Chapter 2: Homelessness strategies and reviews

Guidance on housing authority duties to carry out a homelessness review and publish a homelessness strategy.

2.1 This chapter provides guidance on housing authorities’ duties to carry out a homelessness review and to formulate and publish a strategy based on the results of that review.

Duty to formulate a homelessness strategy

2.2 Section 1(1) of the 2002 Act gives housing authorities the power to carry out a homelessness review for their district and formulate and publish a homelessness strategy based on the results of the review. Section 1(4) requires housing authorities to publish a new homelessness strategy, based on the results of a further homelessness review, within the period of 5 years beginning with the day on which their last homelessness strategy was published. However, housing authorities can conduct homelessness reviews and publish homelessness strategies more frequently if circumstances in the district change.

2.3 There was an exemption from this requirement for ‘excellent authorities’ as classified by the Secretary of State by virtue of the Local Authorities’ Plans and Strategies (Disapplication) (England) Order 2005. This regulation was revoked by the Local Audit and Accountability Act 2014 and all housing authorities are required to publish homelessness strategies as of 1 April 2017.

2.4 In conducting a review of homelessness and to formulate a new strategy, housing authorities will need to take into account the additional duties introduced through the 2017 Act. Authorities are encouraged to take the opportunity to involve all relevant partners in developing a strategy that involves them in earlier identification and intervention to prevent homelessness.

2.5 For a homelessness strategy to be effective, housing authorities should ensure that it is consistent with other local plans and is developed with, and has the support of, all relevant local authority departments and partners. Corporate and partnership involvement in identifying strategic objectives will help to ensure all relevant departments and agencies are committed to supporting their delivery.

2.6 The homelessness strategy should link with other strategies and programmes that aim to address the wide range of factors that could contribute to homelessness in the local area. It will be important to consider how these strategies and programmes, which could encompass aspects of local health, justice or economic policy for example, can help achieve the objectives of the homelessness strategy and vice-versa.

2.7 Housing authorities should consider the benefits of cross-boundary co-operation. A county-wide approach will be particularly important in non-unitary authorities, where housing and homelessness services are provided by the district authority whilst other key services, such as social services, are delivered at the county level. Housing authorities should ensure that the homelessness strategy for their district forms part of a coherent approach to tackling homelessness with neighbouring authorities. Housing authorities may wish to collaborate to produce a joint homelessness strategy covering a sub-regional area. London boroughs should have regard to the London Housing Strategy when formulating their homelessness strategies.

2.8 Each local authority has a legal duty under the Health and Social Care Act 2012 to take such steps as it considers appropriate for improving the health of the people in its area. This includes people experiencing homelessness or at risk of homelessness. Housing authorities should ensure that their homelessness strategy is co-ordinated with the Health and Wellbeing Strategy, and that their review of homelessness informs and is informed by the Joint Strategic Needs Assessment.

2.9 To be effective the homelessness strategy will need to be based on realistic assumptions and be developed and owned jointly with partners who will be responsible for its delivery. Sections 1(5) and (6) of the 2002 Act require housing and social services authorities to take the homelessness strategy into account when exercising their functions. Authorities can combine housing and homelessness strategies in a single document where it is coherent to do so.

2.10 Housing authorities must consult public or local authorities, voluntary organisations or other persons as they consider appropriate before adopting or modifying a homelessness strategy. Housing authorities will also wish to consult with service users and specialist agencies that provide support to homeless people in the district. Section 3(4) provides that a housing authority cannot include in a homelessness strategy any specific action expected to be taken by another body or organisation without their approval.

2.11 As part of the homelessness strategy housing authorities should develop effective action plans, to help ensure that the objectives set out in the homelessness strategy are achieved. Action plans could include, for example, targets, milestones and arrangements for monitoring and evaluation.

2.12 Housing authorities must make copies of their homelessness review and the homelessness strategy available for inspection at their principal office at all reasonable hours and without charge, and the strategy must be available to any member of the public, on request (for which a reasonable charge can be made). Housing authorities are advised to publish the strategy and review documents on their website.

2.13 Housing authorities must keep their homelessness strategy under review and may modify it accordingly. Before modifying the strategy, they must consult on the same basis as required before adopting a strategy. Circumstances that might prompt modification of a homelessness strategy include but not be limited to: anything that may affect the composition of homelessness and/or the risk of homelessness in the district; anything that may change the delivery of the strategy; changes to the relationships between the partners involved in the strategy; or changes to the organisational structure of the housing authority.

