban and rural elements.

395.

A great deal of groundwork went into starting up the scheme. Steve Maloney, who runs the Liverpool scheme, told me that his team had encountered similar bureaucratic difficulties at the outset of their project. They now have 150 providers. Our scheme has potential, and following recommendations we are negotiating with the Housing Executive to talk to a voluntary provider.

396.

The Linen Court hostel is in Armagh and we are currently setting up protocols with them. The beauty of that partnership is that it will give us an emergency response or out-of-hours service for the social services and Housing Executive. For example, if a young person presents himself as homeless, Linen Court will give us the option of placing him in a room there while we initiate a matching process.

397.

I usually discuss the scheme with the young person involved and we would have an introductory visit to the providers. There is no obligation on either party, and we have a cup of tea and a chat. If people are interested, and the green light is given, we seal a contract with the young person, with agreements drawn up to cover such day-to-day matters as visitors and staying-out arrangements. Young people sign up to that, and it is very much a matter of empowering them and giving them responsibility.

398.

In most cases, application for funding is made through the transitional housing benefit system. Where a young person has previously been known to a trust, it will help initially to meet some of the costs. The bottom line is that we encourage all young people to be involved in employment training schemes.

399.

The sums of money involved are minimal. For example, one young person who is with us at the moment is on £38 per week, which is not a great deal. I am not trying to be flippant, but I have brought some items along to give the Committee an idea of the harsh realities some people are facing. This is a tin of Tesco's own brand beans, which costs nine pence. Young people ask me how they can live on £32 per week. I literally get down to the basics of telling them to go to shops and look for the "buy one, get one free" labels, or to go to shops where everything costs one pound. Such is the reality for young people. I brought these items along to press home to the Committee the budgeting situation of these young people.

400.

Support can take a very pragmatic form. Young people will ask basic questions such as where the local office of the Housing Executive is. The Committee will appreciate that we are dealing with young people all the time. We call them "vulnerable", a word one might describe as a throwaway word, but the vulnerability of the ten young people about whom I am talking ranges from living in the community under paramilitary threat to the breakdown of a dysfunctional family, abuse and isolation.

401.

The beauty of the scheme is that providers are vetted, trained, and receive on-going support. I carry out an initial placement meeting, and every quarter I have a review in which the young person, the provider, and myself sit down together. Each young person has a support worker, which is also an important dimension to the scheme. If one is not available through the Probation Service or social services for the scheme run by Mr White, he can allocate a colleague of mine to act as support, and that person is there for the young person throughout the process.

402.

As regards making links with the community; as the young person is there to get training and employment they are given some time to settle in. We talk to them about the actual supports they identify for themselves and the people around them. It is very much a bridging process, and the length of time young people stay with providers has varied. The longest involves a young girl who stayed for 15 months. She took up hairdressing, and as the provider was a hairdresser, there were a lot of fringe benefits. She now has a flat in Lurgan, and has a befriending situation with the provider, which is another off-spin of the scheme that we had not thought of originally.

403.

Mr White: There are many hidden benefits. Single parents apply to be providers, and there is nowhere better to place a young 16- or 17-year old girl than with a mother who is also a single parent. She is living with a girl who has a baby, and she can appreciate that it is all about how this woman survives while caring for a baby. It is about learning the things that Mr McGrath talked about. For example, you cannot turn your music up full blast because the neighbours will complain, or ignore the brown envelopes coming through your door every morning - you may hate them but you have to do something about them. You will never starve if you have tins of beans costing nine pence.

404.

These are the real lessons. We are not taking young people and putting them into large hostels, where perhaps they may feed off each other's vulnerabilities. We are keeping them in the community, and providing people in the community who are providers with financial assistance, which will improve everybody's lot. Young people do not have to be excluded from their community - a person in Lisnaskea can get accommodation just as quickly as a person in inner city Belfast. Those are some of the benefits.

405.

The Acting Chairperson: The scheme is very interesting. It addresses the problem we have been advised of through other presentations and available evidence about young people being left without any support. During the support stage of placing the young person with a provider the decision as to when they would be ready to move on must be an important one. How much help and advice do they get with that decision? When they move on and are on their own, what kind of follow up support is there? You hinted at it in your evidence, but I want you to draw that out a bit more if you can.

406.

Have you had difficulty in getting providers? In your written and oral evidence you said that you have people who will follow up and visit, and that seems to be almost on an on-demand or when needed basis - those where the type of phrases you used. Is it sufficientto do it that way, or is there another way? For example, if someone is placed with a provider and it is not working, how do you deal with that?

407.

Mr McGrath: We have had situations where young people have had to move on from one provider to another, or have opted to move back into a hostel. People will understand our problems given our location - the Portadown/Lurgan area. I was approached yesterday about a young man currently living in Portadown with his sister who has a baby. He can only stay there temporarily. He has been advised he should not stay in the Portadown area at the moment. He will talk to me by the end of the week about the possibility of moving into supported lodgings. This week I will talk to a provider in Lurgan to see if there is a possibility of moving him there. The matter involves sectarian problems - the man should not be seen in Portadown at the moment.

408.

I am overall co-ordinator of the scheme. Initially, I give my support to the provider and to maintaining the placement. We are keen that each young person referred to us has a social worker or statutory agent. In the past, we have appointed one of our colleagues from the young persons' project to act as a support worker. For example, one of my colleagues acted as the support worker for the young girl I mentioned earlier who was a hairdresser - she was moved to a flat in Lurgan. My colleague did the follow-up work which involved checking how the girl settled into the new accommodation. As far as I can remember, my colleague stayed with the girl for a further four months until the girl herself said that she did not need the same level of support.

409.

In my submission to the people who provide support services I proposed that a support worker post be created. Support workers could co-ordinate the work that I do with Linen Court. That work involves assessing young people referred to us at crisis stage. Support workers could continue to support that person during their placement and for a period following it. We do not forget about young people who have gone off the edge - we provide on-going support.

410.

Mr White: We do not withdraw services. Young people receive the support of the scheme for as long as they feel that they need it. Mr McGrath has a dual role in that he co-ordinates the scheme and gives support to providers. If no social worker or field worker is available to support the young person, the scheme will provide a worker for their needs. I might accept certain things in my house that you might not accept in yours, which is why we draw up a contract with the young person - there are no surprises. Both parties have expectations. If there are any problems, we get together as quickly as possible and talk them through. It may be that the issues can be resolved. However, even if they cannot be resolved we do not walk away from them - there are regular reviews. The young person will continue to receive support throughout the process.

411.

To be fair, this is only a pilot scheme. It has worked for young people and for us. We cannot say with any authority how it would work if we had 100 providers. To date, it has worked well for everyone concerned. It is not a panacea for homelessness - it is simply another option for young people in our communities.

412.

The Acting Chairperson: Are legislative or financial changes required to reduce the overall level of homelessness? You have obviously encountered such matters in preparing your project. Do you have any recommendations about how to improve homelessness in general?

413.

Mr White: First, closer liaison between depart­ments is required. Better communication is needed between social services and local district housing offices. A pass-the-parcel syndrome exists there. One organisation will quote the other's legislation and claim that the problem is the other department's responsibility. Young people end up as a ball being thrown from one department to the other. It is also important to recognise that the solution to the problem that these young people face is not just in bricks and mortar - they are vulnerable people. When young people present as homeless their vulnerability should be assessed. Furthermore, people in our society should not have to try to live on £32 a week in flats without furniture and so on. We must address these issues.

414.

Mr McGrath: When young people leave care and go to various agencies - the new jargon for which is "pathway planning" - they get lost in the system and are overwhelmed by the Social Security Agency and the Housing Executive. People have asked me where the local offices of the Housing Executive and the Social Security Agency are - the questions are that basic.

415.

We need co-ordination on the ground and specifically identified people who can help. In the past, we have had identified specific workers - for example, there is a very helpful homelessness officer in our local housing authority area. There are now people working in the voluntary sector, such as those in Linen Court hostel, and we can now give young people the name of a key worker there. The idea is that agencies will begin to think along the lines of the supported lodgings model, where there is an identified worker to whom a young person can talk. A pilot exercise was put in place in the Social Security Office in Dungannon so that young people were not being swamped by bureaucracy.

416.

The people in Liverpool that I have talked to say much the same thing - they highlighted the need for young people to have an identified key support worker. There may not be the luxury of one worker for each young person - one worker may be assigned to seven ormore young people, but that is better than not having a worker at all.

417.

Since I became involved in this scheme, one of the most satisfying things is the potential for good partnership working. Without being involved in the scheme, I would never have known the workings of the Housing Executive or what it was about. Our document contains a diagram of two donkeys; one representing the Housing Executive, the other representing social services. It illustrates the misconceptions that existed and how we did not fully understand each other's roles. The scheme has been a learning curve for me. There is nothing more satisfying than being able to tell a young person that they can get help if they ring Paula in the Housing Executive in Lurgan or Donna in Portadown - it introduces a human aspect. All human beings need human contact; that is how we work. However, the young people that we deal with can find it intimidating to be handed a slip of paper and told to go to the Housing Executive. I am not being judgemental; that is the finding of research and clinical testing. We must call a spade a spade and be realistic. It is a disservice to young people to patronise them by giving them a card and telling them to simply go to the Housing Executive. We must identify whom they should go to see.

418.

All agencies could improve their services. It may be a matter of something as simple as the Housing Executive or the young persons' project handing out flyers in the local youth club that let young people know what they do. Departments and agencies have much to do on the PR front and in thinking of creative ways to access vulnerable groups. This model does not just apply to young people - it could be replicated for use when dealing with the elderly, those with learning needs and those in the mental health field.

419.

The Acting Chairperson: Is the definition of homelessness generally used by the Housing Executive adequate, and, if not, what definition might be more appropriate?

420.

Mr White: It is not really about homelessness - it is about vulnerability. We must examine the needs of the vulnerable in our society. We come from Craigavon, where there are many estates full of empty houses. For us, the issue is not about putting a roof over somebody's head - we could get those young people housed tomorrow morning. The issue is about what happens when those young people - 16- and 17-year-olds and so on - are placed in a house on their own.

421.

I would not have survived living in the community on my own at that age, and I am sure that most people sitting around this table would not have either. We must move away from the idea that this issue is about bricks and mortar; it is the support that is important. We must have a way of supporting those young people so that when they get accommodation we do not simply give them a front door key but also give them a package to keep them there.

422.

Mr McGrath: The Housing Executive and First Key are holding a seminar on the 7 March on young care leavers. It could be argued that, when young people leave care, social services have a responsibility to provide residential or foster care. However, young peopleare telling us that after having been in the care system for three or four years, they now want to leave it. Therefore, they have options and places to go, but our point is that, given their vulnerabilities, those young people will not survive once they come into the community. This model is a way of bridging that gap.

423.

Mr White: If money is available, it should not be spent on building more hostels, rather it should be put back into the communities. The young people described in this model do not have to leave their communities - for example, Mrs Murphy up the road can take care of a young person. Therefore, we do not need more hostels.

424.

The Acting Chairperson: Thank you very much. Your contribution has been very valuable.

MINUTES OF EVIDENCE

Thursday 21 February 2002

Members present:

Mr ONeill (Acting Chairperson)

Sir John Gorman

Mr Hamilton

Mr B Hutchinson

Mr G Kelly

Mr M Robinson

Mr Tierney

Witnesses:

Mr P McIntyre                        )

Mr C McCaughley                        )                        The Housing Executive

Mr S Graham                        )

471.

The Acting Chairperson: I should like to welcome you. May the Committee hear your presentation?

472.

Mr McIntyre: Thank you. I should like to introduce my colleagues: Colm McCaughley, the director of client services in the Housing Executive, and Stephen Graham, who is assistant director of client services. He is responsible for the Executive's homelessness policies.

473.

I should like to thank the Committee for inviting the Housing Executive to give evidence on this topical subject. The Housing Executive is working on the matter, as it issued a consultation document in September 2001 that considered developing a new approach to delivering homelessness services.

474.

Page 2 of our 'Presentation to Social Development Committee: Inquiry into Homelessness' sets our agenda. It gives a few facts about homelessness; why and how we carried out the review; what our main findings and recommendations are; and what we learnt from consultation. That will interest the Committee, as the consultation period closed at the end of December.

475.

The document also discusses developments in homelessness in Scotland, Wales, England and the Republic of Ireland. I believe that representatives of the Chartered Institute of Housing have spoken to the Committee on these matters. I shall also speak about the cost of implementing the strategy. We also want to set out the links to the Supporting People reform, which the Committee has been studying. Primarily, this concerns considering the homelessness provisions in the Housing Bill. We want to share our views on that.

476.

Page 3 of our presentation covers the facts. Until 1988 there was no statutory duty to tackle homelessness in Northern Ireland. The Housing Executive provided permanent accommodation, and health and social services provided temporary accommodation. It is worth noting that there were then only two statutory hostels, and limited voluntary sector provision. A great deal has been done since that duty was passed to the Housing Executive.

477.

There is a legislative test that an applicant must satisfy before being declared homeless. Under the legislation one must be homeless, be in one of the priority groups and be unintentionally homeless. The priority groups tend to be those with dependent children or who are vulnerable due to age, disability or mental illness. Under the legislation the Housing Executive has several duties - to inquire into cases, to provide temporary and permanent accommodation, to give written notification of decisions, to protect property and to provide advice and assistance.

478.

Page 4 lists the number of people presenting as homeless each year from 1991-1992 until 2000-2001 and the number of people who are described in the document as full duty applicants (FDA) - that is, people who have been accepted as homeless under the legislation. For some time that figure was between 10,000 and 11,000. There has been a big increase in the year ending March 2001, and that increase has continued during the past nine months. That is partly due to two reasons, one of which is the introduction of the common selection scheme. Under that scheme we test everybody for homelessness as part of the assessment process. We estimate that before the introduction of the common selection scheme, about 1,000 single people would not have presented as homeless. We are now catching them under the assessment procedures and the selection scheme. Last year was also peculiar because of the many who were made homeless after the Loyalist feud.

479.

The second of those charts looks at the types of households that presented over 1991-92, 1995-96 and 2000-01. It is predominantly singles and families. Singles are increasing due to household fragmentation, divorce and separation. However, it does not follow that because more singles are presenting as homeless they are necessarily being accepted as such.

480.

Several reasons for people presenting should be mentioned. More people are leaving tenancies in the private rented sector because that sector is growing significantly. More people are presenting because of a breakdown in sharing arrangements or in relationships and because of domestic violence. Intimidation is also a factor.

481.

The figures show that of households that presented as homeless during those three years, 50% of them were accepted as homeless under the legislation. That is because of the priority need criteria - that there are dependent children and so forth. Only 30% of single people who present as homeless meet the statutory requirement and pass the test.

482.

Page 8 describes the arrangements for dealing with the homeless.

483.

As I said, that function was transferred to the Housing Executive in 1988. At that time it had two statutory hostels and no funding. Now there are about 22 statutory hostels and significant voluntary provision, which is partly funded by the Housing Executive.

484.

The Housing Executive picks up on planning for homelessness through the annual review of the housing market. The district housing plan sets out the levels of home­lessness for each district council area, and we carry out an annual review of temporary accommodation.The Housing Executive has a preventative role, but one of the major points in the strategy is that it does not do enough. It must do more work with agencies to prevent homeless­ness.It provides advice, as do several agencies, such as the Housing Rights Service and the Law Centre (NI). One of the conclusions of the strategy that has been issued for consultation is that the Housing Executive must do more work in that field.

485.

Secondly, The Housing Executive's reception service is a two-stop shop. If a person becomes homeless outside its office hours, he or she can approach health and social services. Those who become homeless during the Housing Executive's office hours must come to it.

486.

The Housing Executive is legally required to make assessments and to carry out inquiries. Other agencies also have a key role in helping it to make those inquiries to assess a person's status as homeless. The Housing Executive provides temporary accommo­dation. It is worth noting that only 20% of the families that come to us as homeless require temporary accommo­dation. The average stay in a hostel varies significantly across the Province, but it is approx­imately 113 days before the Housing Executive can make an offer of permanent accommodation. That figure can be higher in some areas and much lower in others.

487.

The Housing Executive has 22 statutory hostels; the voluntary sector agencies have about 1,500 bed spaces. The Housing Executive also uses private sector accommodation, such as bed-and-breakfast accommo­dation and private rentals. Its private sector bed bureau lists about 700 bed spaces.

488.

The Housing Executive is required to provide permanent housing, and the speed with which it addresses that varies from one part of the Province to the next. It provides assistance with transport and furniture removal. There is an internal appeals system. The Housing Ex­ecutive carried out a survey as part of the preparation for the homelessness strategy, and it discovered that many of the homeless people who come to it are unaware of the right of appeal. That is an issue that we must address.

489.

Our reasons for carrying out the review are in the diagram on page 9. Providing someone with a permanent house is not the whole answer. We have learnt that lesson in Northern Ireland, but it is also evident in the strategies that are emerging elsewhere. The way in which we tackle homelessness must focus primarily on preventing it; the role of education, advice and advocacy must be assessed.

490.

Those going into temporary accommodation require support. They often require preparation before they can take up a permanent tenancy, and many people are so vulnerable that they require support while in a tenancy. That was brought home to me when I visited a temporary hostel in Derry. The man who ran it told me that about 50% of the single young men who passed through it and who got a permanent tenancy from the Housing Executive or a housing association arrived back at the hostel because they were unable to support a tenancy. That is the sort of message that we are trying to get across in the review.

491.

Page 10 details how we conducted the review. It is worth pointing out that the review was conducted with representatives from the health and social services and from the voluntary sector agencies that work with the homeless. Undoubtedly there will be some reshaping of that strategy based on the consultation and on the Committee's report. However, the steering group consisted of representatives of those organisations and there was widespread consultation and focus group activity, which involved those people who are dealing with homeless­ness in Northern Ireland.

492.

A Housing Executive survey found that users were very satisfied with its homelessness service. The weaknesses were in the system of appeals, in hostels being located far from people's home districts and in the services provided by bed-and-breakfast establishments.

493.

The contact that people have while they are in hostels, waiting to be rehoused by the Housing Executive, is not as frequent or as good as it should be. The consultation period ended on 31 December 2001, and I shall inform the Committee of our report's main findings and recommendations.

494.

Great Britain's attitude towards homelessness is changing. New legislation on duties and rights is being introduced, and that means a return to the kind of legislation that exists in Northern Ireland. For example, in Northern Ireland we have always had a duty to provide permanent accommodation, but that had been changed in England and Wales. The new legislation returns that duty to local authorities. There is also considerable new investment to reduce sleeping rough and the use of bed-and-breakfast accommodation.

495.

An important discovery was that homelessness in Northern Ireland is higher than in England. In Northern Ireland 1·1% of households are accepted as homeless, compared to 0·5% in England. One reason for that is Northern Ireland's broader legislation, which accepts more people as homeless, and because of the common selection scheme we are catching more people.

496.

There are areas of high housing stress, where we find it difficult to provide permanent housing quickly. Finding temporary accommodation is a problem, par­ticularly in Belfast, because many people who have been in temporary accommodation for a long time are unlikely to move into permanent accommodation. They have become institutionalised and vulnerable to some extent, and we must address that issue.

497.

We also rely too much on bed-and-breakfast accommodation, which is more expensive and less satisfactory; there will, however, always be a need for it. For example, not every town in the Province has the demand for a new hostel; therefore bed and breakfast might be the solution for a homeless family that wants to stay in its home town. However, our intention is to reduce reliance on bed and breakfast.

498.

We carried out a survey and discovered that approximately 25% of single people in hostels require support, for addiction or vulnerability for example.

499.

We do not know much about repeat homeless­ness, because we do not track it. However, everybody to whom we spoke, particularly people who work in the voluntary sector, said that there is a great deal of repeat homelessness, which tells us that bricks and mortar are not the whole answer and that more support is needed.

500.

The standard of temporary accommodation varies, ranging from bed and breakfast to some very old hostels, for example, the 'Morning Star' hostel, where a tragic event happened last week. That raised several issues. We can provide the Committee with updated information. There are also new, more modern hostels. However, we must address operational issues as well as manage­ment and information.

501.

The report lists the requirements for a strategy to reduce homelessness; it also includes several recom­mendations. We must make a statement of direction containing proposals on how to tackle homelessness. The report deals with the timely provision of permanent housing as well as advice and assistance on suitable temporary accommodation. It is about involving users in the planning of the service, minimising bed-and-breakfast use, supporting vulnerable people and working with many others as well as introducing performance standards. Our intention is that each district office should produce a local plan as part of a district housing plan to address homelessness. We also intend to form local forums to help the Housing Executive to deliver that plan.

502.

We are co-operating with the Probation Board on its accommodation strategy, which has recently been issued for consultation.

503.

The correct implementation of Supporting People is another important point.

504.

The Supporting People programme will affect single parents, young people, people leaving care, people with mental illnesses and matters of physical disability and domestic violence. We aim at reducing reliance on bed and breakfast by 50% in the next few years and we shall do that by producing 250 new temporary accommodation units. Based on research that we intend to carry out, we also aim at improving support arrangements by providing new supported units for long-term hostel residents who view those hostels as their home. However, hostel accommodation is not suitable for those with long-term accommodation needs.

505.

We want to expand the outreach and support services that we have piloted. We must provide for areas of exceptional need, particularly those involving sex offenders, who are always difficult to place and rehouse. Many people in hostels have physical disabilities and we simply do not have and cannot produce the type of accommodation that is needed, so we must acquire housing that can meet their needs. We also want to increase the housing output levels in hot spots throughout the Province - and by that I mean areas where it is difficult to rehouse people quickly.

506.

Some of the other recommendations deal with setting standards for the temporary accommodation that we provide and with inspecting and enforcing those regulations. We must improve our prevention, information and advice services. For example, one of the issues that we have been working on with the Simon Community is the early introduction of advice on homelessness to the school curriculum as part of the prevention model. We have also examined advocacy for tenants in the private rented sector.

507.

As always, we must examine how well we work with the health and social services and with the voluntary sector in delivering the service. Several operational recommendations are listed on page 16. We propose that the Housing Executive become the one-stop shop for anybody who reports as homeless; in other words, those who declare themselves homeless outside office hours will no longer have to report to health and social services workers.

508.

We must examine the appeals system, which is a little complicated. There is some evidence, which the Committee may have already received, that deals with whether there ought to be independent appeals, and that is something that we must consider. We also want to consider how we support and maintain contact with people who have been in temporary accommodation for a long time.

509.

Page 17 lists the consultations that we have carried out and the 41 written responses that we received. If the Committee wishes, we can send more detailed information on that in writing before it concludes its discussion on this matter. Many of the groups who responded said that the strategy does not adequately deal with the prevention of homelessness, so we must re-examine that. It has been suggested in several submissions that those whose rights are not featured in Northern Ireland legislation - 16- and 17-year-olds, people coming out of institutions or people who are homeless because of domestic violence - should have their rights enshrined in the legislation. Such groups do not feature in the primary legislation in Northern Ireland, but it is our practice to treat them as vulnerable when we assess people for homelessness. The Housing Executive would have no difficulty with any such change in legislation because it would be no more reflective of our practice than the legislation is.

510.

Our document contains much about how we work with other agencies. The independent appeals issue must be examined, as must the fact that homeless­ness is also linked to house sales, arrears and community safety.

511.

The strategy must be developed into homeless action plans, and our intention is to do that at district council level. Our next step, now that we have completed our consultation, is to present our findings to the board. We intend to await the outcome of the Committee's inquiry before we finalise our report and we shall then develop an implementation plan. In the meantime, we shall do necessary work, including research into long-term hostel residence. We must identify exactly who long-term hostel residents are, how many of them there are, and how their problems can be solved.

512.

The appeals system should be examined. We shall engage with some of those involved in homeless­ness and consider the use of technology in booking hostel accommodation.