Reviewing homelessness and formulating a strategy

1. 2.14 Under section 2(1) of the 2002 Act, a homelessness review means a review by a housing authority of:

   1. (a) the levels, and likely future levels, of homelessness in their district;

   2. (b) the activities which are carried out for any the following purposes (or which contribute to achieving any of them):
      1. (i) preventing homelessness in the housing authority’s district;
      2. (ii) securing that accommodation is or will be available for people in the district who are or may become homeless; and
      3. (iii) providing support for people in the district who are homeless or who may become at risk of homelessness; or who have been homeless and need support to prevent them becoming homeless again; and,
   3. (c) the resources available to the housing authority, the social services authority for the district, other public authorities, voluntary organisations and other persons for the activities outlined in (b) above.

2.15 The purpose of the review is to determine the extent to which the population in the district is homeless or at risk of becoming homeless, assess the likely extent in the future, identify what is currently being done and by whom, and identify what resources are available, to prevent and tackle homelessness.

2.16 Housing authorities are reminded that when drawing up their homelessness strategies for preventing and reducing homelessness, they must consider the needs of all groups of people in their district who are homeless or likely to become homeless, including Gypsies and Travellers. The periodical review of housing needs under section 8 of the Housing Act 1985 is a statutory requirement on housing authorities. This requires housing authorities to assess and understand the accommodation needs of people residing or resorting to their district. Under section 124 of the Housing and Planning Act 2016, which amends section 8 of the Housing Act 1985, housing authorities have a statutory duty to consider the needs of people residing in or resorting to their district with respect to sites for caravans and the mooring of houseboats.

Identifying current and future levels of homelessness

2.17 Homelessness is defined by sections 175 to 178 of the 1996 Act. For further guidance on homelessness and threatened with homelessness see Chapter 6. The review must take account of all forms of homelessness within the meaning of the 1996 Act and should therefore consider a wide population of households who are homeless or at risk of becoming homeless. This will include people sleeping rough, and those whose accommodation and circumstances make them more likely than others to become homeless including sleeping rough.

1. 2.18 When carrying out the review housing authorities should consider including the following as a basis for assessing current and future levels of homelessness in their district:

   1. (a) homelessness casework records and other local sources of data;

   2. (b) trends in homelessness approaches and in underlying causes;

   3. (c) which cohorts may be more likely to become homeless or be threatened with homelessness;

   4. (d) the profile of households who have experienced homelessness in their district;

   5. (e) equality monitoring data, including that relating to homelessness applications and outcomes;

   6. (f) the range of factors that may affect future levels of homelessness;

   7. (g) the personal and structural factors that may contribute to people becoming homeless; and,

   8. (h) any planned legislation or local policy changes that are likely to impact on levels of homelessness for particular groups in the district.

Reviewing activities carried out and resources required

2.19 The public, private and voluntary sectors can all contribute, directly or indirectly, to the prevention of homelessness and the provision of accommodation and support for homeless people. The housing authority should therefore consider the activities of all relevant agencies and organisations, as well as the resources available to them, which may contribute to the delivery of services.

2.20 Having mapped all the current activities, the housing authority should consider whether these are appropriate and adequate to meet the aims of the strategy, and whether any realignment of resources or additional provision is needed.

Assistance from social services

2.21 In non-unitary districts, where the social services authority and the housing authority are different authorities, section 1(2) of the 2002 Act requires the social services authority to give the housing authority such assistance as may be reasonably required in carrying out a homelessness review and formulating and publishing a homelessness strategy. Since a large proportion of people who are homeless or at risk of homelessness will be vulnerable adults or have children in their care, it will always be necessary to seek assistance from the social services authority to formulate an effective homelessness strategy. In unitary authorities, the authority must ensure that the social services department assists the housing department in carrying out a homelessness review and formulating and publishing a homelessness strategy.

2.22 The social services authority must comply with all reasonable requests for assistance from housing authorities within their district. For the purposes of formulating a strategy, this might include providing information about the current and projected numbers of vulnerable adults within the district that might be at higher risk of homelessness, and the care, support and accommodation available to them. Children’s social care services could provide, for example, future projections of young people leaving care who are likely to require accommodation and support, families provided with accommodation who are ineligible for assistance (some of which might become eligible), and the numbers of safeguarding alerts involving domestic abuse, poor housing conditions or other factors that might indicate a need for homelessness assistance.

Formulating the strategy

2.23 Having carried out a homelessness review the housing authority will be in a position to formulate its homelessness strategy based on the results of that review as required by section 1(1)(b) of the 2002 Act. In formulating its strategy, a housing authority will need to consider the necessary levels of activity required to achieve the aims set out in the paragraph below and the sufficiency of the resources available to them as revealed by the review.

1. 2.24 Under section 3(1) of the 2002 Act a homelessness strategy means a strategy for:

   1. (a) preventing homelessness in the district (see paragraphs 2.25–2.29);

   2. (b) securing that sufficient accommodation is and will be available for people in the district who are or may become homeless (see paragraphs 2.30–2.56); and,

   3. (c) securing the satisfactory provision of support for people in the district who are or may become homeless or who have been homeless and need support to prevent them becoming homeless again (see paragraphs 2.57–2.75).

Preventing homelessness

2.25 Under section 3(1)(a) of the 2002 Act, a homelessness strategy must include a strategy for preventing homelessness in the district. Furthermore, the 2017 Act strengthens statutory duties to prevent homelessness for all eligible applicants, including those who do not have priority need or may be considered intentionally homelessness and regardless of local connection. The 2017 Act also creates a new duty on certain public authorities to refer users of their services who are threatened with homelessness to a housing authority of their choice, which enables earlier identification of people at risk of becoming homeless through their interactions with other services.

2.26 When developing their homelessness strategy, local authorities will wish to look beyond the statutory requirements to consider the economic and social reasons for investing in activities that prevent homelessness, and may wish to learn from other local authorities and service providers who have adopted a more preventative approach.

Reviewing homelessness prevention activities and resources

2.27 Housing authorities will need to gain a good understanding of the causes of homelessness in their district, both to inform the development of successful interventions, and to assist in securing the commitment of stakeholders who can contribute toward preventing homelessness.

2.28 Housing authorities should establish good links with service providers who have early contact with people who are at risk of becoming homeless, review and learn from their activities and consider how they might be improved. Housing authorities should also consider how they might identify and interact with those households that are not receiving services, in order to prevent homelessness.

2.29 As part of their homelessness review, housing authorities should identify resources that are allocated to activities that prevent homelessness as well as those that respond to households becoming homeless, and consider how these might be realigned. This will be particularly important for delivering the duties contained in the 2017 Act. Upstream prevention activities are likely to produce direct savings in temporary accommodation and other costs for the authority, and will also help to reduce pressures on wider services, such as health, housing and employment, in the longer term.

Formulating a strategy to prevent homelessness

1. 2.30 Elements of a prevention strategy should include:

   1. (a) advice and information: available to residents in the district, or who may return to the district, which assists them in having appropriate information or access to services that will help to prevent them becoming homeless. Maintaining a high level of awareness about housing options and homelessness amongst partner agencies will also contribute to preventing homelessness. For further guidance on advice and information on homelessness and threatened with homelessness see Chapter 3;

   2. (b) early identification: authorities should consider how they might identify people at risk of homelessness at an earlier stage, and the interventions that could be put in place to prevent them from being threatened with or becoming homeless. The ‘duty to refer’ (section 213B of the 1996 Act) should engage public bodies to assist with earlier identification, and housing authorities should develop local protocols or referral arrangements with appropriate agencies, whether or not they are included within that duty. For further advice on duty to refer see Chapter 4;

   3. (c) pre-crisis intervention: authorities should consider whether sufficient activity is in place to intervene proactively where a household may be at risk of homelessness in the future. This might include, for example, having joint working arrangements with environmental health services to ensure tenants are not displaced through enforcement action other than in a planned way, involving children’s early help services to support families at risk of losing their social housing tenancy, or funding a court duty advice service that identifies households at risk of mortgage repossession or loss of private rented accommodation;

   4. (d) preventing recurring homelessness: an analysis of local data should identify applicants most at risk of repeat homelessness which will inform decisions about allocation of resources, particularly for housing related support to help sustain settled accommodation; and,

   5. (e) partnership arrangements: the homelessness strategy should set out how partners will be involved in all of the above activities, and what practical arrangements are needed (for example, joint protocols and procedures) to ensure the continued commitment to joint working to prevent homelessness and improve outcomes.

Ensuring a sufficient supply of accommodation

2.31 Section 3(1)(b) of the 2002 Act provides that one of the purposes of the homelessness strategy is to secure that sufficient accommodation is and will be available for people who are or may become homeless.

2.32 A shortage of affordable housing can lead to increasing numbers of people being accommodated in temporary accommodation whilst waiting for settled housing to bring the main homelessness duty to an end. ‘Settled housing’ in this context will primarily be social housing and good quality private sector accommodation. For further guidance on securing accommodation see Chapter 16.