513.

On pages 19 to 22, representatives of the Chartered Institute of Housing outlined homelessness legislation in other parts of the United Kingdom and in the Republic of Ireland. Scotland set up a task force, and the duties and rights of homelessness will be extended. Prevention and advice are emphasised, together with the requirement to develop a homelessness strategy, and it is intended to help those who sleep rough.

514.

Wales has a homelessness commission; rights and duties have been extended to those groups who lost them under the Conservative Government's legislation changes. The question of homelessness strategies is wider than just providing accommodation and working with various bodies.

515.

Perhaps the Chartered Institute of Housing informed the Committee of the progress of the Homes Bill in Westminster. The focus in England is on sleeping rough and more recently on a reduction in bed-and-breakfast accommodation. At the moment, there is consultation on a document dealing with proposals for a national homelessness strategy.

516.

Page 22 shows the Republic of Ireland's 'Homeless­ness - An Integrated Strategy 2000'. Interestingly, that placed statutory responsibility for homelessness on the housing and health authorities and not on the housing authority alone. Developments in the Republic are fairly recent, and there is a clear recognition that homelessness concerns more than a house. Strategies are necessary to tackle and prevent it, and organisations must work together.

517.

Approximately £5 million per annum is spent on providing new hostels, and recurring expenditure of approximately £18 million per annum supports homeless people on two fronts. First, housing benefit pays support charges for hostel residents; secondly, a special needs management allowance also passes to hostels. Those make up approximately £12 million of the £18 million.

518.

One correction must be made. The additional cost of implementing the review is not £20 million per annum; it is a one-off amount of £20·6 million of capital investment over several years for new hostel provision and for leasing from the private sector. The new hostel provision is also necessary to deal with the silting up of hostel space in Belfast. An estimated £3 million per annum is required to develop, with the voluntary sector, the support services needed to prevent homelessness in the first instance and for help in maintaining a tenancy once one is agreed.

519.

The Committee will find the 'Financial Linkages to Supporting People' on page 24; the presentation also lists 'Housing Benefit (Rent and Support Services)' and 'NIHE support to Voluntary Sector'. There will be two pots of money after November 2003: housing benefitwill cover rental costs, and the Supporting People Fund will meet all the support costs covered at present by the sources set out on the left hand side of the diagram.

520.

The provisions in the Housing Bill address some technical issues. For example, someone who had a mansion elsewhere in the United Kingdom could still apply for homeless status in Northern Ireland. There is provision to close that loophole. Another is that anyone who has been evicted for antisocial behaviour will not be entitled to advice and assistance under the homeless­ness legislation.

521.

Legislative provision in Northern Ireland is generous compared to that of Great Britain. Great Britain's legislation is intended to catch up with that of Northern Ireland and to reinstate its own - as it stood before the changes made to it by the Conservative Government. The Housing Executive believes that there may be merit in examining the statutory duties of other agencies in addressing homelessness, particularly health and social services. Unless they play a full role, tackling homelessness will be very difficult.

522.

The Housing Executive, which has had respon­sibility for homelessness, has achieved much. The strategy shows that much more must be done to address those problems. It is not merely a question of bricks and mortar. Service improvements can be achieved with funding. The relationship with statutory and voluntary agencies is critical. Implementing Supporting People is important to developing services to support homeless people.

523.

The Acting Chairperson: I wish to say something about the 'Morning Star'. The Committee wrote to Mr Grimes to express its sympathy and to extend its good wishes to the survivors and to thank the staff for their efforts, knowledge and the good work that they have done as volunteers. The Committee has an interest in what happened. What is the present situation?

524.

Mr Graham: Since the sad events of 12 February steps have been taken to accommodate the former residents of the 'Morning Star'. I am not sure how much people know about that. The hostel was leased to the Legion of Mary, which managed and maintained it. At the time of the event 18 men were in residence, although the hostel could take up to 30 people. Many of them had alcohol-related problems. The cause of the fire is still unknown, although forensic examinations are being made. The cost of refurbishing the existing hostel is considered by all to be unrealistic. A long-term alternative must be found.

525.

In the short term, however, most of the men are single, from west Belfast, aged between 50 and 70 and have alcohol problems. Twelve of the men were fairly well settled at the hostel. The other six tended to come and go - they stayed at other hostels or made other arrangements. The immediate accommodation needs are being met in two locations. Saint Peter's Cathedral gatehouse has been converted to accommodate 10 of the men temporarily. Social services have taken a further four into their properties on the Antrim Road. The nearby welcome centre is also being used to provide a daytime service for the men. In the immediate term, the Housing Executive will house some of the men in Carrick House, which is at Carrick Hill, where Unity Flats once stood. The immediate housing needs have, we hope, been catered for.

526.

There is an interagency agreement that the long-term provision should be a modern 40-bed hostel at John Street/Hamill Street. There was resident opposition to that in the past. However, there now seems to be agreement and there seem to be no major problems. The men will stay in the gatehouse and social services accommodation until the Ashmore Street hostel is vacated, which should be in August 2002. The men will move in there until a new hostel has been built. Ashmore Street hostel can accommodate them all. Work is due to start on the new hostel at John Street/Hamill Street in August 2002 or earlier.

527.

The Acting Chairperson: The Committee welcomes that good news.

528.

Mr B Hutchinson: I have concerns about Ashmore Street. It is not the proper location to house those people as it is in an interface area, and in August tensions will be high. That building will be attacked every night, and that should be taken into consideration. It is not good temporary accommodation. The people who live there now are not happy about it. It is perhaps the wrong location due to the sectarian violence in the area.

529.

Mr McIntyre: The Housing Executive has improved protection around the hostel as a result of an incident last summer. It is not the ideal location, but there is a strong preference among the men to remain together as they have been together for a long time. It is at present our only option, but I acknowledge your point that it is not the ideal location for a hostel.

530.

The Acting Chairperson: It is good news to hear that that new provision will be made.

531.

Mr Tierney: It is also good news to hear that residents have accepted it. I was aware that they were not keen at the beginning. Could they be moved before August, or is the arrangement permanent?

532.

Mr McIntyre: The intention is for the men to be in the new John Street/Hamill Street hostel by August 2003. The Legion of Mary provides the hostel, but it is funded partly from compensation that the Housing Executive is due to pay to it because we vested the property some years ago. The Legion of Mary also makes a voluntary contribution to it, and it is keen to move as quickly as possible. We are working closely with the local Legion of Mary.

533.

The Acting Chairperson: One issue that arose in several submissions on after-hours arrangements was that there seemed to be a breakdown in communi­cation between the Housing Executive and social services. You suggested in your recommendations that you would address that. How do you propose to do that?

534.

Mr Tierney: Can you expand on what you mean by the Housing Executive being a one-stop shop?

535.

Mr McIntyre: The service of reporting as homeless outside office hours will be run entirely by the Housing Executive. People do not go to social services at any day time to report as homeless - they report to the Housing Executive.

536.

Mr McCaughley: We shall revamp our emergency services to handle repairs and homelessness. Local officers will be on emergency standby. If they are required to visit a homeless person, that will be backed up by a booking system that will find that person a hostel or bed-and-breakfast accommodation after hours. The exception would be that occasionally we might need to call on social services to help us in large-scale emergencies such as the Morning Star fire or other disasters. Aside from that, social services would effectively disengage.

537.

The Acting Chairperson: The Housing Exec­utive's professionalism was of one type and the social services' professionalism was of another, and the marriage of the two was important. Can the Housing Executive's emergency service deal with applicants with drug and alcohol problems?

538.

Mr McCaughley: The social services provision is nothing more than an accommodation booking system, and we shall replace that with our own staff. It will then not matter whether one calls at 9am or at 8pm. In exceptional circumstances, our emergency service would have to re-engage with social services. However, that would be the exception rather than the rule.

539.

The Acting Chairperson: I am sure that social services regard their contribution as rather more than that of a booking agency.

540.

Mr McCaughley: I believe that the social services would agree that there should be a single service that is operated by the Housing Executive.

541.

Mr Tierney: I agree with the Acting Chairperson that that is not what social services are telling us. The fact that it is an after-hours service means that it is used in emergencies. The applicant may have to be put into temporary accommodation, and the Housing Executive becomes involved afterwards. Even if Housing Executive staff were appropriately trained, most applicants would still have to apply to social services.

542.

Mr McIntyre: I am sure that that will sometimes be the case. Our consultation found that the present arrangements, whereby applicants go to one organisation or another depending on the time of day, were unacceptable. The consultation found that there should be one point of contact for applicants.

543.

The matter of when social services are called upon to deal with someone who has reported to the Housing Executive should be considered. We understand that they must be called upon in certain cases.

544.

Sir John Gorman: Paragraph 2.10 of your 'Submission to the Social Development Statutory Com­mittee on Homelessness in Northern Ireland' states that

"There was strong consensus that increasing the supply of affordable housing was key to tackling homelessness in high demand areas."

545.

Mr Kieran Walsh of the Chartered Institute of Housing in Northern Ireland emphasised, rather vehemently, that there was a real need for affordable housing. How is that being produced? Is the supply adequate? Could the Bill not introduce that as a revolutionary measure? I have an interest in such Bills, and, frankly, this one is merely indifferent tinkering. It contains nothing radical.

546.

Mr McIntyre: The document from which you quote was produced by the Department for Transport, Local Government and the Regions. It is the Govern­ment's intention to develop a national homelessness strategy for England and Wales. It says that part of the answer is to increase the supply of new housing; we say the same. The supply of new housing here must be increased, especially in hot spots. I do not wish to create the impression that it is an issue throughout the Province. There are, however, several areas that do not have sufficient new houses for people to be rehoused quickly.

547.

Sir John Gorman: You said that we need 1,500 houses.

548.

Mr McIntyre: Yes, we need 1,500. My under­standing is that this year's programme will produce around 1,200 new units. Last year, the target was around the same, as was output. Decisions must be made on what priority should be awarded to that as opposed, for example, to putting it into grants for the private sector.

549.

Our strategy's answer is that there is a need for new housing in areas where people cannot be rehoused within a reasonable period. We endeavour to rehouse homeless people within three months. The Housing Executive requires the provision of the Bill because for five years it has had pieces of legislation, some of which I would accept are not significant. Nevertheless, we do require important sections that relate to anti-social behaviour and changes to grants et cetera. Our view is that the homelessness section of the Bill is fairly technical and it simply tidies up some aspects.

550.

The constant issue is where will the money be found to address all that? There has been some debate about access to private money, which may be an answer.

551.

The Acting Chairperson: To follow up Sir John's argument, if legislation is put in place now, presumably it will be in operation for a considerable time, so we need to get it correct.

552.

Mr McIntyre: That is correct.

553.

The Acting Chairperson: The legislation is not strong on the issue of homelessness.

554.

Mr McIntyre: No doubt you will make that view known during the consultation period on the Bill.

555.

Sir John Gorman: That is very diplomatic.

556.

Mr B Hutchinson: Are you satisfied that that legislative test of homelessness allows you to tackle the problem effectively? We have been advised that 1,267 people presented themselves as homeless last year. Witnesses tell us that that is not the whole story, that there are people who can be termed as the "hidden homeless". Perhaps you would give the Committee the Housing Executive's view on that? The organisations that have given evidence seem to have concentrated on 16-to 17-year-olds. However, page 5 of the Housing Executive's presentation to the Committee, which details your 2000-01 figures, shows that the problem of homelessness among 16- to 17-year-olds has decreased recently. Many witnesses stated that the problem for 16-to 17-year-olds who presented as homeless was not about providing houses, but about having them stay in particular types of accommodation.

557.

Mr McIntyre: Our judgement is that the legislative test allows the system to identify those who are homeless and require to be housed. That legislative test and the Housing Executive's application of it has been considered by judicial review many times and, in themajority of cases, the Housing Executive has almost always successfully defended its line when it held the view that an applicant had not satisfied the test.

558.

We hear about the issue of the "hidden homeless" as there is a view in the voluntary sector that anyone who lives in unsuitable accommodation should, by definition, be considered homeless. Legislation does not allow that interpretation, so that may be one aspect of "hidden homelessness". The Simon Community would hold that view, and I would not necessarily dispute it. However, households that live in such accommodation would not satisfy the legislative test of homelessness.

559.

There are several direct access hostels in and around the city that residents use without registering as homeless. I suspect that many of those people who were in the Morning Star hostel had never registered with the Housing Executive as homeless because that is their style of life. That is another aspect of "hidden homeless­ness". There is also an issue as to how many people sleep rough. However, we probably have that problem largely under control on account of the Lee Hestia hostel in Brunswick Street. However, we intend to revisit the issue next year. We are in regular contact with the police and others as to the levels of rough sleeping of which we are unaware. The common selection scheme works because we assess more people who are home­less, or potentially homeless, than we did under the old scheme. Therefore, we are to some extent addressing the issue of the "hidden homeless".

560.

The point about 16- and 17-year-olds was made because Northern Ireland legislation does not specify the homeless as a group with statutory rights to protection. People may have focused on the 16- and 17-year-olds because they want that written into the legislation. In practice, we treat them as vulnerable and they will be assessed as homeless, and those interested groups use that as an example to suggest how the legislation could be improved.

561.

Mr B Hutchinson: Do you not think that the number of homeless people is increasing? Do your figures suggest that you are on top of that situation? Are the numbers of homeless 16- and 17-year- olds decreasing?

562.

Mr McCaughley: Yes, that is the case when compared with other categories of householder. We support the voluntary sector, and we must address the fact that either those kids leave care or we must look at those numbers. We suspect, through anecdotal evidence, that some drift through hostels without coming near the Housing Executive or any other service except through the voluntary sector. More research will be done on that, but we suspect that that will show that significant additional work must be done to support 16- to 17-year olds, especially those who have come through the care system. Besides the Housing Executive, some health boards have devised new models of provision, such as supported lodgings, to help those children who are between care and permanent housing.

563.

The numbers may not be huge, but we support the voluntary sector's view that it is a significant problem that must be addressed.

564.

Mr B Hutchinson: What do we need to do with the legislation to address that problem?

565.

Mr McCaughley: It is not a legislative issue per se - housing and health boards should work together, and some of our models should be more innovative.

566.

Mr B Hutchinson: The problem with that is that people have said that certain areas are OK but others are not. In other words, no equality exists as it depends on how the people interpret the legislation. There is nothing in the legislation that says that an individual who lives in County Fermanagh or County Antrim will get the same service. That is why I am asking you. I understand what you are saying, and I accept that that is how you want to work. Our difficulty is that people tell us that, for example, the South Eastern Health Board may work differently from the boards in the north and west. People say that different organisations treat 16- and 17-year olds differently.

567.

Mr McIntyre: We are trying to address that through our housing and health agenda. The quality of our relationship with health trusts in the Province varies, and I suspect that what you say may be correct. As Mr McCaughley has said, the issue is not about writing legislation; it is about the local Housing Executive and the local health and social services trusts getting their act together for particular types of clientele. Some of the trusts will have different priorities for the clientele on which they want to focus. I agree with your point.

568.

Mr McCaughley: The boards that carry out service planning exercises on children who are going through the area boards also recognise that problem, and those boards want to piggyback the work of the Housing Executive. They would carry the primary responsibility, and we would support them.

569.

The Acting Chairperson: Is there a case for priority need?

570.

Mr McIntyre: Under the homelessness legislation - although it is not written in to it - we treat those young people as vulnerable. The point has been made several times in presentations that that should be contained in the legislation. The Housing Executive has no difficulty with that. In practice, young people are treated as priority need when we conducted our assessment on vulnerability.

571.

Mr Tierney: That dos not cater for all 16- and 17-year-olds. Perhaps because of domestic problems, young people leaving home may not wish to address why they have left home, and if they present themselves to the Housing Executive, they do not report those circumstances. They are not seen to be priority need cases so are classed as intentionally homeless. Is that correct?

572.

Mr McIntyre: That could be the case.

573.

Mr Tierney: Those are the hidden ones who Mr Hutchinson has said miss out. Young people who are homeless are treated as intentionally homeless, because they are not considered to be priority need cases. Do you agree that we must look at that?

574.

Mr McIntyre: That is a possible answer.

575.

Mr McCaughley: We must be careful. If every 16- or 17-year-old in Northern Ireland left home and claimed homelessness through the legislation, we would be obliged, under statute, to honour that commitment. That would be a step too far.

576.

In that situation, we would ask if we had provided enough advice and assistance to enable the voluntary sector, ourselves or someone else to pick up the immediate problems faced by that person. We do not want 16- and 17-year-olds walking the streets of Northern Ireland. That is a different issue than giving statutory force to the idea that if a child walks out of his or her parents' home tomorrow, there is a statute that entitles him or her to a permanent house.

577.

Mr McIntyre: A view exists that the existence of homelessness legislation creates a climate in which people leave home and families break up. I am not sure whether the Committee has heard that opinion from other representations, but it has been voiced to us over the years.

578.

The Acting Chairperson: That may be the type of area at which I hinted earlier when we talked about the professionalism of the two contributors. You mentioned the necessity for health and social services representatives to work in housing and the entire ambit. Issues will arise that you and your officers may have difficulty dealing with and analysing. Those issues can only be dealt with by professionals from health and social services.

579.

Mr McIntrye: We must make a distinction. The Housing Executive says that it is a one-stop shop for reporting and presenting as homeless, and we cannot assess an individual's requirements without considerable contributions from several other agencies, including health and social services professionals. I do not wish anything that we have said about a one-stop shop to undermine that.

580.

Mr McCaughley: We may not need social services between 8.00 pm and 8.00 am, but we certainly need them between 8.00 am and 6.00 pm.

581.

Mr Tierney: Do you say that decisions about the homeless should fall solely to the Housing Executive?

582.

Mr McIntyre: Statutorily, the Housing Executive is the only organisation that can make that decision under present legislation. To get the information that we require to make a decision, we frequently have to make enquiries into the individual's vulnerability. Therefore, social services have a sizeable contribution in helping us make that decision.

583.

Mr Tierney: I accept the point that you are making. However the Committee has heard people say that different agencies should be involved in making the decision. There is a difference between being involved in deciding whether a person is homeless, and the Housing Executive seeking advice from the agencies.

584.

Mr McIntyre: How would that work in practice? Would it be decided by committee or case conference? At the end of the day, a body must decide.

585.

Sir John Gorman: The Department for Transport, Local Government and the Regions consultation paper, which I quoted from, has been completed, and an announcement was made in December 2001. I presume that that announcement is related to the White Paper that also appeared in December. The consultation paper contained a chapter on funding, and when you answered my previous question, you made the point that funding will be needed. How will funding be obtained to solve the problem of the inadequate number of social houses that are being built?

586.

Mr McIntyre: We must present the case, it must be argued along with numerous other cases and someone has to say that it has priority over something else. In many ways, the Committee will play a bigger role than the Housing Executive.

587.

The White Paper referred to the local authorities' borrowing powers. My understanding is that, as a result of representations that have been made to the Minister, the Department is currently looking at its im­plications for Northern Ireland. If it frees up additional money, that is excellent.

588.

Sir John Gorman: Do you agree that the Housing Executive has been very popular among lenders?

589.

Mr McIntyre: If the Housing Executive were to try to borrow money, it would have an XX credit rating.

590.

Mr B Hutchinson: What would happen to debt charges if the Housing Executive were able to borrow? The issue concerns funding. It is not about money that the Housing Executive has, it is about the money that it owes. That is crippling the organisation. It would be better to get rid of debt charges than to try to borrow.

591.

Mr McIntyre: I am straying well outside my remit.

592.

The Acting Chairperson: We are getting a little out of order here. Will you give a quick reply, nevertheless?

593.

Mr McIntyre: I can only relate what has been happening with stock transfer in England and Scotland. In Glasgow, the state tends to be writing off debt charges, but that is its solution to their problem. It is also being done because the state is changing arrangements there.

594.

The Acting Chairperson: What is your experience of dealing with homeless persons from Britain or abroad? Is any pattern developing? Are there any problems?

595.

Mr McIntyre:  A total of 97% of people who present themselves as homeless to the Housing Executive hail from Northern Ireland.

596.

The Acting Chairperson: Is that figure static?

597.

Mr McIntyre: Yes. It is a very small problem.

598.

The Acting Chairperson: Can you supply the Committee with the full results of the user survey? Has it been tested independently, and was there input from the voluntary sector?

599.

Mr McIntyre: That is included in our submission. However, if there is a problem, we can supply it to the Committee.

600.

The Acting Chairperson: You talked about the 41 submissions that you received as a result of your inquiry, and you offered those to the Committee. If the Committee could have one copy of those it could access them when putting together its recommendations.

601.

Mr McIntyre: We shall summarise those for the Committee also.

602.

The Acting Chairperson: My final question concerns Northern Ireland's having the highest incidence of homelessness. Will you provide details of the incidence per 1,000 people in the populations of England, Scotland, Wales and the Republic of Ireland? We do not request that now. Does Northern Ireland have the highest incidence of homelessness?

603.

Mr McIntyre: We do. The information is contained in the documentation, but we shall highlight it for the Committee. I do not have the figures for the Republic of Ireland. I am not sure that the information from there will be comparable. However, we shall try to obtain the information.

604.

The Acting Chairperson: That is excellent. Thank you for your time and contribution, which are significant to the inquiry.

MINUTES OF EVIDENCE

Tuesday 26 February 2002

Members present:

Mr Cobain (Chairperson)

Ms Gildernew (Deputy Chairperson)

Mr Hamilton

Mr B Hutchinson

Mr G Kelly

Mr ONeill

Mr M Robinson

Witnesses:

Ms M McNally                        )                        Director, Dungannon & District                                                             Housing Association

Mr C Williamson                        )                        Director, NI Federation of                                                     Housing Associations

Mr A Rea                        )                        Director of Housing, BIH                                                    Housing Association

605.

The Chairperson: I welcome Ms Maura McNally, Mr Alan Rea, and Mr Chris Williamson, who represent the Northern Ireland Federation of Housing Associations. Will you make your presentation, before the Committee asks some questions?

606.

Mr Williamson: Thank you for the opportunity to talk to you again. We have not overweighed you with paper, either in our submission or in the outline of the structure of our presentation, which we will distribute. My colleagues work for two housing associations, and I work for the Northern Ireland Federation of Housing Associations, the umbrella body for the 45 or so member associations in Northern Ireland. Ms McNally is the director of Dungannon & District Housing Association, a locally based association that has operated for over 30 years and has broad direct experience in dealing with homelessness, which Ms McNally will outline. Mr Rea is the director of housing at BIH Housing Association, the biggest housing association to provide rented accommodation in Northern Ireland. He has vast experience in this field, including direct and indirect provision for homeless people.

607.

I acknowledge that the Housing Executive has the statutory role in dealing with homelessness, and generally it does a good job. We commend the homeless­ness review that it carried out recently and which is still moving through the process.

608.

First, Ms McNally will outline aspects of prevention that can be enhanced, then Mr Rea will talk about the existing and proposed provision for homeless people, and I will conclude by discussing homelessness procedures. We will then answer members' questions.

609.

Ms McNally: I deal with the prevention of homelessness. We need to examine more education initiatives to increase awareness among school children and people in the private sector who provide accommo­dation. In addition, we need to carry out more research into the real cause of homelessness and repeat homelessness.

610.

Dungannon & District Housing Association examined tenancy support services and floating support a few years ago. We have a children's home based in Dungannon, but no real accommodation is available for young people leaving care, other than Housing Executivehard-to-let flats in areas that have other social needs. Therefore, in conjunction with the Simon Community and social services, we assessed the possibility of providing move-on type of accommodation, with an on-site support worker to help young people to completeforms and get settled into the community. However, that fell through because social services were unable to come up with adequate funding. Rent deposits and guarantee schemes require more work, and the Simon Community are leading that.

611.

My last point is that we should automatically accept as vulnerable any young people aged between 16 and 17 years old, but with a clause that they are disqualified if they intentionally make themselves homeless.

612.

Mr Rea: Members may already have this information, but some of it may be new. There are 40 registered housing associations, currently providing over 22,000 units of permanent accommodation. We also manage 3,000 bed spaces in hostels and shared housing units, of which around 1,000 are to alleviate homelessness. Many are jointly managed with voluntary organisations such as the Simon Community and Women's Aid, but the accommodation is provided by housing associations.

613.

In addition to the conventional direct access hostels, the movement has been at the forefront of providing new initiatives. There are four foyers in the country, which we have built. We are hoping for a review of the foyer mechanism to enable more to be built. The Department must carry out that review, and we want it to take place soon. I understand the Simon Community will give a presentation to the Committee in the future, and they will no doubt talk about their experience with Foyers.

614.

According to Housing Executive figures, housing associations accommodate 16% of all full duty applicants, or homeless people, in permanent accommodation. That will vary according to the area. Last year, 26% of BIH allocations went to homelessness people, and we continue to provide temporary and permanent accommo­dation. However, in some areas there is a high demand and low provision. We have identified a couple of reasons for that, and they will be familiar. High land values and reduced Government grant rates make it increasingly difficult for housing associations to provide affordable accommodation for those on low incomes, and that is a genuine concern for the federation. Each year, it becomes more difficult to provide affordable permanent or temporary housing, and there is a danger that we are being priced out of the market in some areas.

615.

The federation would argue that the concept of portable discounts for tenants who wish to buy their own homes should be piloted in areas where there is high demand and low turnover - areas where there are few re-lets and long waiting lists. Instead of allowing social-rented tenants, either Housing Executive or housing association tenants, to buy their houses in those areas, tenants are given a monetary discount to move out of the area, thus freeing up properties to be re-let to homeless people.

616.

Mr Williamson: We also need to link the approach to homelessness with other major Government policy initiatives, including community care, which has been ongoing for over a decade. There are still many bumps on that road, but a much greater integration between homelessness and community care is required.

617.

The Supporting People initiative, which the Committee has heard about and discussed recently, is tied into that. Although we have reservations about the initiative, it has great potential to achieve a greater degree of integration and flexibility in the provision of supportive services to help people to retain and take up tenancies. Retention of tenancies is important. A tenant might be living in a perfectly good building, but unless tenancy support services are provided - beyond the normal housing management services - it is highly likely that such tenancies will break down, and that the person will become homelessness again. The Supporting People initiative is one way in which more flexible tenancy support services can be provided, and there is much mileage and benefit to be gained by moving in that direction.

618.

Alan Rea has already said that the provision of foyers, which has been carried out on a small scale in Northern Ireland, links into education and job training. The target group for foyers is people at risk of homelessness, who also have need life-skills training, educational support, and vocational help to break through the "no home, no job" cycle. Foyers provide an integrated service under one roof. This is not meant to be permanent, and homeless people should only be there for about a year in order to break the cycle and start living independently - preferably with a job, or in structured education.

619.

The Housing Executive generally does a good job to improve procedures for the homeless, and provides a service to many people throughout the year. However, there is scope for enhancement. First, the Housing Executive has an internal book of guidance, and there would be virtue in making that a statutory code of guidance on homelessness. There are parallels for that in Great Britain where numerous local housing authorities have the responsibility for homeless applications. An equivalent code approved by the Department for Social Development would make the process more transparent for applicants and the public.

620.

Secondly, there is an internal appeals procedure. However, applicants who are aggrieved with a decision by Housing Executive about their homelessness case would benefit from a more transparent appeals procedure. In much the same way as the housing benefit system has an independent element in its appeal board, it would help the Housing Executive to demonstrate fairness and transparency, and also help the applicant, if it had a parallel procedure.

621.

Finally, we are happy with the Housing Executive's proposal in its review that it should take after-hours service on homelessness in-house. However, there are housing association providers of temporary direct access accommodation and, whether we like it or not, individuals will knock on those doors late at night without going through the Housing Executive system. It would make sense if an arrangement could be made where an immediate, interim assessment could be made and then ratified later by Housing Executive officials during working hours. Those are three small procedural changes that would enhance the present arrangements.

622.

In conclusion, on behalf of the federation I acknowledge the good work that the Housing Executive is doing on homelessness. We do not think that that is the end of the story, as there are additional things that can and should be done. Housing associations play a good part in the relief of homelessness, and we are not behind the door when it comes to taking initiatives such as the Foyers, tenancy support services, and things of that nature. David Crothers wrote to us in September 2000 to outline the limited proposals for changes to the homelessness legislation in the present Housing Bill, and we support those limited changes. We would encourage the Assembly to go a bit further, especially in relation to the points that we have made - for example, the vulnerability of 16- and 17-year-olds.

623.

The Chairperson: Thank you very much. We have taken several presentations, and obvious themes run through them all. Homelessness is not specific. Although we are dealing with people who are homeless, I feel that the big issue is support for them. Many presentations have been about additional support for homeless people, which is nothing to do with housing. It is to do with education, health and support, and there does not seem to be any co-ordinated programmes - it has been hit-and-miss.

624.

The problem cannot be solved purely as a housing issue, as cross-cutting issues must be identified. That is the underlying theme. It is senseless to give homes to homeless people without providing support too, because within six or eight months they will be homeless again. Ms McNally made that point, but we need to flesh this out a bit more. First of all, there must be cross-departmental support if the project is to work, and that does not appear to be there. From our point of view it is not only about houses. It is about people and support for them to reintegrate them into society. Could we concentrate more on that and other resources that are needed?

625.

Mr Williamson: You have put your finger on a crucial point. There is no easy way of clinically dividing housing management and housing support services, but that should not deter us from attempting to ensure that those vital support services are in place. One could argue whether they should be the responsibility of the Department of Health, Social Services and Public Health or the Department of Education. In our view - and my colleagues are better placed to make this point - housing management encompasses education, because it helps people to run their homes, budget effectively, and generally maintain their tenancies. Tenancies are to do with housing, and the maintenance of those tenancies is a housing matter as well. Supporting People offers more flexibility in putting proper resources into place.

626.

The Chairperson: There are multiple reasons why people are homeless, for example, lack of support, especially for 16- and 17-year-olds going into the community. They need support, as you cannot just give them a house and walk away and leave them. It appears to me that people think that if homeless people are provided with homes, homelessness will be eradicated.

627.

Mr B Hutchinson: Should the priority need be extended to 16- and 17-year-olds leaving care, young adults and 17- to 21-year-old offenders leaving institutions? What is your experience of working with those young people?

628.

Ms McNally: We do not have much experience with the second group. We have a lot more experience with younger people. Unfortunately our housing association is small, and we have a very low turnover of accommodation. There is little we can do for people arriving at our office other than refer them to the Housing Executive. Ultimately they end up in a bed-and-breakfast or a bed bureau.

629.

Mr B Hutchinson: Would extending priority need help those people?

630.

Ms McNally: We tried to do that a few years ago when we worked with social services and the Simon Com­munity. We tried to provide something in Dungannon, but it fell through because of lack of funding.

631.

Mr Williamson: If the priority need category were extended - and assuming that the people we are talking about are not deliberately homeless - then, under the common selection scheme that housing associations and the Housing Executive operate, they would receive a substantial number of points that would take them to the top of the waiting list. That would put them in good stead for receiving an early offer of accommodation.

632.

The Chairperson: However, in the absence of additional support it would be best not to place them anywhere.

633.

Mr Williamson: I agree. That is why we need to be more flexible. We need to try and attract funding and imaginative thinking.

634.

The Chairperson: This has to be like a community care package. We cannot ask 16-or 17-year olds to go into a house and then leave them to look after themselves - that is not going to work.

635.

Ms Gildernew: My question is directed at Ms McNally because she will understand the problems of rural homelessness, and the fact that much of it is hidden because there is not much accommodation in rural areas. There is nowhere for people to go, and they end up staying with friends or family. The alternative is a flat in some part of Dungannon, perhaps 10 miles from the community they come from.

636.

Initiatives to increase social housing and new build have not been very successful in recent years. There is a dire shortage of new build in Tyrone and Fermanagh. I accept that a holistic approach is needed to prevent people becoming homeless, however, the dire shortage of housing in some rural areas is exacerbating the problem. Would you explain how your housing association tries to alleviate rural homelessness?

637.

Mr Williamson talked about making Supporting People more flexible. I feel that Supporting People will increase homelessness because the necessary funding will not be in place and more people will be on the streets. Would you elaborate on the difficulties we will be facing as a result of the new legislation?

638.

Ms McNally: Our housing association has looked at rural housing schemes, but unfortunately we have not been able to get Housing Executive support for them. We have not carried out much research into homelessness in rural areas, however we are aware that it exists. There are so many voids at local level in the Dungannon area, for example, that the Housing Executive, as you know, are almost loath to provide any other type of housing outside Dungannon. Young people from eight or 10 miles outside the town come to Dungannon, present themselves as homeless, and the first place offered to them will be a flat in a hard-to-let estate.

639.

Ms Gildernew: I was at a community association meeting in my area a few years ago, which was full of people interested in developing social housing. The criterion was that a certain number of replies had to be returned for the Housing Executive to build a certain number of houses. That night I argued that if the houses were built there would be no problem filling them. They could be filled ten times over, but the procedures in place were not very accommodating to the community.

640.

Ms McNally: I agree. We have done latent demands testing as well, and people will not fill in an application form. However, as soon as a sod is turned, you will be inundated with applications.

641.

Mr Williamson: We feel strongly about the supply side of social housing to deal reasonably quickly with the problem of homelessness. Without taking a blanket approach, there is case for taking a more strategic approach to the retention of existing social housing, as well as the provision of new housing, which brings us back to the house sales policy. A sound logical case can be made, on the grounds of housing need, for looking at the portable discount scheme as an alternative to selling existing stock in tightly defined areas.

642.

In addition, there is the business of getting new social housing into the areas where it is needed. It is a paradox that within a short distance there are houses that cannot be let, and people in need of them - there is no easy solution to that. Our Housing Executive colleagues are right to try to avoid compounding an already bad problem by draining existing stock. It is a difficult conundrum to deal with. We need to be much more localised in the identification and assessment of need.

643.

Ms Gildernew: People should have the right to buy their home in the area in which they live. I do not agree that preventing people from buying their home is the way to deal with the lack of social housing. The way to deal with the lack social housing is to build more houses. Can you tell us more about the Supporting People initiative, Mr Williamson?

644.

Mr Williamson: Supporting People is a new funding initiative or philosophy. As you correctly say, a key difference from the present arrangements is that there will be a limit on the amount of funding. We share your concern about any limit placed on it, but I must emphasis that under the existing legislation the provision of support services through transitional housing benefit will end after March 2003, whether we like it or not.

645.

I made the point informally that it was vital in my view and, more importantly, the view of the federation that alternative legislative arrangements and funding be made available for that which is currently provided through transitional housing benefit to be picked up by another heading. I will call it Supporting People for the sake of convenience. Assuming we get that legislation and funding in place, then the framework of SupportingPeople allows much more comprehensive assessment of overall needs, particularly those supportive needs that the Chairperson has rightly mentioned.

646.

It offers better integration between the various statutory providers - the Housing Executive, health and social services and the Probation Service. All of those bodies will sit on the Supporting People board, if you might call it that, and they will make joint decisions about the services that they need to cater for - finding the most user-friendly and practical way of using the Supporting People pot of money. It is a limited pot, but it gives much more scope than the present tunnel vision of departmental budgets. Supporting People offers a greater possibility of addressing these cross-cutting themes than the present arrangements.

647.

Mr ONeill: Ms McNally said that in her experience people would not participate in the latent demand exercise. I was involved in the introduction of that initiative some years ago, and I know of many successful app­lications. Are people not filling in the forms and participating in latent demand?

648.

Ms McNally: Dungannon & District Housing Association Ltd worked with the Housing Executive on this exercise. The Housing Executive provided a unit for so many hours a day, for a fixed number of days, but people did not turn up. Despite that, communitygroups have stated a certain number of local people who are interested in houses. We find that country people do not want to register on paper their interest in getting a house. However if the houses were built, there would be no problem in filling them.

649.

Mr ONeill: I am slightly puzzled, because I know of some successful applicants under the latent demand approach.

650.

Ms Gildernew: My experience is similar to that of Ms McNally. In my part of the country, people will not fill out the application forms, and we cannot get social housing built.

651.

Mr B Hutchinson: It would be the same in Protestant areas of Belfast.

652.

Mr ONeill: The latent demand approach does not necessarily involve an application form; it is simply a means of indicating interest in a house. There may be a problem with how it is sold.

653.

Ms McNally: The difficult step is to get applicants to complete an application form to register with the Housing Executive.

654.

Mr ONeill: It is a question of publicising the scheme. Mr Williamson, you talked about the guidance rules' becoming statutory. Can you give some examples of how that would make an impact, and of ways in which it would improve the situation?

655.

Mr Williamson: I cannot give you specific examples; however, the general principle is that the guidance should be open for public debate and alteration, as and when the Department for Social Development and the Housing Executive deem it necessary. Although the Housing Executive is a single organisation, it comprises around 30 district offices. We are all human, so people in one office might take a slightly different view of a rule to those in another office. Greater consistency could be achieved if the guidance were made statutory and became available to all interested parties. That would make the process more transparent and provide a framework for a more open and comprehensive debate about the policies that should be used and their interpretation.

656.

Mr ONeill: The Committee is exploring details that could be included in the legislation; that is why I asked for examples of where and how the legislation would apply, and its significance. I would be grateful if you would give the Committee some such examples.

657.

Mr Williamson: I will consult colleagues on the ground, and then get back to you.

658.

Mr G Kelly: Will you elaborate on your comment that the Housing Executive holds the balance of information, and that although you receive the majority of that information, you do not receive certain details? Does the information that the Housing Executive withholds relate to anti-social behaviour? What is your fear?

659.

Mr Williamson: We will sort out that matter with the Housing Executive, so I was perhaps slightly mistaken in mentioning that to the Committee. In response to your question, certain individuals in society present risks to those who live around them, on account of mental health problems or for other reasons.

660.

As Mr Rea mentioned, our member housing associations own a good deal of shared accommodation in which tenants do not have their own front door that can be locked.

661.

Mr G Kelly: The Housing Executive has the same problem.

662.

Mr Williamson: I do not deny that. However, the information on those risks is not held on the Housing Executive's computer system because, as is necessary and right, there are tight protocols on the release of such highly confidential details. Our point is that that information must be available to a social landlord who is about to make a housing offer to an individual in cases where there might be a risk either from or to that person.

663.

Mr G Kelly: Further to that point, are you referring to a mixed selection process?

664.

Mr Williamson: No. Our members, as well as the Housing Executive, are social landlords and as such they have a duty of care to their tenants. For example, years before the existence of the common selection scheme, a tenant who moved into shared accommodation owned and managed by a member housing association, threatened fellow residents with a knife. The association had no means of knowing about the potential risk exhibited by that individual, even though there were objective reasons to determine that risk.

665.

It is not a question of selection; rather, it is a matter of making a properly informed decision based on the risks involved and the nature of the service that the association can provide. Some associations operate specifically to help to manage individuals who pose a risk, so sometimes it would be appropriate for the association to accommodate such tenants. It would be completely irresponsible for an association to allocate such a tenant to ordinary shared accommodation for single people, without that knowledge.

666.

Mr G Kelly: How widespread is the problem concerning the portable discount, and how significant is it? Can you quantify the difference that it would make?

667.

Mr Williamson: I do not have the relevant figures here, but it specifically involves highly targeted localities where it is particularly difficult to house people with a severe housing need in a reasonable time. The Housing Executive's homelessness review identified seven areas in respect of which it is unhappy about the level of service that can be given to homeless people. That would be an example of how areas can be objectively marked out as those in which a portable discount might be a rational and sound means of addressing housing need.

668.

Mr G Kelly: Are those seven areas in the north or are they concentrated in Belfast?

669.

Mr Rea: My colleague tells me that they are in Belfast and Derry.

670.

The Chairperson: As regards portable discounts in respect of homelessness, 60% of people who are homeless are single. I imagine that most properties in areas of high demand are two- or three- bedroom houses. How would you justify allocating a three-bedroom house to a single person?

671.

Mr Williamson: That would not happen. Using the transfer system, much can be achieved after a single void has been generated.

672.

Mr Rea: If a three-bedroom house becomes vacant because the former tenant was given a portable discount, it might be offered to a tenant of a two-bedroom house who needs a third bedroom. Likewise, the two-bedroom house might be offered to a tenant of a one-bedroom flat who has a child. There is a domino effect.

673.

The Chairperson: I am aware of that. However, 60% of homeless people are single, so that domino effect would need to progress regularly.

674.

Mr Rea: Yes, that is true. The domino effect needs to continue so that such moves can take place.

675.

The Chairperson: Would it not be virtually impossible to involve that 60% in those moves?

676.

Mr Rea: No, in the high-demand areas of Belfast in which we work, if a house becomes available for re-letting, often it is not offered immediately to those at the top of the list. Rather, we work with the local Housing Executive office to facilitate up to five or six moves as a result of one vacancy.

677.

The Chairperson: However, the homeless person would end up with the flat.

678.

Mr Rea: Yes.

679.

The Chairperson: There are few maisonettes or flats in which homeless people with a high number of points would want to live.

680.

Mr Williamson: Perhaps that is the case with flats, but we certainly would not anticipate that a single homeless person would be placed in a three-bedroom house.

681.

The Chairperson: It would be senseless to allocate a single person a three-bedroom house, rather they should be considered for two-bedroom or single­-bedroom accommodation.

682.

Mr Rea: I do not agree with your assumption that single-person accommodation is unpopular. Our single-person accommodation is very popular - much more so than some of our houses and sheltered flats. Of course, the location of the accommodation is also a factor.

683.

The Chairperson: Portable discounts should only be offered to people living in areas of high demand.

684.

Mr Rea: Yes.

685.

The Chairperson: It is senseless to give portable discounts to somebody who lives in an area of low demand -that would make it impossible to let houses in that area.

686.

Mr Rea: With the domino effect, the resulting vacancy will still be within the area of high demand.

687.

The Chairperson: It might not be.

688.

Mr Rea: The intention is that it would be.

689.

The Chairperson: The house that is being let might be in an area of high demand. However, the domino effect might involve five or six sets of people moving. The sixth move might not be into an area of high demand.

690.

Mr Rea: According to our logic, it would have to be, because the portable discount applies only in high-demand areas, for which there are long waiting lists.

691.

The Chairperson: I know that. The portable discount is available only to people who live in high­demand areas. The domino effect could result in a sequence of up to five moves, so the last move could involve a single homeless person. Does every move in every area that you deal with take place in high-­demand areas?

692.

Mr Rea: If you follow the logic through -

693.

The Chairperson: Do you have accommodation in areas of low demand?

694.

Mr Rea: Yes, unfortunately there are.

695.

Mr B Hutchinson: Avoca Street?

696.

Mr Rea: That is an area of very low demand.

697.

Mr B Hutchinson: No demand.

698.

The Chairperson: One must be careful, because homeless people who have a high number of points and who are near the top of the waiting list can be rehoused in such instances.

699.

Mr Rea: Yes. They could be rehoused if they opted for another area.

700.

The Chairperson: In the areas to which you refer, the Housing Executive recognises homeless people as priority cases. Therefore, the situation of a homeless person who is high up on the waiting list will not be improved by the use of a portable discount - that will not boost their chances of being housed.

701.

Mr Rea: We follow the philosophy of applicant choice. The applicant can say refuse the offer of a flat in Avoca Street, and ask to be housed in an area of high demand, on the grounds that he or she has 100 points. In that case, that applicant can stay on the list.

702.

The Chairperson: The argument about portable discounts for homeless people is too long and convoluted to deal with today.

703.

Mr Williamson: I emphasise that there is no direct relationship between a portable discount and the homeless person. The purpose is to create an extra vacancy that would not otherwise occur, so that through the chain of vacancies, the homeless person, whether single, married or with children, can be given a home. It is not a case of equating directly the address where the portable discount applies, to the address that the single homeless applicant eventually gets.

704.

Mr ONeill: What is the average cost for a housing association to build a new three-bedroom single unit?

705.

Mr Rea: The cost of a three-bedroom, new build, semi-detached house in Belfast, including land acquisition, is around £60,000 to £65,000.

706.

Mr ONeill: What is the average transfer fee that you would give a tenant to move out?

707.

Mr Williamson: Are you referring to the trans­ferable discount?

708.

Mr ONeill: Yes.

709.

Mr Williamson: The scale of the portable discount should have the same monetary value as the discount that would apply if that tenant were permitted to buy the house. Therefore, it depends on the length of tenancy.

710.

Mr ONeill: The current maximum rate is 60%, so you will house a new tenant at 60% of the cost of supplying a new house for that tenant.

711.

Mr Williamson: It would create an additional vacancy - [Interruption.]

712.

Mr ONeill: Is it a money-saving exercise?

713.

Mr Williamson: We believe that it is, and it has the advantage of being better value for money than the alternative.

714.

Ms Gildernew: What is the alternative?

715.

Mr Williamson: The alternative is to build a new house, having found the land on which to build, and the necessary consent, and so on. Work is being carried out to find information that will answer Mr ONeill's question better. At present, we do not have the results of that, but we will share it with you when we receive it.

716.

The Chairperson: Mr Rea, what proportion of your tenants are single?

717.

Mr Rea: Around one third - which is about 1,200.

718.

Ms Gildernew: The portable discounts process is a merry-go-round, which must be expensive to administer. Would it not be easier to build another few houses, inclusive of land acquisition?

719.

Mr Rea: We would like to have the money to build them, but we are being realistic. There are ways, other than through central funding, to provide accommo­dation.

720.

Ms Gildernew: Do you compensate tenants who have to move around? Do you give them a budget to help them to move?

721.

Mr Rea: Not if they choose to do so. However, if we move them for refurbishment or redevelopment they are entitled to receive compensation.

722.

Ms Gildernew: What is the maximum com­pensation?

723.

Mr Rea: That depends on why a tenant is moving. If a tenant is moving temporarily while we renovate a property, he or she will receive around £250 to move and around £200 to move back again. If we move tenants because we plan to demolish their house in order to redevelop the area or to build a new house, and move them back in three or four years, there is a home-loss payment of £1,500 and a disturbance payment of £400.

724.

There is a minimum disturbance payment of £400. Tenants would also be entitled to a decanting payment. No payment is made to tenants who move as the result of an ordinary transfer, whereby, for example, a woman with two children wants to move into a three-bedroom house.

725.

Mr Williamson: Mr Rea is describing the present arrangements for home loss and disturbance payments. I am aware of no reason why, in a portable discount scheme, we cannot offer more simple arrangements or different levels of compensation to cover the expenses of moving.

726.

The Chairperson: We are missing the point about homelessness - packages of support should be provided. Homeless people have differing needs. Regardless of whether we adopt the portable discount or another method, we will still not be providing the package that people need. If half of your tenants are single, and around 15% to 20% are under 20 -

727.

Mr Williamson: We do not contend that the portable discount system will provide a package.

728.

The Chairperson: We need to focus on how to tackle homelessness. There is a difference between building more social housing to meet housing need and providing homeless individuals with the support that they need. There is no sense in using portable discounts to allocate someone a house, only to discover six months later that that person is homeless again. Their difficulty is not that they do not have a home, but that they are given insufficient support while they are living in social housing. The Committee is concerned about that matter. How do we prevent recurrent homelessness?

729.