2.33 Through the homelessness review, housing authorities should estimate the likely demand for assistance to prevent or relieve homelessness, and to meet the needs of those who are owed the main housing duty. They should include within the strategy what actions are required to ensure sufficient supply of accommodation to meet the estimated need.

Reviewing accommodation needs and resources

2.34 Housing authorities need to consider the range of accommodation that is available and is likely to be required for people who are, or may become, homeless. Landlords, accommodation providers and housing developers across all sectors may contribute to the review, and to the development of a strategy for provision of accommodation in the district.

2.35 Housing authorities should review the existing supply of accommodation available to people who are homeless or at risk of homelessness and identify where there are gaps, or where existing resources do not match the most pressing needs.

1. 2.36 This might include reviewing supply and demand for:

   1. (a) social and affordable housing held by the housing authority and private registered providers;

   2. (b) temporary accommodation provided on an interim basis, or under the section 193(2) main housing duty;

   3. (c) private rented accommodation, including shared housing options for young single people;

   4. (d) supported accommodation available for particular cohorts of people in need of accommodation with support; and,

   5. (e) low cost home ownership schemes.

Increasing the supply of new housing

2.37 National guidance on planning and affordable housing is contained in the National Planning Policy Framework and supporting planning guidance. The Framework acts as guidance for local planning authorities both in drawing up Local Plans and making decisions about planning applications.

2.38 The Framework sets out that local planning authorities should have a clear understanding of housing needs in their area. They should prepare a Strategic Housing Market Assessment to assess their full housing needs, working with neighbouring authorities where housing market areas cross administrative boundaries.

2.39 The Framework asks local authorities to use their evidence base to ensure that their Local Plan meets the full, objectively assessed needs for market and affordable housing in the housing market area, as far as is consistent with the policies set out in the Framework.

1. 2.40 To deliver a wide choice of high quality homes, widen opportunities for home ownership and create sustainable, inclusive and mixed communities, the Framework asks local planning authorities to:

   1. (a) plan for a mix of housing based on current and future demographic trends, market trends and the needs of different groups in the community (such as, but not limited to, families with children, young single people, older people, people with disabilities, service families and people wishing to build their own homes);

   2. (b) identify the size, type, tenure and range of housing that is required in particular locations, reflecting local demand;

   3. (c) where they have identified that affordable housing is needed, set policies that meet this need within development sites, unless off-site provision or a financial contribution of broadly equivalent value can be robustly justified and the agreed approach contributes to the objective of creating mixed and balanced communities. Such policies should be sufficiently flexible to take account of changing market conditions over time.

2.41 Local planning authorities are expected to review their Plans regularly and ensure that they are kept up-to-date.

2.42 Another important means of providing affordable housing is through planning obligations, which might be sought in the context of granting planning permission for new housing development. Section 106 of the Town and Country Planning Act 1990 enables a local planning authority to seek agreement from developers to enter into planning obligations to mitigate the impact of otherwise unacceptable development. More detailed guidance on the use of planning obligations is contained within the Planning Practice Guidance.

Accessing the private rented sector

2.43 Housing authorities are encouraged to work in close partnership with local landlords and to develop opportunities to expand the provision of private rented accommodation that is available to people threatened with or actually homeless. Housing authorities should engage private landlords in developing the homelessness strategy, and in identifying how they might support its delivery. There may be opportunities to provide grant funding to landlords to improve poor quality accommodation or to bring empty properties back in to use for homeless households. Housing authorities should also review their private rented access schemes to ensure they meet a broad range of needs, including for single people at risk of homelessness.

Access to social housing

2.44 In developing their homelessness strategy, housing authorities should review how allocation arrangements for their own stock, and nominations, to private registered providers contribute to preventing or relieving homelessness.

2.45 Allocations schemes will be designed to reflect local priorities and needs, but must also provide reasonable preference to people who are homeless or are owed specific homelessness duties as set out in section 166A(3) of the 1996 Act. This will include providing reasonable preference to people who are owed the prevention (section 195(2)) or relief (section 189B) duty. Housing authorities may need to review their allocations schemes in response to the 2017 Act, to ensure that they deliver the requirements of the legislation and are sufficiently geared towards preventing homelessness.

2.46 Housing authorities are encouraged to develop an annual lettings plan to match anticipated supply against applicant demand, taking into account the need to prevent homelessness and to provide settled accommodation to people owed the main housing duty. As well as considering the proportion of lettings that should be made available to applicants who are owed the main housing duty (section 193(2)), housing authorities will want to consider whether the lettings plan facilitates or reduces access to housing for groups they know to be at risk of becoming homeless in their area. Housing authorities may also wish to review what part social housing allocations should play in facilitating move-on from any supported accommodation that forms part of the authority’s wider homelessness response.