Mr Rea: BIH has adopted a mechanism to deal with that within the Supporting People remit. We are advised that associations will be able to bid for funding from the Supporting People budget to prevent what is called tenancy breakdown and to prevent homeless­ness. BIH has made a bid for a community support officer, who would concentrate on supporting vulnerable tenants. That category might include young single people, the elderly and those with special needs. The objective is to assist those tenants, once they move into our accommodation, with budgeting arrangements and to settle into the community.

730.

The Chairperson: My concern about the special purchase of evacuated dwellings (SPED) scheme applies to this scheme also. SPED should not be linked to the Housing Executive or any other housing body; it is a security matter. The Housing Executive has taken respon­sibility for SPED over the years and it is now landed with it. The same applies in this case: to provide Supporting People funding for an officer or other facilities evades the issue. Those schemes will work only if they receive cross-departmental support. Health and education authorities have roles to play. It is nonsense to claim that this is simply a housing issue, and that it is the exclusive responsibility of the Department for Social Development. That Department is partly responsible for the issue, but more must be done to tackle home­lessness and to help the vulnerable. That is the Committee's view.

731.

Thank you very much.

MINUTES OF EVIDENCE

Thursday 28 February 2002

Members present:

Mr Cobain (Chairperson)

Ms Gildernew (Deputy Chairperson)

Mr G Kelly

Mr ONeill

Mr Tierney

Mr S Wilson

Witnesses:

Ms F Boyle       )

Mr F Lynn       )                       Simon Community

Ms C O'Bryan  )

732.

The Chairperson: I will begin our homelessness inquiry session by welcoming the representatives of the Simon Community, Ms Carol O'Bryan, Ms Fiona Boyle and Mr Feargal Lynn. Ms O'Bryan will introduce their submission.

733.

Ms O'Bryan: Thank you for inviting us to make this presentation, which I will lead. Fiona Boyle is our research and development director and has been with the Simon Community for seven years. Feargal Lynn is the director of accommodation and resettlement for our regional projects, which will be of interest to those who are concerned with rural issues. Mr Lynn has been with the Simon Community for 10 years, and so has knowledge and expertise within the team. I understand that the information pack has been distributed to you, so I shall go through the submission in the order that items appear in the pack.

734.

The Simon Community has been in existence for 30 years. During that time we have sought to assist Northern Ireland society by making provision for, and understanding, the needs of homeless people. Through that work we have sought not only to provide accommo­dation and other services but also to influence Government policy and public attitudes.

735.

Unfortunately, 30 years on, homelessness is on the increase in Northern Ireland. The figures for 2000-01 indicate that there were over 12,500 homeless house­holds. In the information pack the figures for your own constituencies are detailed. Those 12,500 homeless households equates to 22,000 adults and children. That is the equivalent of the population of a town the size of Coleraine or Newry, to put it in perspective.

736.

During the same period, 4,000 individuals approached the organisation. The Simon Community works with those who present as single homeless people. We were able to house 1,200 of them, 50% of whom were young people under 25 years of age. Sixty per cent of those people had a rural address of origin. When we looked at this on a United Kingdom basis, we discovered that the incidence of homelessness in Northern Ireland equates to 1 in 81 of our population in that year, and is 50% greater than the figure for Great Britain.

737.

To make sense of the arrangements that we have in place, it is necessary to link those back to the causes of homelessness. Through our own research programmes, we have identified four main causes of homelessness - structural, institutional, relationship and personal. Flowing from each of those causes are societal factors.

738.

Within structural homelessness, there are factors such as access to the housing market and affordability. Poverty and unemployment exacerbate those factors. Moving on to what we call the "triggers", we focus on particular issues for individuals. If one is in a financial crisis or has high levels of debt, it will be even more difficult to break into the housing market. That leads an organisation to ask what prevention measures are available and what arrangements it needs to have in place. For each of the causes there are factors and personal triggers, and they in turn reflect the arrangements that are in place.

739.

It is important to highlight the social exclusion elements of homelessness. It is well recognised that homelessness is possibly the most prominent example of social exclusion in society.

740.

How do the measures of prevention, which I will outline in more detail later, help break into the cycle of homelessness? We believe that the cycle contains four main elements. The first element is an obvious one - having no home. We believe that responsibility for that matter falls clearly within the Department for Social Development's remit. The second element is poor health; the third is employment prospects; and the fourth is finance.

741.

However, each of those categories includes many multifaceted issues. For example, without an address, one is highly unlikely to be able to open a bank account, which in turn leads to financial exclusion. Therefore, we must dig deeper into each of those categories in order to get to grips with the issues that homeless people face.

742.

It would be easy for us to become swamped by the levels of homelessness and the nature of homeless people's needs. However, we believe that the current arrangements go some way to meet those needs. The main provision in our legislation is the Housing (Northern Ireland) Order 1988. Under that legislation, over 12,500 households, or 51%, were assessed as being full-duty applicants. One could imagine that those house­holders would have received an acceptable standard of care and services, and had access to accommodation. Unfortunately, that is not always the case.

743.

What happens to the remaining 49% who do not receive full-duty applicant status? It is at that point that organisations such as ours offer the assistance and advice that those individuals need, as well as offering that assistance to some of the individuals who form part of the 51%.

744.

There are four different types of intervention. The first is prevention, which within the Simon Community is divided into two levels, primary and secondary. We consider primary prevention to be within the Department of Education's remit, and we are developing partnerships and education programmes with the Department that will be delivered in post-primary schools.

745.

Secondary prevention involves preparing homeless people for independent living. Once they have moved into their own accommodation, we seek to provide tenancy support so that they will not become homeless again. Unfortunately, people do become homeless again, and services must be developed to stop that spiral of homelessness. Working with re-presenters is therefore highly important.

746.

Under the housing support intervention approach, our organisation first undertakes an assessment of needs for the 4,000 people who come to us, and we provide them with advice and information about their options and, indeed, advise them whether the Simon Community is an option for them. We have a support plan in place for those who are placed in our accommo­dation, but our work does not stop there. Emergency accommodation is important, but it would be unfair to the individual, and to society, if that were the only service that we offered.

747.

We have developed a three-stage approach to the housing needs of homeless people. First, through the emergency provision in our hostels; secondly, in our move-on flats, which give people the opportunity to practise independent living, and thirdly, we help them with the transition from living in our accommodation to living in social rented or private rented sector accommodation.

748.

We have been particularly keen to develop a relationship with the private rented sector to afford opportunities for people to be housed in decent accommo­dation, and to support them in that. Sometimes it is the only option.

749.

There are several barriers to accessing temporary and permanent housing. For example, there is no temporary provision in County Fermanagh. The provision to the west of the River Bann is poor, with the exception of Derry city. There is a lack of affordable and accessible permanent accommodation. The waiting lists are long and they are getting longer. It is even more difficult for single people and people under the age of 25 to find accommodation. That problem is compounded by the common selection scheme, and the way in which homelessness is weighted - or, indeed, not weighted - by that initiative.

750.

There are four elements to the personal support that we provide. First, I re-emphasise the importance of helping individuals to find, make and keep a home. We should not stop at simply finding a home for someone; we must help them to make it a place of their own, and to keep it like that. That falls under the heading of "supporting people".

751.

Secondly, some homeless people also have health and social care needs, and we are working with the Department of Health, Social Services and Public Safety and other agencies to meet those needs. Those relationships are in the development stages.

752.

Thirdly, we mentioned the "no job" element of the homelessness cycle. Preparation for employment is an important part of our work. We have been talking with the Department for Employment and Learning about its initiative on employability and long-term unemployment, and how homelessness fits into that.

753.

Finally, community liaison is an important element that is sometimes overlooked. One aspect of that is that most of the people that we work with will have come from a community, which they may wish to return to. The second aspect is the fact that our houses are based in communities. Sometimes the relationship with that community is tense, and sometimes it is benevolent. Dealing with those relationships is an important part of our work.

754.

With regard to the resettlements that the Simon Community offers, I have already referred to the support plans and the prevention of tenancy breakdown. I would particularly like to highlight one of our self-help group initiatives, which involves ex-residents meeting to support one another in their own tenancies. They look to each other for help, and receive mutual support. A spin-off of that initiative is the support that the ex-­residents give to current residents. That in turn helps them to build up the courage and confidence to move on.

755.

That is a general overview of our arrangements. At the beginning of the presentation, I mentioned the fact that part of our job is to influence policy. In May last year, we launched our report, 'An Agenda for Action', which was supported by several people in this room and other MLAs. The agenda sets out our priorities for solving the problem of homelessness. I will not go through the document in detail at this stage, but I draw your attention to the fact that the pack contains the full paper, which gives the details on the agenda.

756.

That is the extent of the problem, and those are the arrangements that the Simon Community offers. However, significant pieces are missing, which can be seen on three levels. First and foremost, strategic input is required from the Department for Social Development. We are aware that a housing Bill is likely to be announced in the near future. The Bill is an excellent opportunity to make provision for addressing the needs of homeless people by extending the age-related discretion on priority need.

757.

That would be for young people, 16- and 17- year-olds, but also for older people. Our research informs us about some of the dreadful situations that people over 50 years of age face in Northern Ireland when they are in need of temporary accommodation. An authoritative code of guidance is required to ensure that the legislation is earthed in practice, because that does not appear to be the case at the moment. Also, the right to review should be contained in the Bill.

758.

Other strategic input is in relation to the new-build programme. Our figures show that over the past three years, even with a new-build programme apparently sitting at 1,500 units, the social rented sector has been reduced overall by 2%. That is a worrying figure, especially because single-person households are growing. With regard to the approach to house sales policy, we are suggesting either a passported or differentiated policy.

759.

We urge support for the Northern Ireland Housing Executive homelessness strategy, which was out for consultation last year. We are awaiting the outcome at the end of March.

760.

At an operational level, the development of understanding in the Housing Executive at district level would make life easier for homeless providers and homeless people, as would changes to the common selection scheme that I referred to earlier.

761.

There have been discussions about the impact of the transitional housing benefits scheme and what will follow on from "supporting people". We still have some time to get that right, which is important.

762.

Homeless people have complex needs. The Programme for Government upholds the concept of joined-up thinking, so we are looking for joined-up solutions. The New TSN initiative and the promoting social inclusion targets might be an opportunity to effect a change for the better for the homeless population.

763.

Our figures highlight that homelessness in Northern Ireland is 50% higher than in Great Britain because of the structure of our housing market, and there is especially limited access for single people. Homelessness is more than just a roof, and the housing Bill provides us with an opportunity to make a difference.

764.

Mr S Wilson: You mentioned the number of re-presenters. Having had the opportunity to visit one of the Simon Community's houses and see the work that goes on to build up the confidence of many people who have sad and harrowing stories to tell, I was amazed at their optimism, especially after what they have gone through. However, that must evaporate once they leave, because there is a high level of re-presenters. What percentage of the people whom you deal with are re-presenters, and how quickly do they re-present?

765.

You mentioned the extension of age discretion for priority need. We appreciate the fact that some young people may have difficulties that cause them to leave home. If there were an extension of the age-­related discretion, how would you ensure that you did not encourage young people to leave home? That could become an anti-family policy, if that were the case. Young people may present themselves more often because they do not have the necessary maturity or support from the family home. Is that to be encouraged?

766.

Ms Boyle: About a quarter of the people who come to the Simon Community have previously stayed with us or they have stayed in other hostels. One out of four people come back into the homeless cycle, which demonstrates the complexity of homelessness. It is a difficult cycle to break, and it highlights the issue of tenancy readiness. When people are resettled they may not be ready for a tenancy. When they move on they may feel isolated, they may not be living in their chosen area or they may not have the skills to live independently. Those are some of the reasons that people re-present. I cannot comment today on how quickly people come back. However, it varies depending on the underlying trigger for homelessness.

767.

Mr Lynn: With regard to encouraging an anti-family policy, our hostels are not a pleasant environment for a young person because there are rules, regulations, expectations from management and staff, commitments that we expect from young people and also the general hostel environment. Our statistics are encouraging in that they demonstrate that 10% of young people who stayed with us last year returned to their families. An additional 3% moved on or returned to friends. Therefore, 13% of admissions returned to their families. There would be demands for additional support services and packages for young people living in our accommodation or accessing our accommodation. The priority status should be broadened to include that younger age group, and that would ensure the success of a young person's tenancy. There would be additional support packages and requirements for those young people to move on successfully.

768.

The Chairperson: Is the main cause for young people presenting themselves as homeless due to a breakdown in the family relationship?

769.

Mr Lynn: The main reason is family breakdown, relationship breakdown and young people who leave care and come through social services contacts.

770.

Mr G Kelly: You mentioned the extension of the discretion in both ways.

771.

Ms Boyle: Recently we have been working on a research project on older homelessness. People who are 50 to 60 years old are not automatically taken to be in priority need, and nor do they fall easily into some of the social services categories, unless they have a physical or mental disability. However, if a person has been homeless for some years and has reached that age category, they are vulnerable and in priority need. The Simon Community proposes that there could be discretion for people in that age group who are in priority need.

772.

Mr G Kelly: It is widely accepted that homelessn­ess must be an interdepartmental issue, as opposed to resting solely with the Department for Social Dev­elopment. You said that a partnership with the Department of Education and the Department of Health, Social Services and Public Safety is being developed. What stage is that at? What does it mean for both cases?

773.

Ms Boyle: Over the past five years, the Simon Community has developed a relationship with the Department of Education through EU Peace funding. Half the people who approach the Simon Community are young; one in five are aged 16, 17 or 18. Therefore, the Simon Community thought that it was important to go to schools to try to break that cycle, and make young people take off their rose-tinted spectacles.

774.

The first initiative with the Department of Education was the development of a CD-ROM, Outhouse, which went to every post-primary school in Northern Ireland. It is based on the curriculum and it touches on several curriculum subjects, including home economics and English. Therefore, its capacity to teach skills for independent living and to teach young people about homelessness is broad.

775.

The Simon Community has further developed its work with young people with the establishment of Outspoken, which is a peer education group. Young homeless people are trained to go to schools and tell their peers how life really would be if they were homeless.

776.

A more recent development is that the Simon Community is drafting parts of the citizenship module of the curriculum on homelessness for the Department of Education.

777.

Mr Lynn: Several exploratory partnerships have been established. The Simon Community recently responded to the Department of Health, Social Services and Public Safety's Invest in Health programme on issues of mental health promotion and the mental health and well-being of homeless people. Our Larne and Coleraine units are working with the Northern Health and Social Services Board, the Causeway Trust and the Homefirst Community Trust to dispel the myths about teenage pregnancy in those board areas. A member of the Simon Community's senior staff represents it on the Northern Ireland Drugs Strategy. We hope that that will help in responding to the issues of drugs and pregnancy.

778.

The Chairperson: Are the majority of the 50-year-olds and 60-year-olds that you mentioned considered long-term or repeat homeless?

779.

Ms Boyle: Of our 1,200 residents last year, 15% were aged 50 to 60. Therefore, they tend to be long-term or repeat homeless.

780.

The Chairperson: If the Simon Community did not exist, would those people be institutionalised?

781.

Ms Boyle: It is important to realise that some people cannot be resettled, and there may be a need for longer-term accommodation.

782.

The Chairperson: Such people are more likely to be in that age group.

783.

Mr ONeill: Do you think that the existing definition of homelessness is adequate? You clearly have doubts, because a lot of people are waiting to be housed. How do you define homelessness? It has been discussed before, but it may be of benefit to mention it today.

784.

Ms Boyle mentioned "tenancy readiness", which impacts slightly on Mr Kelly's question. What needs to be put in place to ensure tenancy readiness for the people to whom she referred?

785.

Ms Boyle: The Housing (Northern Ireland) Order 1988 defines homelessness and talks about priority need and intentionality. Last year, of those who presented to the Housing Executive as homeless, 51% were full-duty applicants and in the priority need category, and of the remaining 49%, some were viewed as homeless but not in priority need, that is intentionally homeless. A homeless person must overcome a complex interconnection of hurdles.

786.

When a person comes to us, we assess his needs to determine whether he is homeless, and it is important to state that individuals who clearly are not homeless do not take us in. Our definition is wider than that of the legislation - it does not consider single people to be in priority need, but single people come to us.

787.

Mr Lynn: We rule on tenancy readiness once we have responded to the needs identified at assessment. An individual may present to us as homeless and cite financial, health or employment reasons for not remaining in a tenancy long-term. When we have assessed his housing history and identified why he cannot remain long-term in tenancy, we seek to address effectively, with other voluntary and statutory agencies, the reasons for that person's coming to us. Once we have effectively addressed those reasons and put appropriate support packages in place, we then have the confidence to assist that individual to move to his own tenancy.

788.

The Southern Health and Social Services Board's children's planning group has proposed that social services be the lead agency when assessing a homeless 16- to 18- year old. That responds to the family-orientated approach, but where an agency such as that works in partnership with a group such as ours, we can identify when an individual's tenancy is ready and ensure that his needs are met effectively. He will not be left as vulnerable as when he initially presented.

789.

Mr ONeill: It is interesting that Mr Lynn picked that example: the Committee was impressed before with information that it got on that scheme. The Simon Community is a major player in homelessness, and the Committee has seen many presentations so it knows that the problem is complex one that agencies and support groups work hard to deal with. Sometimes we get the impression, to put it bluntly, that they all work on their own patches rather than together, which sometimes results in gaps - in the centre of Belfast, for instance, some homeless people had to help themselves.

790.

There is a difference between a reasonableness test that, by and large, is at a lower level than what we as an organisation say is needed to run something and a realistic level, and there is currently a gap in the funding, and that must be understood before we go anywhere. There is already a shortfall, and with the move into the new funding regime in April 2003, our assessment is that the gap will increase because of the competition with the supporting people funds.

791.

The Chairperson: On supporting people, what criteria is the Housing Executive using? Are they written down?

792.

Ms O'Bryan: We have not received any written criteria. We were told that if our housing management element exceeds £60 per week, it would not be deemed acceptable, but that was not put in writing.

793.

Ms Gildernew: How much?

794.

Ms O'Bryan: £60.

795.

The Chairperson: If we are going to make financial decisions, it is important for the Committee to see those criteria. That is not to say that the Committee supports having an open chequebook: everyone wants money spent, but we also want value for money. Mr ONeill's comments about ensuring that there is no duplication and that people are dealing with the causes of homelessness and about competition between organisations are important. We must see the criteria by which people -

796.

Mr S Wilson: I want to get an idea of the figure per head. How many places does the £1·8 million that the Simon Community currently gets from housing benefit support?

797.

Ms O'Bryan: That supports 300 bed spaces every night of the year.

798.

Ms Gildernew: Thank you for the presentation. What is the extent of hidden homelessness west of the Bann? We have some figures, but often they do not show the real need that exists in a rural community. What are the main provisions for tackling homelessness in rural communities? Should there be an increase in social housing, or what practical suggestions could we make?

799.

Can you elaborate on what the Southern Board is doing about young people leaving care? Is the Southern Board suggesting that 16- to 17-year olds should be considered to be in priority need, yet that is not the policy of the Housing Executive? Is that right? Would you say that renovation and replacement grants have also helped to decrease homelessness in rural areas?

800.

Ms Boyle: Obviously Northern Ireland is a rural community - 39% of the population lives in rural areas. The Housing Executive's figures indicate several areas where there have been significant increases in homelessness. It is difficult to measure rural homelessnessbecause people come to a town to present. It is difficult to look behind that and know where they came from. I can give a couple of examples. Last year there was a 33% increase in homelessness in Magherafelt; Coleraine had a 52% increase; and Ballymena a 135% increase. Those towns have significant rural hinterlands, so homelessness is not just an urban problem.

801.

To reiterate Ms O'Bryan's point earlier, 60% of those who come to us have either come directly from a rural area or have moved to a city and then presented as homeless. We assessed that by their next of kin, area of origin or last known address. When we examined the figures we were surprised, because they were much higher than we had thought.

802.

With regard to dealing with the problem, we have looked at places such as Enniskillen, where there is significant homelessness. However, it is not feasible to develop a capital project with 20 or 30 bed spaces, because there would not be enough demand to sustain it. There are several other rural approaches, for example, the Foyer movement, throughout the UK whereby training and employment services are taken to homelessyoung people in the private rented sector, including rural areas. Our organisation wants to examine that, and the Housing Executive has embarked on rural homelessness research with its report 'Places for People'.

803.

The Chairperson: Can you explain what the Foyer project is for the record?

804.

Ms Boyle: The Foyer is a European concept that came to the UK in the early 1990s to provide accommo­dation for young homeless people together with employ­ment and training under one roof. The idea is to tackle all the barriers, such as having no job, money or a home, together.

805.

Ms Gildernew: Can you give us examples of those projects?

806.

Ms Boyle: Certainly. There are four in Northern Ireland. The first was the Belfast Foyer, which was developed by the Simon Community. It has 42 bedsits, is open to 17-to-25-year olds and has a high success rate in helping young people who come to it, about threequarters of whom have no qualifications on arrival - three quarters do have qualifications and training when they leave.

807.

Ms Gildernew: You said that there were four projects; what about the others?

808.

Ms Boyle: There is one in north Belfast, which is run by Flax Housing Association Ltd. There is one in Derry, run by North and West Housing Association Ltd, and there is student accommodation at Mount Zion House in Lurgan.

809.

Mr S Wilson: Can I follow up on that -

810.

Ms Gildernew: The rest of my question has not been answered yet.

811.

Mr S Wilson: May I just follow up on that before we lose it? Given that the economies of scale are probably greater in a Foyer-type project, how do you envisage that being applied to rural homelessness?

812.

Ms Boyle: There is an example in Devon and Cornwall, where the population is scattered and isolated. Employment and training services are moved around literally in a bus. The staff go out in that bus, and in each small town there may be three- or four-bed unit for young homeless people. There are no 30-bed units, but there is a range of smaller units. That is a possible option, which could operate in the private rented sector.

813.

Mr Lynn: In relation to the Southern Health and Social Services Board's response to young people leaving care at 16 or 17, the children's services planning group has submitted a proposal for a subcommittee specifically to deal with that age group. There was also a suggestion that each trust should have an officer appointed to co-ordinate the response to dealing with young care leavers who could co-ordinate the housing, social and other issues associated with leaving care. It proposed also forming a long-term strategy to respond to young homelessness people.

814.

The Chairperson: There is a growing emphasis on single people. Society is changing, as is the way in which housing is provided for single people. The majority of homeless people are single. It is clear that many different issues concerning homelessness must be tackled, and the only way to do that, as Eamon ONeill said, is by taking the strategic view. The Foyer Movement is one example of that.

815.

Ms Boyle: The Simon Community recognises that the percentage of singles has grown from 19% in 1981 to 26% now, and it continues to increase in both the younger and the older age groups. For us the main need is for accommodation built for singles. Much of the Housing Executive and housing association stock is family accommodation, which was built when that was needed. There is now a need for more single person accommodation, balanced against the need for lifetime homes.

816.

With regard to singles accessing accommodation, we return to what is affordable. In the private rented sector the housing benefit regulations require those under 25 to have a rent deposit and a guarantor. That is not always possible for the younger age group of singles.

817.

Ms O'Bryan: In respect of strategy, we made reference earlier to new TSN and joined-up thinking. Currently, although the Simon Community can engage with individual Departments, it has not been possible to bring two or three Departments together to discuss the issues. A mechanism to facilitate that would be of benefit, even with the Foyer movement, given that Social Development and Employment and Learning are key partners in that. Bringing them together to appreciate the worth of those projects and their con­tribution would be good.

818.

There are also "intra-departmental issues". Returning to the earlier comment on transitional housing benefit and supporting people, a recent research paper by the Department of Work and Pensions in England states that there is a need for joined-up thinking among providers, housing benefit administrators and the supporting people team in the equivalent of our Housing Executive. The issue is therefore both intra-departmental and inter-departmental. If you are not aware of that report, I suggest that we provide you with its findings.

819.

Mr S Wilson: I return to single weighting and follow what Ms Boyle said about the increasing number of single homeless people and the proportion of singles on the waiting list. Approximately two-thirds of cases over the last six months were people in families, already in accommodation, but sometimes living with other family members - perhaps parents with their sons or daughters - or families who were in houses which were too small, causing a strain on family relationships, which can lead to the break up of marriages. Is there not a danger that if more weighting is given to homeless single people, leaving aside whether that encourages people to leave home, the waiting list becomes skewed towards people who may have other options and away from families who are in poor, overcrowded accommodation or sharing with other family members thus creating social problems and resentment among people in overcrowded accommo­dationwho are being disadvantaged because of the change in housing allocation procedure?

820.

Ms Boyle: In addition to 12,000 families on the homelessness waiting list, around 10,500 families are on the housing stress waiting list. How those two lists interconnect raises problems, and more new accommo­dation is needed to get people off them. Members of three generations living in one house or a house's not being big enough raise the matter of hidden home­lessness, of people who do not present as homeless and housing stressed.

821.

They also highlight homeless children. Last year, we did some work in the north-west with the Housing Executive. A census was carried out of families judged to be full-duty applicants but who, because of the waiting list - particularly in Derry city - were waitingfor up to two years to get out of temporary accommo­dation, bed-and-breakfast accommodation and hostels, into their own houses. On one day, 383 children were living in temporary accommodation so great is the pressure on that list. We can look at how the selection scheme weights different people, but the need for more accommodation remains.

822.

Mr G Kelly: Given what you said about tenancy readiness and new build, is there a problem in complexes with many single-bedroom apartments? I do not want to use the phrase "dumping ground", but could they become places where homeless people are housed?

823.

You said that the problem is multi-faceted, and we agree. Without being overly general, there can be problems with anti-social behaviour, alcoholism or whatever. Does the Simon Community ensure that everyone who must be housed does not go to the same place? If 10 flats in the one complex became available, does the relationship that a person has with the community affect whether he is housed in that complex?

824.

Mr Lynn: We are concerned about the allocation of tenancies to some people whom we would accom­modate in particular addresses. If someone applies for housing and indicates an area of choice, demand for that area will determine whether the person is allocated a tenancy. If someone is offered a tenancy in a street, area or address where he feels vulnerable or at risk, legislation dictates that he must take that address or be offered another choice.

825.

Two reasonable offers are made. If a person does not take either, his options are limited for several years. That causes us concern, and we urge wider choice and greater negotiation at district level to enable us to offer more appropriate addresses for some of our residents. One success factor that ensures tenancy sustainability is social networks. If we can locate individuals in areas where they have strong social networks, that helps us to ensure the sustainability of that tenancy.

826.

The Chairperson: Thank you very much. It was very interesting.

MINUTES OF EVIDENCE

Tuesday 5 March 2002

Members present:

Mr Cobain (Chairperson)

Mr Hamilton

Mr B Hutchinson

Mr G Kelly

Mr ONeill

Mr M Robinson

Mr S Wilson

Witnesses:

Ms J Hunter                        )                        Housing Rights Service

Ms N McCrudden                        )

827.

The Chairperson: I welcome the director of the Housing Rights Services, Janet Hunter, and the policy and communication co-ordinator, Nicola McCrudden.

828.

Ms Hunter: I will give you some background about our organisation. The Housing Rights Service aims to prevent homelessness and eradicate poor housing conditions in Northern Ireland. We provide several services to help achieve that. One of our core services is providing advice, advocacy and representation to people who are homeless or in housing need.

829.

Last year we provided advice to about 5,800 people. Approximately 60% were people with issues associated with homelessness or who were being threatened with homelessness. Much of our work is with homeless people, and we are pleased to have the opportunity to tell the Committee about the experiences of our clients, the problems they face and give some suggestions for improving their lot.

830.

We wish to focus on two phases that the process needs to follow. The first concerns those steps that require immediate legislative action - issues we would like to see addressed in the housing Bill. We know, having seen the proposed Bill, that none of them have been included. There will be a consultation period, and we hope that by the end of that period some provisions could be included. The second phase is more long-term; it is about putting together a strategy for a long-term response to the problem of homelessness in Northern Ireland.

831.

Many enquiries to our organisation concern homelessness and a significant number are about the current homelessness legislation contained in the Housing (Northern Ireland) Order 1988. There are problems with interpretation of the legislation and what protectionit affords to homeless people.

832.

I wish to concentrate on four main areas. First, existing legislation does not provide adequate protection for young people who become homeless through no fault of their own. We are thinking mainly of 16- and 17-year-olds but also of some care leavers in the 18-to-21 age group. I know that the Committee has already taken evidence on this issue so it will not be entirely new to members. Therefore I will not focus too much on it. I certainly do not want to reiterate what other people have said. I would just endorse the view that there is a need for increased protection. There is no automatic priority for this age group under housing legislation or the relevant children's legislation.

833.

Accommodation options available to 16- to 17- year-olds are very limited. They do not have the same level of income or benefits as older people, and they do not have the capacity to form a legal contract. Therefore the private rented sector is simply not an option for them. They are only permitted access to the common waiting list in exceptional circumstances so it is very difficult for them to be allocated a tenancy in the social housing sector. Owner occupation is not a realistic option either. They face particular problems in securing accommodation.

834.

There is also a very urgent need to ensure that any provision in the housing Bill to extend priority need to young people be closely allied to the provisions in the Children (Leaving Care) Bill, which, I understand, was announced yesterday. As we were not sure which stage the Children (Leaving Care) Bill would be at, we have couched our recommendations in broad terms but with the caveat that any amendments to the housing legislation should be complementary to that Bill. So we are talking about 16- to 17-year-olds who have not been in care and also some 18- to 21-year-olds who have been in care but who would not be covered by the provisions of the Children (Leaving Care) Bill.

835.

Another point is that, until recently, young people in England, Scotland and Wales were in a similar position and experienced similar difficulties. However, the situation there has now been addressed and legislation is currently going through in all of these areas to give priority need to this group. Our young people should not be disadvantaged. They are entitled to the same legal assistance and rights as young people living in other areas.

836.

Our clients regularly present with another problem - that of variations in the quality of assessment and the decision-making process. There is considerable scope for interpretation and the use of discretion in making decisions under the current homelessness legislation. That can and does lead to inconsistency and lack of uniformity in the process. Unfortunately, the outcome for the homeless person can depend upon what office that person presents to.

837.

In Scotland, England and Wales the homelessness legislation is supplemented by a detailed code of guidance that provides additional interpretation on the legislation. That code must be consulted when local authorities in these areas are making decisions or carrying out assessments under the legislation. A code of guidance does not exist in Northern Ireland. We believe that one should be introduced, as it would lead to a better, fairer and more consistent approach to the decision-making process. Research in other areas has suggested that the introduction of the code has had exactly that impact.

838.

Our clients' experience is that the existing process for reviewing adverse homeless decisions is inadequate. As you are probably aware, there is a limited uptake of appeals in Northern Ireland. Last year, over 6,000 people were refused full duty applicant status and only about 300 of those applied to have that decision reviewed. There are, of course, a number of reasons why that may be the case, but I would concur with the findings of the Ombudsman's survey, which stated that most people in Northern Ireland did not bother to challenge public sector decisions because they felt there was no point.

839.

In Northern Ireland there is no statutory right to appeal a decision made under the homelessness legislation. That is a very significant point as that is quite unlike the situation for appealing decisions in other areas of social welfare law. Entitlement to a benefit and the level of that benefit, for example, can be appealed to an independent and impartial tribunal. It is also different to the situation for homeless people in England, Scotland and Wales. In Northern Ireland the Housing Executive has the discretion and power to decide whether to review a decision and what format that review should take.

840.

Housing Executive policy allows an applicant to submit an appeal but that does not constitute a formal hearing, as neither the applicant nor a representative can present oral evidence. That is a fundamental right. It should not be a matter of organisational policy whether or not an appeal against a decision can be made under the legislation. The current Housing Executive process is essentially an internal administrative review process where senior officers review the decisions made by officers at local level. A recent Court of Appeal case in England confirmed that an internal administrative review does not comply with article 6.1 of the Human Rights Act 1998 which states that

"In the determination of his civil rights and obligations or of any criminal charge against him, everyone is entitled to a fair and public hearing within a reasonable time by an independent and impartial tribunal established by law."

841.

We would like to see a statutory right of review introduced in Northern Ireland with regulations to govern its format, which should comply with the Human Rights Act 1998 by introducing an external and independent element.

842.

A significant amount of our work is about preventing homelessness - working with people, for example, who are under threat of eviction by landlords or who are experiencing difficulties with repaying mortgages. There is no current strategic approach to preventing homelessness in Northern Ireland.

843.

In England, Scotland and Wales there is a legislative requirement to produce a strategy to prevent and alleviate homelessness. There is also a duty on social services to assist in the strategy and to take account of it when discharging their functions. This is a very important element. There is no such statutory requirement in Northern Ireland, and the traditional approach taken here has been to focus on alleviating homelessness after it has occurred. This approach has been confirmed by research recently undertaken on behalf of the Housing Executive, which confirmed that expenditure in Northern Ireland is very low compared with other similar-sized authorities in England or Scotland.

844.

In England, Scotland and Wales, the key role of advice in preventing homelessness is also formally recognised and is a statutory requirement. There is no such statutory requirement in Northern Ireland. Our legislation only provides for advice and assistance to be given to people if they are actually found to be homeless. If people present themselves as homeless, but the decision is that they are not, then they are not entitled to advice and assistance. We are very concerned about access to advice and about the quality and level of advice being provided.

845.

I have explained the legislative changes we would like to see take place and which are necessary to improve the service for our clients. However, we are very aware that whilst these changes are necessary, homelessness cannot be solved through legislative changealone. As the Minister said yesterday, it also requires a lot of funding.

846.

The problem cannot be solved by any single agency, such as the Housing Executive, by the voluntary sector, or even by the Committee for Social Development, although it is appropriate that the Committee should take the lead.

847.

It is important to recognise that Government policies and programmes can adversely impact on the level of homelessness. This is a very complex problem, as I am sure members are aware, having sat through many similar sessions. It is multidimensional, and it merits very detailed and considered response. We need to develop a better understanding of the causes and nature of homelessness and the issues associated with it to develop appropriate responses and to form a firm base of evidence on which to plan long-term action.

848.

In Scotland the approach has been to establish a cross-departmental multi-agency task force. We need that type of approach in Northern Ireland. We recommend the model adopted by the Scottish task force, and in the papers which we have circulated to members we have provided some of its recommendations. The task force has been sitting for two-and-a-half years; therefore it is not an overnight sensation. It recently recommended 59 action points, which have been endorsed by the Scottish Executive, and a further homelessness Bill will be tabled this autumn. They have also committed a significant level of funding to implement the recommendations.

849.

We appreciate that we are asking for a fairly substantial undertaking, but the stakes are high. As the Housing Executive said in its document 'Homelessness Strategy and Services Review', which has recently been published,

"Homelessness does represent a very significant social problem and it impacts to a disproportionate extent in Northern Ireland".

850.

The price of getting this wrong is quite high, but the payback for getting it right is high, not just for the individuals and families concerned but for the Assembly as regards effectively targeting social need. In our experience, homelessness is one of the most extreme forms of social exclusion in Northern Ireland today. That is all that I want to say. I could go on endlessly, but that would not be pleasurable for either of us.

851.

The Chairperson: Before we start, you mentioned that the Minister had said something about resources being committed to homelessness.

852.

Ms Hunter: The Minister made a statement yesterday, which was reported in the paper. In it, he said that it is not legislative change, but funding, that is required to solve the homelessness problem.

853.

The Chairperson: Who said that?

854.

Ms McCrudden: It was reported in 'The Irish News'.

855.

The Chairperson: Which Minister was it quoting?

856.

Ms Hunter: The paper quoted the Minister for Social Development. I want to highlight that we agree with the Minister that we need the funding but that we also need legislative change.

857.

The Chairperson: We will read that article with interest.

858.

Mr S Wilson: Numerous organisations have appeared before the Committee over the past weeks, all of which have trained staff and resources. I imagine that there are scores of organisations that we have not contacted, because we had to narrow it down. You are not the first person to express concern about this matter, and it surprises me that time and time again we hear that that there is still - and I use your words - concern over the current quality and level of advice provided. Homelessness is one area that I would have thought that there was no shortage of advice on. Two organisations have appeared before the Committee every week, telling us about the expertise that they bring to the problem and the resources that they throw at it. However, we still come to such conclusions. Could you elaborate on the problem? First, who is giving this poor quality advice? Secondly, what additional outlets for advice are needed?

859.

Ms Hunter: One of the problems is that there is no system to regulate the quality of advice that is being provided. Therefore it is difficult to know what advice is being provided, or what the quality of it is; no one is monitoring the advice.

860.

Mr S Wilson: You have gone beyond that, however. You said that not only are there questions to be answered but also that you are concerned about the advice that is being provided.

861.

Ms Hunter: Yes, we are concerned about the quality of the advice. We do not know if it is of good quality or of poor quality. There are no monitoring arrangements. We would like a system to regulate the advice that is being provided.

862.

Ms McCrudden: The Housing Executive has a statutory duty, under the homelessness legislation, to provide advice and assistance to people. We are concerned that people who come to us for help often say that they have been handed a booklet because they are not considered to be homeless under the legislation.

863.

Ms Hunter: There is a distinction to be made between information and advice. An organisation could be considered to be providing information simply by handing a person a booklet, but that is not adequate if a person is presenting as homeless.

864.

The Chairperson: Are you talking about the advice that the Housing Executive provides?

865.

Ms Hunter: I am talking about the advice and assistance that is required to be given under statutory legislation. One of the points that we are trying to make is that the Housing Executive does not have a general duty to provide advice and assistance. Therefore, unsurprisingly, the matter is not a particularly high priority.

866.

The Chairperson: I may have interpreted him incorrectly, but I think that Sammy Wilson was making a point about advice being given on a wider basis.

867.

Ms Hunter: Yes. We are talking about providing statutory, general advice.

868.

Mr ONeill: As regards advice, and more particularly, practical support, is it the case that there are many disparate providers and that there is no coherent system? Is there a big gap to be filled? Would a strategy adequately cover that, or would it require more than just a strategy?

869.

Ms Hunter: A strategic approach to the provision of housing advice would be a significant step forward. A couple of years ago the Housing Executive carried out research into housing advice provision in Northern Ireland, and it concluded just that. While there was quite a lot of housing advice available, no one was pulling it together. There was a need to plug the gaps and to adopt a strategic approach, so that would be a positive step. However, that has to be complemented by training, monitoring and regulation systems to ensure that the quality of advice is maintained.

870.

Mr ONeill: You have had a detailed look at the issue of children leaving care. What provisions would you like to see in the legislation - and you drew attention to this specifically in your evidence - to complement the housing Bill, if we get that right, that might ensure that the young homeless that you referred to would be catered for more adequately, particularly 16- to 17-year-olds.

871.

Ms McCrudden: As far as I know, proposals under the Bill will mirror those in England. It will not be placing statutory duty on social services to provide accommodation for all care leavers, or for all 16- and 17-year-olds. However, there will be some specific circumstances under which they will be required to provide accommodation.

872.

We want to ensure that young people, who have not been in care and are not covered by proposals in the Children (Leaving Care) Bill, will not fall through the safety-net provision. We want to see that group of young people protected under the homeless legislation.

873.

Ms Hunter: It is useful that both Bills are being considered at the same time, as it gives us an opportunity to ensure those provisions.

874.

Mr ONeill: Just for the record, and to amplify this properly, how do you see the two pieces of legislation integrating? What can we provide as a result of legislation in the way of advice notes or codes of practice?

875.

Ms Hunter: We are talking about putting in place a legislative framework that will ensure that 16- and 17-year-olds who become homeless through no fault of their own will be entitled to accommodation. That is what we are trying to achieve. Is that what you are asking?

876.

Mr ONeill: Yes, but is that it, or is there also a provision needed in legislation for some kind of support, whether from social services or others? Is that a legislative matter, or is it advice or a code of practice or a code of behaviour note that is required?

877.

Ms Hunter: This is a good example of when legislation alone is not enough. Legislation has to be the basis, but it is not enough. Our understanding of the Children (Leaving Care) Bill is that it will provide support for young people leaving care and other children for whom there is a continued duty of care. There is also a need for a support package for those young people who have not been in care. We do not think that needs legislative protection. However, it is something that needs to be considered, and it is the sort of issue that should be considered if a task force were to be set up. It is also an issue that the Housing Executive has considered to some extent in the 'Homelessness Strategy and Services Review', which is out at the moment. We do not think that it needs to be in the housing legislation.

878.

The Chairperson: Sixteen to 17-year-olds make up around 25% of the homelessness statistics? Is that right?

879.

Ms McCrudden: According to the official statistics from the Housing Executive, 326 16- and 17-year-olds presented as homeless last year.

880.

The Chairperson: The figure we have relates to 16- to 25-year-olds.

881.

Ms Hunter: That is a much broader age group. They would account for about one quarter.

882.

The Chairperson: Kids aged 16 to 17 would clearly need additional support.

883.

Ms Hunter: That is exactly the point we were making.

884.

The Chairperson: When we have talked to other witnesses another issue arose, which is that homelessness is a cross-departmental matter. The Committee is concerned that this issue is not just identified as a homelessness or housing issue because it is not. When 16- and 17-year-old children live on their own without support, it is only a matter of time before they become homeless again and re-present.

885.

Ms Hunter: That is right and could be said about many people who become homeless. They need other support packages, and the Department cannot tackle the problem alone. That is one of the reasons why there should be a cross-departmental task force to look at homelessness. The problem does not exist in isolation and cannot be cured by a housing solution alone.

886.

The Chairperson: The review of the appeals procedures is important to people who have presented as homeless but whose cases the Housing Executive has considered and decided do not qualify. How do you envisage the independent appeals procedure would work?

887.

Ms Hunter: That procedure could work as a two-stage process with the first stage conducted internally, perhaps by the Housing Centre, and the second stage, if that were necessary, by an external independent tribunal. Our view is that that format should be prescribed so that there would be a right to an oral hearing, et cetera.

888.

The Chairperson: The criteria for homelessness would have to be prescribed in the housing Bill. For a tribunal to take a view it would be necessary for criteria to be established. We have the factor of discretion here, but if that is taken out of the system, then a clear definition of the criteria of homelessness is required.

889.

Ms Hunter: We are talking about the right to review a decision made under the homelessness legislation. That decision could relate to eligibility for assistance, what duties are owed, and under the discharge of those duties, suitability of accommodation offered. Those are the provisions we would be looking for. A code of guidance would also be important because that is something that the tribunal could have regard to when considering whether the appropriate decision had been reached.

890.

The Chairperson: That would include rights for 16- and 17-year-olds that they do not currently have.

891.

Ms Hunter: That is correct.

892.

The Chairperson: Thank you very much.

MINUTES OF EVIDENCE

Tuesday 5 March 2002

Members present:

Mr Cobain (Chairperson)

Mr Hamilton

Mr B Hutchinson

Mr G Kelly

Mr ONeill

Mr M Robinson

Mr S Wilson

Witnesses:

Paddy McGettigan,                         Project Manager, Open Door
                        Housing Association, Strabane

893.

The Chairperson: I welcome Paddy McGettigan from Open Door Housing Association, Strabane. The Committee wishes to obtain a view of rural homelessness as well as urban homelessness, and we thank you for coming here today at short notice.

894.

Mr McGettigan: I will be offering the Committee a practitioner's viewpoint, and giving an overview of what we have in Strabane, and how I feel that it is a model for dealing with homelessness.

895.

Open Door Housing Association developed a project in Strabane in May 2000. It was initially developed as 38 flats for people who were single and homeless, and special needs were not taken into account. As the project developed it became clear that other more diverseneeds in the community needed to be addressed, including mental health issues and the need for temporary accom­modation. The use of the flats was changed and staffing levels were increased to provide 24-hour cover. We currently have 10 flats for people with long-term severe mental health problems; 10 flats for vulnerable people, for whatever reason - it may be lesser mental health problems, age, or a variety of things; 10 flats for resettlingsingle homeless people and eight temporary flats for people presenting as homeless.

896.

Referrals are taken from the Northern Ireland Housing Executive, social services, the leaving and aftercare teams, the Probation Board, and self-referrals are taken out-of-hours as well. We have also taken referrals through agencies such as the Police Service of Northern Ireland. Referrals are received from a broad area, including Strabane, Derry/Londonderry, Omagh, Limavady, Cookstown, Enniskillen and Armagh. We have even had cross-border referrals, which in most cases we have not been able to take because of the funding arrangements.

897.

Experience suggests that problems such as literacy, mental health, low self-esteem and addictions are endemic in the homeless community, and we have put several measures in place to address these problems. Everyone receives a needs assessment, which ensures that they are treated individually. Having identified individual needs we address them by identifying a key worker who will work with the people, guiding them through options in training and employment opportunities, and permanent housing in the community.

898.

It is made clear to each person referred that commitment to the development programme is part of the conditions for securing accommodation in the project, since we believe that a holistic approach to the problems that have led to homelessness is the only effective way of addressing it. The programme is tailored to address physical and mental health problems, alcohol and drug dependency, cooking and domestic skills, budgetingskills and a range of other necessary skills for independent living. Staff work closely with social work teams, leaving and aftercare teams and mental health teams in addition to the Northern Ireland Housing Executive and other agencies. We have achieved very effective results, and follow-up checks indicate that after resettlement no one has returned to accommodation for the homeless.

899.

As to how well the arrangements address the issues; initially the project was for referrals over the age of 18, but almost immediately it became apparent that there was a substantial need for accommodation for young people - in particular young care leavers. Between April 2001 and the beginning of March 2002 the project received 115 referrals from various sources - a quarter being care leavers. The referrals were for the eight temporary units only, and not for any of the other flats. There are approximately 67 people on the common selection scheme list for our permanent flats. Approx­imately 18 referrals were made to the scheme through the Housing Executive, and we were able to accept and help 26 referrals in total. Our main problem is the lack of beds, which leads to the silting up of the facilities because we do not have appropriate move-on accom­modation. The lack of move-on facilities means that the temporary accommodation has lost its service potential.

900.

To specifically address the needs of young care leavers we have a working relationship with Foyle Health and Social Services Trust leaving and aftercare team to develop a unique project that will be based in the Water­side area of Derry/Londonderry. This project will be a high-tolerance facility designed to deal with six young care leavers, and will accommodate people whose needs are so great that they cannot be accepted for Dillon Court. Open Door staff will manage the project, and it will be staffed 24 hours a day. We will be fully backed-up by the leaving and aftercare team who will also provide ongoing training in issues relating to young care leavers. Unfortunately services have had to be withdrawn from another trust that has been unable to provide the type of support that we need for out-of-hour services at Dillon Court. After discussion and writing to that trust we felt we had no choice but to remove them.

901.

The problems of homelessness are addressed to a very high standard, and this has placed great demand on our services as you can see from the area that we deal with. We are making a difference to those with whom we can work, but the problem is that we cannot work with enough. Existing arrangements for dealing with homelessness are not working in rural areas. The lack of facilities means that when someone becomes homeless they are often moved out of their community. Apart from losing their home or their family contacts they also lose that community contact.

902.

The majority of young people and other homeless people referred to us from organisations such as the Simon Community or Foyle Homeless Action and Advice Service would have been referred on to hostel accom­modation in Derry. The Strabane Association for the Temporary Homeless has been there longer than we have, but they specialise in dealing with women and young mothers.

903.

Professionals often turn young people away who have been made homeless due to family breakdown, and I am talking from our experience here. It becomes a pass-the-parcel game between social work teams and the Housing Executive because no one will take responsibility for dealing with that young person. As a last resort they are sent to us, and more often than not we cannot deal with them because we do not have the accommodation. There is an inability to provide joint working relationships within statutory responsibility. Lack of other facilities makes it difficult to work to resolve the causes of homelessness, even when accommodation can be found for referrals. Training facilities for employ­ment and training opportunities are lacking in small rural communities. Even if they can get permanent accommodation it is difficult for us to teach them the skills to help them fend for themselves.

904.

Move-on accommodation is not available to any great extent, and the majority of places offered in the private rented sector are often in poor condition. Rents are set at levels that are unaffordable, especially for those under 25 years of age. In some cases I would contend that management policies used in temporary accommodation contributes to the increase in homeless­ness. Some hostel accommodation will take people regardless of their situation, which makes it too easy. For instance, a 16 or 17-year-old girl who has fallen out with her mother on a Friday night because she is not allowed to something would present herself at Dillon Court, and if we are stupid enough to take her, she becomes a homelessstatistic. Most temporary accommodation in other hostels is a shared room, which increases the dangers for vulnerable people. Dillon Court is unique in that it offers the same self- contained fully furnished accommodation to temporary residents as it offers to permanent residents.

905.

From our experience in rural communities the true extent of homelessness is unknown. Many homeless people, sleep on sofas and floors of family and friends, and often do not present themselves to the Housing Executive. When people do seek help from the Housing Executive, they are given inappropriate information or no information. Application forms are often handed to applicants who are advised to complete and return them, and they can often be disadvantaged if they do not know how to represent themselves properly.

906.

Those who use temporary accommodation move from accommodation to accommodation, taking up beds between Derry, Belfast and various other areas, and we should consider how to limit the mobility of such people. They add to the statistics because different hostels send in the same figures for the same person. They never make the transition to permanent settled living because they never stay long enough in one place to learn the skillsto put down roots. Some residents are using temporary accommodation for permanent residence. One hostel in Derry has residents of nigh on 10 years' standing, and therefore it is clearly not temporary accommodation. This keeps temporary accommodation in permanent use, removing that unit from the system and giving a false account of temporary accommodation units in an area.

907.

I should like to list some of the changes that I feel are necessary. A duty should be placed on the Housing Executive to provide temporary housing for people under the age of 18 until their circumstances can be fully investigated. This should also involve joint working protocols with social services. Priority need category in the legislation should be extended to 16- and 18-year-olds solely because of their age. There must be more appropriate accommodation for young people and vulnerable adults. Rents in the private rented sector should either be capped or be subject to some form of regulation to ensure fair prices for accommodation. Many landlords receive housing benefit but charge up to £25 on top of that for a single-bed flat or bedsit. There should be more effective monitoring of all temporary units to ensure that maximum use is being made of the resource, and that proper resettlement and ongoing support are provided. That will probably happen when the Supporting People programme is introduced.

(Acting Chairperson, Mr ONeill in the Chair.)

908.

More should be done to establish what the main causes of homelessness are, and resources should be targeted at prevention. For example, many young people are made homeless through family breakdown. Perhaps it would be appropriate to use more parenting programmes or intervention programmes to relieve the pressures before they reach crisis point. In many cases families in danger of self-destructing are known to social services, however, resources are either limited or at a level where intervention is not good enough. In some cases planned moves to temporary accommodation would allow space for a healing process to take place within family relationships, and this can only happen if people are allowed to remain in their community. It is necessary to have an amalgamation of the roles in housing and social work roles similar to those in England and Scotland. Homelessness is currently seen as a housing problem. Whereas the provision of accommodation will remove the immediate problem of a place to live, it will not necessarily resolve the underlying problems, and there lies the risk of repeat homelessness.

909.

There is a need for more advice to be made readily available in a way that people will understand. There should be some form of legislation or protocol that ensures that statutory, voluntary, and non-voluntary organisations co-operate fully to establish good working practices, which will ensure accountability and effective use of resources. In some cases there is still a territorial battle between housing associations and other organisations, and there is no need for that as it cuts down the effectiveness of their service. There should be adequate provision within each council area to meet the needs of the homeless community in that area. An independent body should research the provision, as much of the research in Northern Ireland is carried out by organisations that are stakeholders in homeless provision.

910.

Finances have to be made available to ensure the permanence of accommodation already in existence and the ongoing development of new accommodation to meet change. Education, even at secondary school level, should be undertaken as a preventative strategy for homelessness. In the same way that social security benefits are linked to training, we should look at ways of linking housing to training - placing responsibility of the individual to do everything possible to ensure that he maximises his chances of keeping permanent accommodation and minimises the risk of re-entering the homeless community.

911.

Rural provision of temporary accommodation should be subsidised to ensure its survival. Small temp­orary units with two, three or four beds should be integrated into larger permanent schemes, thus making them more cost-effective. The cost of the units could be spread across the cost of other units, and the main units in those facilities could sustain staff levels. Financial assistance should be readily available to ensure that training units are available in temporary accommodation schemes. There should be minimum working requirements for each staff member who works with homeless or vul­nerable people. It should also be compulsory for all accommodation providers to carry out stringent back­ground checks on staff through the PECS register. Currently that is not being carried out, as there are cases where people who have not been vetted are dealing with vulnerable people. There should be greater use made of floating support models, especially within rural commun­ities, to provide ongoing support to enable people to remain within the community.

912.

Many organisations are trying to be innovative to develop services that will meet the current needs as well as the changing needs of the homeless community. In some cases housing associations and homeless organisations are more intent on their own survival than addressing the needs of the users. As they currently operate, many organisations will not be able to meet the requirements under the Supporting People initiative, and some organisations may even miss out. The long-term sustainability of some organisations will be affected if they do not have their submissions for Supporting People finances implemented in time. At the same time, some larger organisations are losing the whole ethos of dealing with homelessness. They are now more concerned with maximising income and developing and increasing their capacity.

913.

In the past, the building costs of Open Door were funded 100% by the Department for Social Develop­ment. Special needs management allowance has been claimed, and rental costs have been set to cover staffing costs. In April 2003 there will be a change and support costs will be retrieved through the Supporting People fund. Future developments will also have their support costs met by Supporting People. However, there are already problems with sourcing finances for costs associated with implementing transitional housing benefit and Supporting People.

914.

The new project we are about to open in Derry/ Londonderry ran into difficulties and money was deducted from us through the transitional housing benefit scheme. That has been sorted out, but it is still unclear, from a Supporting People and the transitional housing benefit perspective, how organisations should make their applications, and what will and will not attract money. We need more information on those issues, as they will affect long-term homelessness.

915.

The Acting Chairperson: I know you were concerned about transient members of the homeless community, and I hope you have no objections about transient Chairpersons. I have taken over the Chair by prior arrangement with the Chairperson. I particularly want to thank you because I know that the Committee were anxious to hear a rural view and your presentation was put together at short notice. The Committee is thankful to you for that.

916.

You made a number of interesting comments and some frank observations about existing arrangements. I would like to begin with a question or two about staffing. When you spoke about starting up your project, you talked about identifying needs. What standard of training does your staff require to be able to cope with some of the difficulties of analysing and identifying needs, especially among young homeless people? You also said that you received referrals from rural areas and you mentioned several towns. How do you get referrals from rural towns and districts?

917.

Mr McGettigan: The majority would be self- referrals - people would actually turn up at the scheme.

918.

The Acting Chairperson: You also said that everyone who came in had to have a commitment to the project. What happens if you do not get that?

919.

Mr McGettigan: We are anxious to give everybody a chance. However, there is a high demand on the service, and we are faced with a choice - do we accept someone who will have to stay in the project because they do not have the skills to move out into the community, or do we try and work with those homeless people who want to move out to the community and fend for themselves? We would never turn anyone away if we have accom­modation available, unless there are certain circumstances that would endanger staff or other residents.

920.

However, when giving people the opportunity to take up accommodation, we encourage them to work with us. In most cases, when they see what they can do and the opportunities that can come their way, they will work with us. It is not simply a matter of filling a flat. Anybody can provide accommodation, but tackling home­lessness is a different issue, and that is what we are trying to do.

921.

The Acting Chairperson: What about the staff- training aspect?

922.

Mr McGettigan: Regarding staff training, wage levels have a direct relationship to qualifications. Even people with more formal qualifications, such as myself, are not paid well. I spent two years in England, because I could not get appropriate work here at a level that suited me after obtaining a degree in housing manage­ment and policy. Most project workers have a minimum of one year's experience working with homeless peopleor similar special-needs groups, which could mean working with young care leavers, but it may also mean working with the elderly or people with learning disabilities.

923.

In general, we find that when we advertise for staff, we poach people from other organisations leaving them with the problem of finding staff. The same happens with the staff trained by our organisation. The majority of people are trained on the job. A project worker's starting salary at Dillon Court is about £9,000, which is a ridiculous amount given the responsibilities that that person will have. We have one project worker on duty at night to deal with 38 people, and we are carrying out a social work role. The worker gets an additional sleepover allowance of £26 per night, which is paid separately, but it is still wholly unacceptable.

924.

In Strabane, we are faced with the situation that the mental health team finish work at 5.00 pm and we have no backup. Doctors will not visit the scheme; they ask us to send people to the clinic. Many matters have implications for the homeless project, but they are not solely concerning housing or homelessness. The scheme is lacking in services. As I said, I have had to withdraw services from one of the trusts, because the out-of-hourssupport that we were promised was not there. For example, we phoned a duty social worker to find out about services for a young care leaver who was subject to a care order, and we were told that nothing could be done. As the previous witnesses said, this is not a matter that the Committee will be able to deal with in isolation, because it includes health issues and other matters. It will be necessary to get social work and housing staff together and get them to work together.

925.

Mr S Wilson: I want to thank you for the frankness of your presentation; it was refreshing, because not all the people who give evidence are as frank as that.

926.

I would like to go back to what you said at the start about the size of the unit in Strabane, which is for 38 people. You also mentioned the need to amalgamate some of the smaller units to get economies of scale. Some other organisations that gave evidence to the Committee said that a problem with rural homelessness is that small-scale units must deal with it. A normal sized unit is ineffective, because the homeless people are scattered all over the place. Therefore, a problem arose because it was unfeasible to provide scattered facilities. Does your experience show that if a unit were centralised,people who become homeless in small hamlets and villages would be prepared to travel to it?

927.

I was slightly confused by another point that you made. You said that if a girl fell out with her mother on a Friday night, and presented as homeless, a degree of discretion would be used. On the other hand, there should be a statutory requirement to provide temporary accommodation for 16 year olds. Are those statements contradictory? If a 16-year-old girl rowed with her parents because they would not let her go out to get drunk on a Friday night, and presented herself as homeless, would there not be a requirement to deal with her? By not dealing with those young people, are you perhaps creating unnecessary homeless statistics?

928.

Mr McGettigan: I was referring to the fact that questions are not asked and checks are not made in some hostel accommodation. The first thing I would ask a 16-year-old girl for would be her mother's address or telephone number. I would make contact with the girl's mother to explain that she has presented herself as homeless and to establish whether she has a bed for the night. We have taken that approach in some cases, resulting in the person returning home.

929.

When we opened Dillon Court, I had two objectives. We would not fill beds because we needed rent, and we would not increase the level of homelessness in the area by accommodating people, who otherwise would not have presented as homeless. At 8.00pm on a Friday night that girl would have been sent to stay with a relative before being returned to her mother in the morning, because she could not present herself as homeless to either the Housing Executive or another unit. Such a girl would come to Dillon Court now because she may have had a friend who had stayed there. The friend may have told her that it is a good place to stay because you are given your own flat. We must be careful that cases such as that do not increase statistics, and in some ways they do.

930.

Mr S Wilson: I admire the way in which you deal with such cases; it is a common-sense approach. If there were a statutory duty, would every organisation deal with cases in that way? Would there be a tendency for organisations to decide that if a person presents as homeless, they have a duty to provide accommodation, which would add to the homelessness problem? As some stakeholders want to receive extra funding, their agenda may be to ensure that there is an increase in homeless statistics.

931.

My second question referred to the size of the units. Are you content that people will travel to centralised units, or do you feel that there is a need for scattered units?

932.

Mr McGettigan: Scattered units will run into difficulties because they will not be full all the time. If the units are not occupied, staff cannot be kept in place - it would not be cost effective. We want to provide for the best and worst case scenarios. If there is a staffed unit for the elderly in Castlederg - an area with allocation problems - two of the flats could be used as temporary accommodation. Use it for a specific type of temporary accommodation, perhaps for elderly temporary accom­modation, but at least use it, rather than having permanent flats used for permanent residents only. Even in Strabane, at Dillon Court, during the summer there are months when people stop referring themselves in as great a number. They must go on holiday or something. During certain months, we may have a week where we have two flats available. If our scheme was not the size that it is, that could cause problems. In certain areas that situation may occur frequently.

933.

Considering the economies of scale, the natural thing to say is to forget about what you are going to lose in temporary accommodation, and concentrate on keeping the other flats fully occupied. Keep your voids down in those, and use the money that you are getting from the full occupancy of your permanent accommodation to cover the losses on your temporary accommodation. It works for us. Dillon Court is a success financially, but we are not looking to make money.

934.

Mr S Wilson: With regard to reaching the potentially homeless or the homeless in outlying areas, is there a hindrance because they must come into the town?

935.

Mr McGettigan: No, we have people who have come from all over the district. They see the quality of accommodation and the support services. They may be dislodged from their immediate community, but they are still in their generalised community. They are not moved to Derry, which most people in the Strabane area would see as foreign parts. It would be like taking someone from 30 miles outside of Belfast and putting him or her in a hostel in the centre of Belfast - it is a whole different way of life. At least Strabane is at a pace that most people can cope with. Omagh is close enough. Referrals from further away tend to be people who are transient anyway and would not be from a particular community. That has not been so much of a trauma for people.

936.

To touch on the bit about the statutory respons­ibility, I am not necessarily saying that there should be a statutory responsibility for that person to be accommodated out of hours. If the Housing Executive receives someone in its office during the day, there should be a statutory responsibility for it to do all that it can to find out the background of that person and to ensure that social services are involved. If necessary, the Housing Executive should provide them with temporary accommodation until all measures can be put in place to ensure that that person is safe.

937.

There are 16- and 17-year-olds out there on their own, and they are not safe. We have been asked recently to consider taking referrals from one of the care homes for people as young as 14 years of age. It is getting worse, and that is the direction that things are going.

938.

Mr G Kelly: I do not want to lean too heavily on the example, but your last comment was on the area that I was talking about. To use the example, what happens if the young person says that they do not want to give you their parents' phone number?

939.

Mr McGettigan: If it were a matter of their safety, we would take them in.

940.

Mr G Kelly: Returning to the statutory duty, does that mean that you would put that young person up - who may or may not show outward signs of distress - and then investigate? If they requested that you do not approach their parents, would you automatically go to the statutory bodies, or what would you do?

941.

Mr McGettigan: Our main point of contact out of hours would be a duty social worker. I will be frank again; I have upset everybody else, so I may as well upset the duty social workers. In my experience, their out-of-hours service is worse than useless.

942.

Mr G Kelly: You are being very frank.

943.

Mr McGettigan: There is no point giving you information simply to massage other people's egos.

944.

Mr G Kelly: Somebody who has been abused or who is in a terrible situation may present as homeless, but his or her difficult circumstances may not be immediately apparent. Do those people have a statutory right to be housed? Are you saying that those people should be housed, at least until more can be found out about their situation?

945.

Mr McGettigan: It should be the statutory responsibility of the Housing Executive to ensure that young people who present themselves within office hours are put in contact with social services, and are housed as a protective measure, until the reasons for their homelessness become apparent.

946.

Mr G Kelly: Why do you not also deal with those people who present themselves out-of-hours?

947.

Mr McGettigan: Our problem with out-of-hours provision is that we do not have the necessary back-up, hence my comments about the duty social-work team. Current provision is ineffective, therefore the issue must be dealt with by health boards and housing organisations.

948.

Mr G Kelly: You touched on how difficult it is for statistics to reflect hidden homelessness, and the problems encountered in trying to improve homeless people's prospects. You also mentioned limiting mobility - can you explain what you mean by that, and what can be done about it?

949.

Mr McGettigan: Better communication between organisations is needed. Some of the bigger homeless organisations have accommodation in Derry and Belfast, and know that people frequently transfer from hostel to hostel. That is fine if they transfer for specific reasons, for example, family commitments. However, many people transfer for inappropriate reasons. Some people are well known within the housing field for continually transferring from hostel to hostel throughout the Province - and I would not like to guess at their reasons for doing so.

950.

I am trying to show the link between co-operation among those who work in the housing field and provision of accommodation for homeless people. Just as un­employed people are required to try and find employment, homeless people should be required to try and acquire the skills necessary to ensure that they have the best possible chance of staying in the community in which they have been resettled, through the provision of services that are provided within the temporary accommodation sector. That should also include ongoing support from the organisations that are dealing with homelessness and the floating support models.

951.

The Acting Chairperson: How many people have you provided accommodation for over the years? When you say that no homeless people have returned to your organisation, and that it has 26 spaces, what do you mean by that? Do you mean one tranche of 26 people, or several tranches?

952.

Mr McGettigan: We have eight units, so between April 2001 and the beginning of March, we have been able to house only 26 people. We have resettled 18 people in the past year and none have re-presented as homeless.

953.

The Acting Chairperson: Has the organisation been up and running for only one year?

954.

Mr McGettigan: No, it was set up in May 2000. The project was initially opened for permanent accommodation in May, and was reopened in June 2000 for temporary accommodation. There was a lead-in period when we had accommodation available. However, as word got around to social work teams and the various agencies that we were providing a service that was not being provided in other areas, the number of referrals started to increase. That increase began about September of last year, and it has spiralled ever since. Although we keep a record of referral figures, we can no longer keep pace with the referrals because they are coming through so fast. If we get a referral that we cannot handle, we pass it on to another agency - either the Strabane Association for the Temporary Homeless (SATH), or more often, to an agency in Derry.

955.

The Acting Chairperson: Thank you very much for your contribution. The Committee will meet to make recommendations vis-à-vis the Housing Bill, and no doubt you will know the outcome of those meetings in due course. Perhaps you may see some of the things you have been talking about.

MINUTES OF EVIDENCE

Tuesday 12 March 2002

Members present:

Mr Cobain (Chairperson)

Mr Hamilton

Mr O'Connor

Mr ONeill

Mr M Robinson

Witnesses:

Mr T McCann                        )

Ms R Rowledge                        )                        Council for the Homeless

Ms N Toman                        )                        (Northern Ireland)

956.

The Chairperson: I would like to welcome Mr Tom McCann, Ms Ricky Rowledge and Ms Nuala Toman from the Council for the Homeless Northern Ireland.

957.

Ms Rowledge: My name is Ricky Rowledge, and I am director of the Council for the Homeless Northern Ireland. Tom McCann, who is our chairman, has 25 years experience of managing the Ormeau Centre in Belfast, and Nuala Toman is our policy and information officer.

958.

I would like to thank you for giving us the opportunity to present evidence. We recognise that it has been a long haul since your inquiry began in December. We are the umbrella organisation that represents the more than 85 groups in the sector, and we provide information, support and networking advice. We would like to summarise some of the points that have been raised in previous evidence sessions; Ms Toman will focus on a few areas that have come up regularly over the past few months, and I would like to talk through the three areas on which the inquiry focuses.

959.

As you have been told, homelessness figures for Northern Ireland is the highest in the UK, which is surprising. We are fortunate that we do not have as many people living on the streets as elsewhere in the UK. We have over 12,000 homeless households this year, and those range from one person to a large family that present as homeless to the Housing Executive. Many people also go directly to temporary accom­modation projects, either because they do not know that they can access assistance from the Housing Executive, or they feel that that assistance would not help them find temporary accommodation, so they find it themselves.

960.

Homelessness has increased by 15·5% in the past year. That jump is significant - perhaps because the selection scheme and Housing Executive assessments under that scheme have changed. There is also a small increase due to the civil disturbance in Northern Ireland. On the whole, the figure of 11,000 to 12,000 homeless households per year is static, and that is a substantial number.

961.

That figure for Northern Ireland is made up of those who present to the Housing Executive, approxi­mately 50% of whom are single. Single homeless people have more difficulty accessing permanent accom­modation. We must also realise that occupancy in temporary accommodation projects is around 90%. Many projects that take statistical evidence - such as the Simon Community - turn away twice as many people as they can accommodate, because there is no room for them. Therefore homelessness is a big problem.

962.

We were asked to examine relevant legislation in the rest of the UK. In many ways, we lag behind the homelessness strategies of other devolved Governments. However, legislative positions vary in the UK. The National Assembly for Wales has extended priority groups. The Welsh Government have taken particular interest in rough sleepers and produced recommendations as to how they will deal with that problem.

963.

The Scottish Parliament has been the most progressive of all the legislatures. It set up a task force that worked for two years before publishing its final report last week. That report has some radical proposals for dealing with homelessness, and I will discuss some of those recommendations later. It is expected that a new Homelessness Bill will be enacted in Westminster in 2002, and that Bill moves away from the Housing Act 1996 on which our new Housing Bill may be modelled. In Westminster they realise that that Act had severe limitations and exacerbated homelessness in many areas. We do not want to fall into that trap - we want to learn from their mistakes and ensure that we expand our duty to homeless people.

964.

A task force to look at homelessness has been set up in the South of Ireland. Local authorities now have a legislative duty to produce homelessness strategies. They have not got far with that, and their services are not of the same calibre as ours, but they realise that it takes legislation and the power of Government to ensure that Departments and statutory and voluntary agencies do something about homelessness.

965.

We will make some recommendations on the basis of that introduction. First, we should look closely at what has been done in Scotland, where emphasis was placed on the prevention of homelessness. The factors that lead to homelessness will not change significantly in our current social climate. Family and relationship breakdown and domestic violence will always cause difficulties, as will poverty and unemploy­ment, which can lead to repossession and eviction. There will always be people who suffer from mental health problems and addiction problems. Those factors will not change, so we must consider a strategic way to address the problems. We are not doing well in that area at present.

966.

Many people are spending long periods in temporary accommodation. They receive only minimal support, and the necessary resources are not available to enable them to move into the community. Perhaps we should follow the Scottish model, by bringing together an interdepartmental working group to consider the matter. This cannot simply be the responsibility of the Department for Social Development. Homelessness is not only a housing problem. Homelessness requires the involvement of every Department. We must examine ways in which we can encourage homeless people into employment, and ensure that they have the same access to healthcare services as everyone else. There should be a panoply of support services. This approach will be more cost-effective in the long term.

967.

A more strategic use could be made of existing resources in the sector, but additional funding will also be needed. Surveys that were conducted in England show that if good support services are provided for people when they move back into permanent accommo­dation, a great deal of money is saved on voids and the prevention of the inappropriate use of health services. People will be steered towards the appropriate existing services in the statutory sector. In the long term, this approach will be more cost-effective.

968.

We welcome the fact that the Housing Executive has been proactive in putting together a homeless strategy, without a legislative duty to do so. However, we argue that a legislative duty should be imposed. At present, the chief executive and staff of the Housing Executive are very sympathetic to homelessness. However, staff will be replaced over time. Homeless people deserve to be protected, irrespective of who is in power in statutory agencies. Therefore, we ask the Committee to take responsibility for imposing a legislative duty on the Housing Executive to produce a strategy. That strategy should be monitored, either by the Department of Social Development or an interdepart­mental working group, to ensure that the recommen­dations are followed. Again, finance is needed to underpin that and to realise the strategy. As in Scotland, we are looking for finance over the next 10 years, rather than tomorrow.

969.

Emphasis must be placed on the prevention of homelessness, which means that we must address education in schools. Young people need to learn independent living skills. Many young people move out of home, not because they are experiencing difficulties, but because they are at an age where they are ready to live independently in the community. However, they do not receive the education that will assist them to do that. Therefore, many are evicted from their properties and have to stay in temporary accommodation.

970.

We will be considering the introduction of debt counselling and mediation services for family breakdowns and neighbour disputes. A range of services should be introduced to help prevent homelessness. Prevention is the main way to reduce homelessness statistics. We also need to ensure a variety of options for those who will never be able to live in unsupported accommodation. Some people will never be able to live completely independently, so we must ensure that appropriate services are provided for them.

971.

Ms Toman: First, I will address what happens to people who are classified as being non-statutory homeless or who do not achieve full-duty applicant status from the Housing Executive. Such people are entitled to advice and assistance from the Housing Executive, but not necessarily to accommodation. They normally self-present to the voluntary sector, remain in unsuitable housing, or take a variety of unsuitable temporary measures such as sleeping on friends' floors or sleeping rough.

972.

Youth homelessness in Northern Ireland is an issue that the Committee has heard about many times already, and it has increased by 15% in the past four years. The Housing Executive has acknowledged that the 16-25 age group has specific identifiable needs. Only about 25% of 16-25 year-olds are given full-duty applicant status, which means that the remaining 75% have to move towards non-statutory methods.

973.

There is a clear distinction between the young homeless person and the "traditional" or "visible" homeless person that is often portrayed in the media. Specific difficulties are encountered when trying to accommodate the needs of young homeless people in non-specialist hostels. It would obviously be more beneficial for young people to be housed in accommo­dation specifically suited to their needs.

974.

Many young homeless people come from a care background. It is estimated that between 20% and 40% of young care leavers may become homeless. It is vital that the Department of Health, Social Services and Public Safety takes that on board, and investigates the housing problems they face. We must also consider that young people have multiple and complex needs that must be catered for by adequate service provision and support and that, in some instances, effective resettlement is difficult to achieve.

975.

We recommend that the priority need category in the current legislation be extended to include 16-18 year-olds on the grounds of age. We also advocate the provision of proper and adequate support services and ask for the removal of benefit restrictions for under-25s. In addition, we ask for the provision of specially designed emergency and permanent accommodation for young homeless people, the regulation of the private-rented sector and that all hostels be resourced to provide single rooms.

976.

Little research has been carried out into the issues facing homeless women in Northern Ireland. In 2000-2001, 2,062 female applicants presented them­selves as homeless to the Housing Executive. That figure has increased by 23% since 1991. There are 53 voluntarysector hostels in Northern Ireland, 17 of which are women-only hostels, and 15 of which are specifically for women and children who have experienced domestic violence or abuse. A total of 636 applicants stated on their application form that they had become homeless because of domestic violence. At the risk of generalising, if we presume that all those applicants are female, the needs of over 1,400 women fell outside the remit of services provided by Women's Aid.

977.

It is worth noting the risk of violence and abuse that homeless women are exposed to when staying in mixed hostels. Simon Community research shows that women have highlighted the need for a safe area, privacy, the choice of shared or self-contained accommo­dation, cleanliness and the opportunity to gain life skills. Our organisation recommends the provision of specially designed emergency and permanent accommo­dation for homeless women, and the provision of information and advice services tailored for their specific needs.

978.

Rural homelessness is likely to be as prevalent as urban homelessness, but exact data on the extent of rural homelessness is extremely difficult to gather. Homeless people living in rural areas have few options, and suburbanisation has increased the cost of rural housing. Even when hostel provision exists, homeless people in rural areas may favour other options because of the stigma associated with homelessness, particularly in a small community.

979.

In 1991, the Northern Ireland Housing Executive published research on rural housing policy, which highlighted the significant problems of unfitness, lack of amenities and disrepair in rural areas. Little progress has been made since that report was published. In February this year, the Housing Executive launched a major research project that is going to focus on the issue of rural housing and homelessness. We also feel that there are things that can be done in the interim.

980.

If the social housing stock in rural areas is small, re-lets are low, or there is little stock available, rural dwellers do not necessarily put their names forward for the Housing Executive list. Therefore, that does not necessarily reflect demand. Also, the Housing Executive has said that the indication of housing stress in the waiting list form has long been inconsistent with what actually happens in rural areas.

981.

We at the Council for the Homeless recommend the development of rural outreach Housing Executive offices. We ask for a review of the housing demand/supply relationship. We press for an alteration to the traditional type of Housing Executive new build, to ensure that the housing product is seen to be both appropriate and accessible by the rural population. We also ask for the provision of specially designed emergency and permanent accommodation for young people in rural areas.

982.

We picked out several areas to indicate how far people would have to travel to access services. If you are from Ballygawley and want to access the Housing Executive, you will have to travel around 20 kilometres to Dungannon to access services. In total 342 people presented as homeless in Dungannon, but only 30% were catered for. We also considered Glenarm. People from Glenarm would have to travel approximately 15 kilometres to Larne to access services. In Larne, 232 have presented as homeless, and 31% got full-duty applicant status.

983.

Furthermore, people from Claudy would have to travel 15 kilometres to Derry for provision. The rural homeless must relocate. If they do not access services in their vicinity, they will float toward a city. It would obviously be more beneficial for them and providers if they could work closer to home.

984.

Ms Rowledge: Tom McCann is going to answer your questions and give a practitioner's point of view. I want to conclude by saying that our main recommendation is that you press for an interdepartmental structure in how to cope with homelessness. Homelessness is not just about housing. It is not just about the provision of extra housing, which we need. It involves the provision of sufficient housing and housing of the right kind. Any approach to homelessness must deal with all the elements of the picture that is homelessness today in Northern Ireland.

985.

The Chairperson: The issues have become crystallised as we have gone through this. We must focus on the departmental working group. That has come strongly through, as have all of the proposals that have been put before us.

986.

I want to ask about housing finance. We are having difficulty in breaking down the support element. The Department is being driven toward separating housing benefit and support, paying housing benefit out to organisations such as Shelter and the Simon Community and then bidding for the support costs. There are inherent dangers in that. Do you want to comment on that?

987.

Mr McCann: Breaking down the support costs and management costs has been a problem for the providers. There is a certain cost to running the Ormeau Centre, which I managed, each year. We are being asked to split that cost into support and management. The overall cost is how much it takes to run the place. Whether it is called support or management does not matter; having the money to run the project and provide services for vulnerable individuals matters to us. Basically, we are working to formulas and guidance we are receiving from the Housing Executive and other organisations in terms of the split, and the guidance is that there should be a 60:40 split.

988.

Ms Rowledge: It is of concern to our sector that while housing benefit has been demand-led, it looks as if the Supporting People Fund will be ring-fenced, which is part of the difficulty. Having worked in the area for a long time, many of us have seen what happened with the social fund. Money could be withheld at the beginning of a bid, or left over at the end, which was not necessarily distributed appropriately.

989.

Secondly, ring-fencing does not take into con­sideration any fluctuations in demand, or the development of new services. That is a major concern. Also, within that ring-fenced pot, what priority will be given to groups that provide sheltered housing - which has people with learning disabilities and mental health problems - and tackle homeless in general? If the money now in the homelessness field goes into this pot, can there be any guarantee for service providers that we will get the same amount of money?

990.

We will recommend flexibility in this. Although the basics seem to be the same in England, Scotland and Wales, it is being administered slightly differently there. It would be ideal if the Supporting People Fund were also demand-led.

991.

The timescale we are working to at present is not realistic, and we may have to look at this over the introductory period of 2003-06. Although from your point of view Supporting People will be a financial headache to administrate, it does offer scope for our sector. It gives us the opportunity to fund services that we previously have not been able to fund, such as floating support services in the community. The scheme also has very strict rules and regulations on accreditation, quality and monitoring standards, which the Council for the Homeless and our members will be glad to see. It focuses on the individual, and that is good.

992.

Mr Hamilton: Can one of you give a casework example, to show us exactly what you do?

993.

Mr McCann: I can give you dozens. We are talking about multi-complex needs, which is a growing problem in all homelessness projects. Multi-complex needs are a combination of factors such as homelessness, learning disability, offending history, health-related problems, mental illness, addiction - a whole range of combinations of those things. There is no such thing as just homelessness. There is a whole range of problems attached to it.

994.

One person I have worked with for 20 years - we will call him Jimmy - has been a street alcoholic, with a chronic addiction, over many years. In his early 20s he had a range of mental health problems. Jimmy has gone through all the systems in Northern Ireland, and in fact he became so hard to manage that he ended up in an institution in Scotland for many years. Eventually he came back to Northern Ireland and continued to sleep rough in the streets. I came across Jimmy about 20 years ago when he was barred from everywhere. He was barred from the Ormeau Centre, where I later came to work, for trying to set the place on fire. He broke in one night, got a load of files and lit a bonfire. That is the kind of behaviour we are talking about. Having said that, through working with him over the years we were able to get his drink problem under control, and provide him with accommodation. We managed to get him resettled into the community, where he stayed for three years, against all odds. Unfortunately, after three years he was intimidated out of the area.

995.

He returned to the Ormeau Centre three months ago to live in the crèche facility, which is a big room with 10 or 12 beds. The Ormeau Centre is a 33-bed unit, plus the crèche facility. After some weeks we noticed that his health was deteriorating rapidly. He lost weight and would not eat, and he complained of a lot of pain. Eventually we got him to the hospital because he was reluctant to see a doctor or go anywhere near a hospital.

996.

He was diagnosed with lung cancer. After a week he was discharged from hospital; the doctoes said that he was fit enough to look after himself and they could do nothing more for him. He was given two weeks to live, but we did not accept that. We challenged the decision and got a range of supports in such as nursing services, and we found him a room. That is Jimmy's history over the past 20 years. His family did not want to know him for many years but is now reconciled with him to the point where a sister offered to take him home with her. His sister has young children and he did not want to be a burden on her. He wanted to be in the place where he is now, which he regards as his home.

997.

Mr Hamilton: Do you have any strategy for dealing with people who are intentionally homeless?

998.

Mr McCann: If someone does not have a roof over his head, he is simply homeless as far as we concerned.

999.

Mr Hamilton: Yes, but under the legislation they are classed as being intentionally homeless.

1000.

Mr McCann: If people are homeless and without a roof over their heads, they have a range of needs. A 17-year-old girl was referred to us a couple of weeks ago as intentionally homeless. She was sleeping rough in a car outside her boyfriend's house. She had been to the Housing Executive and was regarded as intentionally homeless. She had had a row with her parents and could not go back there. She went to many hostels but, unfortunately, her boyfriend followed her and created a nuisance. She was barred from the hostels, which was why she ended up sleeping rough. In spite of a long history of abuse in the family, she was still regarded as intentionally homeless. She is now in a hostel with support from the social services and others. There is a non-molestation order against her boyfriend, and she is now, for the first time in her life, addressing her problems. However, the legislation would still class her as intentionally homeless.

1001.

Ms Rowledge: The "intentionality" clause in the new Housing Bill will be strengthened, especially in the area of anti-social behaviour. The Scottish report makes interesting reading. It says, quite rightly, that even if someone under legislation is deemed to be intentionally homeless, there is no point in moving the problem from Point A to Point B because it still remains a problem.

1002.

Scotland has different sorts of tenancies from us. If someone is deemed intentionally homeless or is evicted from his home due to anti-social behaviour, he is given a short-term Scottish tenancy. As part of that tenancy agreement, he must accept counselling to deal with whatever caused him to be intentionally homeless, for example, offending behaviour or debt.

1003.

If he accepts that programme and works appropriately, the tenancy becomes permanent. If the relationship breaks down and the mediation and support do not work, he is still guaranteed temporary accommo­dation. It is vital to recognise that no matter whether people are homeless intentionally, they are still homeless and we have to try to find them somewhere to live. It is also a good idea if, when doing that, we can tackle what caused the problem in the first place.

1004.

Mr McCann: I have another example of someone who was regarded as intentionally homeless. A few years ago we worked with a woman who had a child with mental health problems. She was asked to leave the house by the social services for the good of the child, because her behaviour was so disruptive. Her husband looked after the child, and the woman was regarded by the Housing Executive as intentionally homeless in spite of what had happened. She slept rough on the streets or stayed in hostels. She became a bag lady, and her mental health deteriorated rapidly.

1005.

The mental health services said that she did not have a mental health problem but a personality disorder, and after years of working with her, psychiatrists changed the diagnosis and began treatment. She was in hospital for six months, and when she left she was totally changed. Six months later she got her life back together and was able to return home, and she has been there now for three years. That was not a miraculous intervention - that was good work on the parts of people whose job it was to help her, and without it she would still be on the streets of Belfast where everybody would know her and say that she was quietly mad.

1006.

Mr O'Connor: You say that Scotland has an overall strategy. In considering such a strategy for us, why do you believe that the Department for Social Development (DSD) is the right Department to take on that role when you said that you want the Housing Executive to develop the strategy? Surely the Department of Health, Social Services and Public Safety, the Department of Education and the Department for Employment and Learning should all have a role to play?

1007.

You referred to my area of Glenarm and Larne and said that of 232 people who presented as homeless, 31% were granted full duty applicant status. There are over 300 voids in Larne, so there should not be a homelessness problem because there are more houses available than we can allocate to people. Given our special circumstances in Northern Ireland, how do we deal with people who do not want to live in a particular estate because one or other section of the community dominates it? This is costing the Housing Executive money, because 600 people are getting housing benefit through private landlords there.

1008.

Your submission discussed housing benefit and the fact that single people under 25 are only allowed a bedroom in shared accommodation. Is that not contrary to Section 75 of the Northern Ireland Act under which public authorities must not discriminate on the grounds of age? Can anything be done to bring that strategy into line with the legislation to prevent discrimination? For example, a mentally-ill person has a disability and should not be discriminated against on the grounds of that disability. Who leads and drives the strategy?

1009.

Ms Rowledge: The Housing Executive works to the DSD and under that Department's auspices produces the whole homelessness strategy, so while we want the Committee for Social Development to have an input into the legislation, DSD will have overall responsibility for its outworking. The Housing Executive has produced a homelessness strategy because it is the agency with statutory responsibility. It is an excellent strategy, but it will never work unless the other agencies and Departments that have, or should have, something to do with homelessness, sing from the same hymn sheet and are equally committed to it. The Housing Executive cannot drive it forward alone.

1010.

People in Scotland established a task force which almost stood as a separate Government entity. It had the right people on board - representatives from all the government agencies, whether from employment, health, social services or housing and statutory providers. When the homelessness strategy was produced, they all worked together, and everyone played his part and recognised his responsibility for part of the strategy. Do you follow my argument?

1011.

Mr O'Connor: Yes. Do you think anything can be developed through new TSN or the health action zone?

1012.

Ms Rowledge: Health is a notoriously difficult area - we could talk forever about homelessness and health, but it is not a priority in the Health Service. Even access to GPs is difficult for the homeless; they are stigmatised and do not get their citizenship rights from in the Health Service. We have been pressing, along with many of our members, for homelessness to be recognised as a priority under New TSN. That would be a start, an interdepartmental holistic focus on the problem, and we would press for that. That might be the starting point in Northern Ireland.

1013.

I cannot answer Mr O'Connor's question about vacant houses in his area, particularly Larne, where fewer people present as homeless than there are vacant houses. That is dependent on the wider political climate. There must be changes in how society views itself. However, if we are looking at that with housing and communities, that is the way forward.

1014.

Mr O'Connor: Your submission refers to the regulation of private landlords. The Housing Executive has 300 empty properties. Should, or could, housing benefit be paid only to a private landlord when other suitable accommodation was not available?

1015.

Ms Rowledge: That is a very sensible idea, but it would be very difficult to put into practice. People do not want to live in certain areas because they are afraid of intimidation, and they cannot be penalised or told that they cannot stay in privately-rented accommodation because there are vacant social properties for which it would be better to pay housing benefit.

1016.

Mr McCann: There are examples of good practice elsewhere, in Scotland, England and Wales, for instance, and a range of ideas for community safety and estate management that we can use. The Housing Executive has been creative in bringing in concierges, doing up flats, improving security and having independent areas that are closed off to residents only. A range of creative ideas can be looked at, if the money and the will are there.

1017.

Mr ONeill: Which Departments and what issues would you like to see targeted by the interdepartmental working group? You press the case dealing with 16- to 17-year-olds leaving care. Have you examined the Children (Leaving Care) Bill and what are you views on it? The presentation referred to specialist services for those with multiple needs. Can you expand on that? Did a death last week highlight the need for specialist services? Your submission also referred to the significant level of latent demand for rural housing that remains unidentified and unresolved, but you did not suggest how that should be tackled.

1018.

Ms Toman: The interdepartmental approach should include Health, Education, Employment and Learning and Social Development. All those Departments could have an impact on the lives of homeless people. We have talked about homeless action zones, which could mirror the health action zones and address the problem by combining homelessness with work on anti-social behaviour. That would be better than what is proposed in the Housing Bill, which is simply to streamline eviction. An interdepartmental approach would tackle homelessness, anti-social behaviour and resettlement and look at employability, education and health provision.

1019.

To address the identification of latent need and demand for rural housing, we proposed that the Housing Executive should establish outreach offices to deal with housing allocation and other issues relating to housing and homelessness.

1020.

Ms Rowledge: We have been commissioned by the Housing Executive to research the problem of access to rural housing. As an umbrella organisation, we will draw together a steering group of people who work on temporary accommodation in rural areas and the rural community network. Research has to be the starting point, because we know so little. We want to discover the extent of need, locate the gaps in services and make recommendations for addressing them. That research will begin this year, and we will keep everybody informed of its progress.

1021.

Mr ONeill: There are several rural housing problems to be addressed There is the matter of pride. Even people who suffer homelessness, and particularly older people, still have their pride: they do not want to let themselves down by going to a homelessness unit or housing officer. Then there are others in isolated areas with homelessness in their families that is hard to identify. I met someone living over a cattle shed with a mattress who did not see himself as homeless.

1022.

Ms Rowledge: Some of the research will be quantitative, but much will be qualitative. We will be talking to people who often have to travel long distances to temporary accommodation because of pride or because nothing else is available. We will talk about their experiences and then, perhaps, extrapolate how many are in that situation. We may never be able to tie it down though. I hope we will be able to suggest rural information sources that are less intimidating or damaging to one's pride. For example, a Citizen's Advice Bureau or the local clergy have that information. The research has not been done yet, but we will look closely at those points.

1023.

Ms Toman: I shall give an example of good practice in a rural area. I grew up in Lurgan. If someone became homeless, he was referred to Aldervale flats in Craigavon. That was not necessarily the best place to go for someone in that situation, because there was no support and it was not a particularly nice area. In recent years, a Foyer development called Mount Zion House has been available. It is located in an old convent, and people had already been using its services. People have told me that it has changed how housing and homelessness are dealt with and the community's perceptions about homeless people. That is an example of a good service.

1024.

Ms Rowledge: On the new leaving and after care Bill, the proof of the pudding will be in the eating. We were all enthusiastic about the Children Act 1995 thinking that it would give more protection to young people leaving care, who would remain in the system for longer. The Act has not been very successful, and social workers have found it difficult to manage its provisions.

1025.

Young people leaving the system who become homeless are still bouncing - as we warned that they would - between the Housing Executive and the social services. It is even more difficult for those who have not been through the care system who end up homeless. The proposal in the new Bill about key workers is encouraging. However, social workers are concerned that much of their focus will be moved from social work interventions into managing money, because they will become responsible for the budget.

1026.

The current system is failing young people. I met a gentleman this morning who runs bed-and-breakfast accommodation in north Belfast, where all the residents are young people of 15, 16 and 17 years of age who have been referred to him by the social services. He has no qualified staff. He has a great heart, but his staff have not gone through a pre-employment consultancy service (PECS) or police check because he did not know that that had to be done.

1027.

The social services 'phoned him last week about a young girl who is nearly sixteen and has been staying in the bed-and-breakfast accommodation for three months. The social services said that the money they are paying will stop on the girl's birthday and that she should go to the Housing Executive, which said that it was not responsible for her. She is back in the bed-and-breakfast accommodation. That is very common. It is not heard about and is another reason for having an interdepartmental group. There must be commitmentfrom us all to work together and deal particularly with that age group.

1028.

I do not know how the Bill will work. It is highly principled. Educating young people for independent living much earlier is excellent, but that is already happening. Foyle Trust's leaving and aftercare team has an amazing system that could be a shining example to the rest of Northern Ireland, so it has always been possible. Irrespective of the legislation, there must be good practice. Legislation and policy can be changed, but practice must also be changed.

1029.

Mr McCann: The Council for the Homeless put together a working group in 1994 that looked at mental health, addiction and other complex needs. The group comprised the two Belfast trusts, the Housing Executive and Extern. The Council for the Homeless co-ordinated the group for two years, and then the social services had to be convinced of the needs of homeless people. There were problems with getting access to GPs, psychiatric nurses and psychiatrists. Nobody would touch that client group then.

1030.

After two years, the working group raised some money and did some independent research through the health and healthcare research unit 'Don't look away'. It was published in 1996 and made a series of recom­mendations one of which was for the homeless support team, which was set up in 1998 as a year-long pilot scheme. It showed that about 200 people a year need specialist support in Belfast alone. After a year, it was regarded as extremely successful. It is now permanently funded and has been operational since. It is part of the voluntary sector because of the stigma that people feel about going to the statutory services with mental health, homelessness and addiction problems.

1031.

The team comprises two social workers, a nurse and an addiction worker. I manage it, and it liases with all the hostels and psychiatric hospitals in Belfast and any other organisation that is required. There is also an outreach service. The team is aware of John, who was mentioned earlier, and others. We try to intervene at various levels. Since then, psychiatrists, social services and other organisations take referrals from the homeless support team and offer mainstream services to that group, which was excluded for a long time.

1032.

It was good practice to use that specialist model when working with people with difficulties. One of the recommendations of the homelessness review was that that model be developed throughout Northern Ireland, and we are considering that. The review also referred to a need for support services. Creative solutions are needed to deal with multi-complex needs, and support systems must be put in place for accommodation and support services.

1033.

Ms Rowledge: We must be realistic - sometimes people go so far down the line that it is difficult to offer them any kind of help. One must take other residents and staff into consideration. To deal with a problem, we try to ensure as many intervention services as possible. Unfortunately, we sometimes find that there are people who none of us can help.

1034.

Mr ONeill: Overall, the number of people beyond help is not huge. What type of service could be put in place to cope with the changing, complex and varied problems of homelessness, and how could it best be organised? Is the Council for the Homeless best placed to lead such a service, or the Housing Executive? Is a leading force required to tackle homelessness?

1035.

Mr McCann: With regard to management, the voluntary sector is best placed to take the lead. However, an inter-agency approach involving the social services, the Housing Executive and others is needed to develop a homeless support team, and that can happen only when all the boards in Northern Ireland accept that they have responsibility for this and add it to their priorities.

1036.

Ms Rowledge: The Council for the Homeless was successful in its efforts to take the lead in this, but we also depended on having someone in the steering group with sufficient clout in the health trusts to smooth our path, help build relationships, deal with problems and ensure that the trusts encouraged social workers and psychiatrists to liaise with the voluntary sector.

1037.

Mr McCann: Initially, psychiatrists thought that they would be inundated with calls from homeless people. In the past three years, the teams have worked with 800 people in the Belfast system alone. Psychiatrists have not been swamped by any means. The team and other services pick up the work, with the support of psychiatrists and GPs to prevent clients from reaching the acute stage. Early intervention saves a lot of money.

1038.

The Chairperson: Thank you very much.

LIST OF WITNESSES WHO GAVE ORAL EVIDENCE
TO THE COMMITTEE

  Children's Law Centre

North & West Belfast Health and Social Services Trust/ Emergency Out of Hours Service

NIACRO

Chartered Institute of Housing, Northern Ireland

Shelter, Northern Ireland

Homefirst Community Trust, Antrim

Craigavon and Banbridge Community Health and Social Services Trust

Northern Ireland Housing Executive

Northern Ireland Federation of Housing Associations

Simon Community, Northern Ireland

Housing Rights Service

Paddy McGettigan, Open Door Housing Strabane

Council for the Homeless, Northern Ireland

CHNI Council for the Homeless Northern Ireland

CIH Chartered Institute of Housing

DETR Department of Environment, Transport and the Regions

DHSS Department of Health and Social Security

DOE Department of the Environment

DSD Department for Social Development

DTLR Department of Transport, Local Government and the Regions

FDA Full Duty Applicants

HB Housing Benefit

NIACRO Northern Ireland Association for the Care and Resettlement of Offenders

NIFHA Northern Ireland Federation of Housing Associations

NIHE Northern Ireland Housing Executive also referred to in this Report as the 'Executive'

PBNI Probation Board Northern Ireland

PSNI Police Service Northern Ireland

RSL Registered Social Landlords

SNMA Special Needs Management Allowance

YPP Young Persons Project

Household is deemed to be an individual, a number of family members or a family which presents as homeless

Overcrowded is considered, for the purposes of this Report to mean "a house occupied by two, or more, families"

Priority Need is considered, for the purposes of this Report to be the definition contained in Housing (Northern Ireland) Order 1998 Part 2 Article 5 (1)

Volume 2

SECOND REPORT ON THE INQUIRY 
INTO HOUSING IN NORTHERN IRELAND 
(HOMELESSNESS)

SESSION 2001/2002 THIRD REPORT

Ordered by The Committee for Social Development to be printed on 6 June 2002
Report: 3/01/R (Committee for Social Development)

COMMITTEE FOR SOCIAL DEVELOPMENT

VOLUME 2 – WRITTEN SUBMISSIONS RELATING TO THE REPORT

COMMITTEE FOR SOCIAL DEVELOPMENT

1. The Committee for Social Development is a Statutory Committee of the Northern Ireland Assembly, established in accordance with paragraphs 8 and 9 of Strand One of the Belfast Agreement and under Assembly Standing Order No 46.

2. The Committee has a scrutiny, policy development and consultation role with respect to the Department for Social Development and has a role in the initiation of legislation.

3. The Committee has power:

• to consider and advise on Departmental budgets and Annual Plans in the context of the overall budget allocation;
• to approve relevant secondary legislation and take the Committee Stage of relevant primary legislation;
• to call for persons and papers;
• to initiate inquiries and make reports
• to consider and advise on matters brought to the Committee by the Minister for Social Development.

4. The Committee was established on 29 November 1999 with 11 members including a Chairperson and Deputy Chairperson and a quorum of 5. The membership of the Committee is as follows-

• Mr F Cobain (Chairman)
• Mr G Kelly (Deputy Chairperson)*
• Sir John Gorman
• Mr T Hamilton (replaced Mr McClarty with effect from 6 February 2001)
• Mr B Hutchinson
• Ms M Gildernew
• Mr D O’Connor
• Mr E ONeill
• Mr M Robinson
• Mr J Tierney
• Mr S Wilson

5. All correspondence should be addressed to the Clerk to the Committee for Social Development, Room 419 Parliament Buildings, Stormont, Belfast BT4 3XX.

* Mr G Kelly replaced Ms M Gildernew as Deputy Chairperson with effect from 8 April 2002.

TABLE OF CONTENTS

Volume two

Written Submissions

Written Submissions relating to the Report

Northern Ireland Housing Executive
Housing Rights Service – Submission 1
Children’s Law Centre
Armagh and Dungannon Health and Social Services Trust
Craigavon and Banbridge Community Health and Social Services Trust/Young Persons Project
Shelter NI
Northern Ireland Federation of Housing Associations
Ballymena Borough Council
North and West Belfast Health and Social Services Trust/Emergency Out of Hours Service
Simon Community, Northern Ireland
Chartered Institute of Housing in Northern Ireland
Law Centre, Northern Ireland
Homefirst Community Trust
Causeway Health and Social Services Trust
Disability Action
Housing Rights Service – Submission 2
NIACRO
Council for the Homeless (Northern Ireland)
Carrickfergus Borough Council
Newry and Mourne District Council

List of Written Submissions relating to the Report

Glossary

Written Submissions

Written Submissions

WRITTEN SUBMISSION BY:
northern ireland housing executive

28 September 2001

SOCIAL DEVELOPMENT COMMITTEE INQUIRY INTO HOMELESSNESS IN NORTHERN IRELAND

1. Introduction

The Housing Executive is pleased to have been invited to make comments to the Committee's Inquiry into Homelessness in Northern Ireland.

2. As the Committee will be aware, the Housing Executive launched a wide-ranging review of its Homelessness Strategy and Services in September. The closing date for responses was 31 December 2001.

Some 30 responses have been received. By and large responses have supported and welcomed the direction proposed in the review.

3. Researchers from the Committee have previously been briefed on the review.

4. The Housing Executive would be keen that its review and the responses received to its consultation exercise inform the Committee's Inquiry. Likewise we would be keen that the Committee's Inquiry should inform the Housing Executive's final conclusions on its Strategy.

5. The current timescale for the Housing Executive's Review is:

• Close of Consultation - 31st December 2001
• Detail to Board approval to be inserted
• Implementation to commence in April 2002

Subject to the agreement of our Board and on your timetable we would consider delaying our conclusion of the report until after you have published your inquiry report.

6. We would wish to highlight that in bringing forward its review of the Homeless Strategy and Services, the Housing Executive engaged with the Voluntary and Statutory sector in a thorough way to ensure that the proposals were full and comprehensive and represented the experience of all those working in the Homeless sector.

7. Approach Taken to this Response

It is our belief that a significant part of information required by the Committee is contained in the Housing Executive's Consultation Paper. This represents our main submission. We would be happy to present at a later stage to the Committee:

• A summary of the responses received to the Consultation
• Any revisions we would intend to make to the proposals in the light of consultation

8. For the purposes of your Inquiry and drawing from the Consultation Paper, I have summarised in the remainder of this note information and views in respect of the main elements of your terms of reference namely:

• The extent of Homelessness in Northern Ireland
• The current arrangements for dealing with Homelessness in Northern Ireland
• Comparisons with England, Scotland, Wales and Republic of Ireland
• Identify models of good practice

9. In addition we would wish to highlight to the Committee the Housing Executive's views on:

• The provisions expected to feature in the Housing Bill
• The funding requirements for the Strategy
• The linkages with Supporting People Reform

10. Extent of Homeless in Northern Ireland

The key points are:

• 10,000 to 11,000 applicants present as homeless each year. However, in 2001/2002 there was an increase to 12,694. This increase was due in part to the loyalist feud and in part to the new assessment methods introduced as part of the Common Selection Scheme.
• Singles represent 50% of presenters and family households 41%. Twice as many males as opposed to females present.
• 40% of those presenting are accepted as statutory homeless. Families (at 52%) are more likely to meet the statutory requirement. 31% of singles met the statutory requirement.
• Households accepted as homeless represent 1.1% of total households, which is a higher ratio than England, Scotland and Wales.
• The main reason for homelessness has consistently been the breakdown of sharing arrangements or marital/ partnership relationships.
• Homelessness is predominantly an urban problem, although there are concerns about "hidden" homelessness in rural areas.
• Around 20% of those presenting are placed in temporary accommodation.
• The majority of homeless applicants (81%) are housed by the Housing Executive.

11. Current Arrangements for Dealing with Homelessness in Northern Ireland

The new elements of current homelessness planning and services are set out in the following paragraphs:

• Planning - Need at a provincial and District Council level is identified through the Annual Review of the Housing Market and District Housing Plans. Joint Planning with Health and Social Services identifies those with support needs. Temporary accommodation needs are identified annually.
• Prevention - Arrangements include advice and information on applying for accommodation, private rented tenant rights, use of guarantee schemes, referral to specialist agencies for advice on debt, marital breakdown and property rights. A range of voluntary agencies, including the Housing Rights Service, Belfast Law Centre and CAB provide independent advocacy services. It is acknowledged in the proposed strategy that more needs to be done by way of prevention.
• Reception Services - Homeless applicants present to Housing Executive District Offices during office hours. Outside office hours Social Services provide after hours cover for the Housing Executive. These arrangements we believe are well known to various agencies and the voluntary sector. Arrangements in respect of temporary accommodation placement vary from area to area and are complex.
• Assessment and Enquiries - The Housing Executive is responsible for carrying out the Homeless assessment under the legislation and in doing so relies heavily on information from other agencies. The target is to assess 95% of all homeless applications within 33 days. Current performance is 95% for the month of November 2001 [92% for the year to the end of November 2001].
• Temporary Accommodation - The Housing Executive is required to provide temporary accommodation to those who are assessed as meeting the statutory homeless requirement and also are required to provide temporary accommodation while enquiries are being carried out. Temporary accommodation is provided by Voluntary Sector hostels (these hostels also offer direct access to homeless not meeting the statutory assessment); Housing Executive hostels and from the Bed and Breakfast register. The costs of temporary accommodation are usually fully met by the Housing Executive through Housing Benefit, top-up payments and direct payments.
• Assistance with transport and furniture storage is provided by the Housing Executive.
• An internal appeals system is available for applicants who do not satisfy the statutory requirements.

12. Comparisons with England, Scotland, Wales and Republic of Ireland

Detailed comparisons are available in the Consultation Document. However, there are a number of key points:

• Legislation - The legislation in Northern Ireland is much more generous in Northern Ireland when compared to the remaining countries within the Isles. A Homes Bill in England and Wales will, in effect, enact the Northern Ireland provisions in terms of restoring the duty on local authorities to secure suitable permanent accommodation for unintentionally homeless people in priority need.

Additional proposals (to extend priority need categories to include vulnerable groups such as care leavers, victims of domestic violence, sixteen and seventeen year olds who are homeless and persons leaving institutional care) are not considered by the Housing Executive to be necessary in Northern Ireland since in practical terms, such groups would invariably be accepted by the Housing Executive as being vulnerable and hence in priority need under existing legislation.

• Homeless Strategies - A key feature in each of the other countries is the intention to place a statutory duty on Local Authorities to produce a Homeless Strategy for their locality. In England and Wales the Department of Transport, Local Government and the Regions (DTLR) recently consulted on a National Homeless Strategy. The outcome of this is attached at Appendix 1.
• Co-operation with Other Agencies/Voluntary Sector etc - A key feature of emerging strategic approaches in each of the nations is the need for joint working and collaboration with relevant agencies particularly to prevent homelessness and to support those who may be vulnerable to homelessness.

The Committee might wish to note that the intention in Scotland and Ireland is that a legislative duty should be placed on Local Authorities to produce a Homelessness Strategy and also to require other agencies (such as Health and Social Services) to produce plans to support this.

• Vulnerability - A common feature is the acceptance that homelessness is a complex problem involving people who may be vulnerable because of health, mental ill health, addictions and so forth. Housing on its own is not the answer.

13. Best Practice

In preparing its Strategy the Housing Executive consulted extensively with the statutory and voluntary sector and also carried out considerable desk research into practice elsewhere. We believe the recommendations set out in the Strategy and included in summary form in Appendix 2 to this note represent a broad range of best practice which, when implemented, will considerably improve the services. Consultation will, of course, identify others.

14. The Provisions of the Housing Bill Northern Ireland

The key proposed changes in the Bill include;

(a) New definition of homelessness in line with GB.

(b) Persons who contrive to represent themselves as homeless to be treated as "intentionally homeless".

(c) Persons subject to immigration control not to be entitled to assistance under homelessness legislation unless prescribed by the Department.

The provisions in the Bill are technical and will have no significant impact on the rights of the homeless. We would have concerns that the impression has been created that the Bill will reduce the rights of the homeless - this is not the case.

15. Funding

Current annual expenditure on homelessness is made up of the following elements:

Capital Costs

These vary year on year according to the programme undertaken - in 2001/02 the Department of Social Development approved £5.5m for newbuild, homelessness projects.

Revenue Costs

The range of revenue costs are presented:-

^*1 Estimate based on average cost of, and average length of time spent in temporary accommodation.
^*2 This includes SNMA for all forms of supported accommodation.
^*3 Other forms of financial support vary year by year and in total are estimated at around £600K.

To implement the Strategy additional expenditure of £12.95m per annum is required made up as follows:

• The permanent accommodation proposals will be broadly absorbed in the allocation of funding for new build. Additional costs arising from proposals would be around £3m per year (based on 100 higher cost units and 15 special acquisitions per year).
• The supported accommodation costs are estimated at £10.8m and this programme will have to compete for priority resourcing within the overall new build programme. Given that at least 20% of the new build finance is allocated to supported housing, the homeless proposals is deliverable over 3-5 year (approx £4m pa).
• Additional temporary accommodation, net of private lets, is estimated at £9m and will have to compete for priority resourcing. Again it is considered deliverable within 5 years, assuming current financial allocations are held or increase (approx £2m pa).

The remaining recommendations will require additional resources as set out below:

16. Relationship to Supporting People

Central to the Homelessness Strategy is a switch from a "bricks and mortar" approach to one involving working with other agencies and the focus would move to prevention and support for vulnerable people. Implementation of the Supporting People Reform will have a significant impact on the type of service that can be provided. The Housing Executive has bid for funding to the Executive Programme Funds to initiate a number of support schemes with the Voluntary Sector in the run up to the implementation date for Supporting People. So far these bids have been unsuccessful.

17. Conclusion

The Housing Executive has been pleased to be invited to make a submission to the Committee's Inquiry. We would be happy to expand on this before the Committee, if required.

P McINTYRE
Chief Executive

CONSULTATION ON PROPOSALS FOR A NATIONAL HOMELESSNESS STRATEGY:
ANALYSIS OF RESPONSES

1. Introduction

1.1 This report summarises the responses to the DTLR consultation on proposals for a National Homelessness Strategy. In total, 70 responses were received. The table in appendix 1 details responses by category of respondent.

1.2 The report is based upon discussion of the main elements in the consultation paper. Some subject areas have been omitted as they did not yield significant comment, whilst others have been joined together to avoid repetition. The views expressed in this summary are those of the respondents to the consultation, and should not be taken as representing the views of the DTLR Ministers or officials on these issues.

1.3 DTLR is now considering its response to the issues raised by this consultation exercise. However, Lord Falconer, the Minister for Housing and Planning, has already announced that a new Homelessness Directorate will be established within DTLR in the new year. The Homelessness Directorate will bring together and invigorate the existing work to help homeless people, as well as develop new work to help prevent homelessness, and investigate its underlying causes. It will be responsible for delivering the National Homelessness Strategy.

1.4 A brief overview of key comments on the Government's proposals follows:

2. Summary

2.1 The purpose of the strategy

• The purpose and remit of any strategy needed clarification.
• There was support for a strategy to be linked to resource allocation.
• Respondents thought any strategy should take a greater role in spreading innovation and good practice.

2.2 Diversity

• There was strong emphasis on the need to mainstream the needs of BME groups throughout the strategy.
• There was some support for services to be focused around the needs of specific groups.

2.3 What do we mean by homelessness?

• There was strong support for the extension of the priority needs categories.
• The need to tackle hidden homelessness was a key theme.
• There was considered to be a need for a clear definition of homelessness across the sector.

2.4 What is the extent of the problem?

• There was a clear consensus that homelessness varies in extent and character across the country.
• There was felt to be a need to tackle problems in areas facing the greatest demand for accommodation.
• Areas with low demand and rural areas highlighted their particular needs.
• There was strong support for a revised methodology for collecting data on the extent of homelessness.

2.5 Prevention

• There was overwhelming support for a focus on prevention.
• The need to adequately resource schemes was considered key to their success.
• There was a strong feeling that local homelessness strategies should include the role of all stakeholders in prevention.
• There was an emphasis on the need for user consultation.
• Most responses highlighted the importance of early detection of those at risk.

2.6 Wider Social Programmes

• Other social programmes could undermine the success of homelessness policies.
• There was criticism that the consultation document failed to demonstrate how a national homelessness strategy would link with other strategies.
• There was a strong emphasis on the need to link homelessness policy with housing benefit policy, Supporting People, health policies and crime and disorder strategies.

2.7 Advice

• There was a strong emphasis on the importance of independent advice.
• Most responses considered one-stop advice services the most appropriate.
• There was some concern over the quality of advice being offered by different agencies.

2.8 Resettlement and tenancy support

• There was strong support for systems of resettlement and tenancy support.
• Individually tailored support packages were considered important.
• The concept of tenancy support encompassed a variety of programmes including skills development, drug prevention and the provision of furniture.

2.9 Increasing the supply of social housing

• The Right to Buy scheme was considered to have reduced the supply of social housing.
• High demand areas supported schemes to assist them in increasing their supply of social housing.
• There was some concern that choice based lettings might lead to homeless applicants being forced to accept the least desirable properties.

2.10 Increasing the supply of affordable housing

• There was strong consensus that increasing the supply of affordable housing was key to tackling homelessness in high demand areas.
• Most respondents called for additional funding for affordable housing.
• There were varying calls for the role of the planning system to be re-examined in relation to homelessness and affordable housing.

2.11 Reducing reliance on unsuitable forms of temporary accommodation

• There was overwhelming support for targets to reduce reliance on temporary accommodation, particularly bed and breakfast accommodation.
• The achievement of these targets was thought to depend on the provision of affordable housing.
• There was a strong concern about standards of temporary accommodation.
• There was support for private sector leasing of temporary accommodation.
• There was a need to retain flexible temporary accommodation for certain groups.

2.12 Mobility Services

• There was support for mobility services, particularly from high demand areas.
• High demand authorities thought that low demand areas should use their local homelessness strategies to highlight the availability of surplus stock for use by other authorities.
• There was a strong emphasis on the need for mobility schemes to be linked to employment and be based on the positive choice of the applicant.

2.13 The Role of the Private Rented Sector

• There was support for the inclusion of the private rented sector as a partner in tackling homelessness.
• There was strong support for schemes to remove barriers to accessing the private rented sector, including deposit and rent guarantee schemes and a review of housing benefit.
• Several local authorities were concerned about insecurity of tenure in the private sector.
• There was felt to be a need for local authorities to encourage the renovation of empty homes.

2.14 The role of lenders

• The role of mortgage lenders in detecting owner-occupiers with arrears who might be at risk of homelessness was highlighted.
• There was some support for mortgage rescue schemes to prevent homelessness from the owner-occupied sector.

2.15 The role of the voluntary sector

• There was a strong emphasis on the importance of the role of voluntary agencies in any homelessness strategy.
• Voluntary agencies were considered particularly useful providers of independent housing advice and floating support for those with multiple needs.
• Voluntary organisations called for a more stable funding regime and for infrastructure to spread innovation in the sector.

2.16 Rough Sleepers

• The majority of respondents supported the continuation of the rough sleepers unit and a national strategy to tackle the problem of homelessness.

2.17 Partnerships

• Partnerships were seen as key tools in the delivery of homelessness policies.
• There was support for a national homelessness policy unit.
• Local authorities and voluntary agencies highlighted the importance of regional and cross authority co-operation.
• The role of interagency partnerships in providing seamless support at the local level was strongly emphasised.
• The structure of local authorities' budgets was thought to hinder joined up working.
• Structures were needed at the local and national level to facilitate multi-agency partnerships.

2.18 The role of Best Value

• There was support for the evaluation of homelessness services under Best Value.
• On the whole, BVPI 67 was thought to be an inappropriate indicator on homelessness provision.
• There was disagreement over which indicators should be used to measure homelessness.

2.19 Outcomes, evaluation and targets

• A national strategy should have time bound targets linked to resource allocation.
• Targets should be outcome based, flexible to take account of local circumstances and place an emphasis on service quality.
• There was disagreement over which targets should be included in the strategy.

SUMMARY ISSUES AND RECOMMENDATIONS

11 March 2002

Further to the oral evidence given to the Inquiry on 21 February 2002 I enclose for your information, as promised, a summary of the formal responses we received to our Homelessness Strategy and Services Review Consultation document.

Copies of the consultation document were circulated to a wide range of key stakeholders, including the Department for Social Development, the Housing Council, District Councils, Health and Social Services Boards and Trusts, voluntary sector providers and the Probation Board for N.I.

A number of formal presentations were provided for Area Community Advisory Groups, the Housing Council, District Councils and a number of voluntary sector providers. Additionally two public consultation seminars were organised for Health and Social Services staff, housing Associations and the voluntary sector.

600 copies of the Summary report were circulated as part of the consultation process and a copy of the Review was made available on the Executive's web site.

A total of 41 written responses were received, all broadly welcoming the Review recommendations. Feedback was also received from the formal presentations and consultation seminars. Responses are summarised under the broad themes below, a more detailed summary is also appended.

Prevention

A significant number of respondents, particularly from the advisory/voluntary sector expressed the view that the recommendations lacked adequate emphasis on first time presentation of homelessness through the comprehensive provision of advise, advocacy and information services linked to an objective to reduce homelessness.

Inter Agency Partnerships and Protocols

A majority of respondents commented on the need for meaningful partnerships with the voluntary sector along with the need for commitment from other statutory agencies, for example Health and Social Services, Probation, to compliment the Executive's role in meeting the needs for the most vulnerable homes.

Planning

Most respondents commented on this aspect of the Review, welcoming in particular the development of formal Homelessness Action Plans in each of the Executive's Areas. The relationship between the homelessness strategy and other policies, for example house sales, new build provision, arrears recovery policies and Supporting People, was highlighted by many respondents.

Service Delivery

Many respondents commented on those aspects of the Review dealing with day to day services delivery to the homeless. Some highlighted the need for a standardised approach to assessment of homeless applications as well as the need for an independent appeals process. Others welcomed the proposals to abandon the means test for furniture storage and to review the current after hours service. The establishment of appropriate performance indicators such as the reduction in B&B usage, time spent in temporary accommodation and the time taken to permanently rehouse homeless people were considered by most respondents on this issue.

Temporary Accommodation

Respondents supported the Review's recommendations on temporary accommodation and in particular the proposed increased provision of accommodation with support services as an alternative to B&B usage. Some questioned whether the number of additional units proposed would be adequate and urged caution on the pace with which the use of B&B was reduced until alternatives were available.

General

A number of general comments were received regarding the need for the Executive's budgets to reflect the cost of implementing the recommendations, increased regulation of the private rented sector and the need for change to homelessness legislation to reflect the provision of the Homelessness Bill in England.

Equality Impact Assessment

Respondents centred on the exclusion of certain groups from the Equality Impact Assessment and on need to develop proper monitoring and information sources. The length of time taken to rehouse in certain areas and the potential impact on certain groups was also highlighted.

All of the comments received have welcomed the Review as being timely and comprehensive. In general the formal responses have reflected the verbal comments made at the consultation seminars and in the various presentations of the Review.

It is intended to consider the comments and feedback from the consultation process further. The Review document will then be amended as necessary to incorporate comments and revisions as necessary. It will also contain an Implementation Plan, which will set out, against each recommendation, proposed action, indicating who will be involved and how it will be achieved. It will also set out the expected targets/outcomes for each recommendation. This should address the majority of concerns highlighted in the consultation responses which centre on seeking clarification of recommendations.

The ongoing Social Development Committee Inquiry into Housing and Homelessness may have implications for the Review and we propose to reflect the timescale of the Inquiry in the finalisation of our Review to enable any outcomes from the Inquiry to be included as appropriate.

Yours sincerely

P McIntytre
Chief Executive

HOMELESSNESS STRATEGY AND SERVICES REVIEW

ANALYSIS OF CONSULTATION RESPONSES