2.47 The Localism Act 2011 amended Part 6 of the 1996 Act to enable housing authorities to set their own qualification criteria for applicants wishing to join their housing register, to address local priorities and needs. Authorities can also provide reduced preference to applicants because of their previous conduct, which might include anti-social behaviour or rent arrears. However, housing authorities should not apply qualification criteria which would exclude from their allocation schemes homeless households who would be entitled to reasonable preference in the allocation of housing.

2.48 Housing authorities are encouraged to keep under review the impact of their allocations policies upon people at risk of homelessness, including single people who may be less able to establish their residency or may have a history of offending or other behaviour that impacts on their ability to access social housing. It is for the authority to decide its allocation scheme based on local priorities, but in doing so it should be aware of and take into consideration the impact of policies and procedures (which may be unintentional and/or indirect) on applicants who may be at risk of homelessness in the district.

2.49 It is important that housing authorities work effectively with private registered providers to help them prevent and tackle homelessness in the district. Private registered providers have a key role to play in sustaining tenancies, reducing evictions and abandonment, and preventing homelessness through their housing management functions. All parties will wish to ensure that there are effective procedures to identify early those tenants at risk of becoming homeless and that referral processes are in place.

2.50 The Secretary of State considers that, where local authority or private registered providers stock is provided as temporary accommodation (under section 193(2)); the housing authority should give consideration to the scope for allocating the accommodation as a secure or assured tenancy, as appropriate. This is especially the case where a household has been living in a particular property for anything other than a short-term emergency stay.

Temporary accommodation

2.51 Housing authorities should review their need for and use of temporary accommodation and, where necessary, identify what improvements will be made to procurement plans within their homelessness strategy. The aim will be to maximise the supply of good quality accommodation to meet the needs of homeless households, and reduce the financial burden of temporary accommodation on the applicant, authority and public purse. Housing authorities who use bed and breakfast to accommodate families in emergencies should consider including a plan to reduce or eliminate its use. For further guidance on securing accommodation see Chapter 16.

Supported housing and refuges

2.52 Housing authorities will need to work with partners to assess the need, and plan strategically, for supported housing provision to help prevent and resolve homelessness for people with support needs, and to consider whether existing local needs are met or to commission provision (either new units or additional support) to address these needs. Supported housing should be of good quality and suitable for the needs of the client group it is intended for. For example, supported accommodation with shared facilities will not normally be suitable for longer-term placements for families with pregnant women and/or children.

2.53 Refuge provision is very important for victims of domestic abuse at risk who need to flee from highly dangerous perpetrators, and victims will very often need to be placed in a refuge in another area in order to be safe from the perpetrator. Housing authorities will need to work together and with specialist domestic abuse services to assess and meet the need for refuge provision across local authority boundaries, for example, across a region or sub-region, to help ensure provision for people fleeing both from and to individual housing authority areas.

Empty homes

2.54 Local authorities are encouraged to make use of their powers and the incentives available to tackle empty homes. Through the new homes bonus, local authorities can earn the same financial reward for bringing an empty home back into use as building a new one. They can also charge up to 150% council tax for a home left empty for over 2 years. Housing authorities may wish to consider introducing local schemes that incentivise landlords to bring empty properties back into use, for example by providing grant funding subject to the refurbished accommodation being made available for homeless households.

Disabled facilities grant

2.55 Uptake of the disabled facilities grant – a mandatory entitlement administered by housing authorities for eligible disabled people in all housing tenures – can enable homeowners to remain living an independent life at home. Authorities are required to give a decision within 6 months of receiving an application. The grant is subject to a maximum limit and is means tested to ensure that funding goes to those most in need.

2.56 For guidance on securing accommodation for homeless applicants see Chapter 16.

Securing the provision of support

2.57 Section 3(1)(c) of the 2002 Act provides that the homelessness strategy should secure the satisfactory provision of support for people in the district who are or may be homeless, or who have been homeless and need support to prevent them becoming homeless again.

Reviewing resources and activities to provide support

2.58 Housing authorities should consider all the current activities which contribute to the provision of support for people who are, or may be at risk of becoming, homeless and those who have been homeless and need support to prevent them becoming homeless again. The range of providers whose activities will be making a contribution to this area are likely to embrace the public, private, voluntary and charitable sectors.

2.59 The 2017 Act introduced duties for housing authorities to assess the support needs of all applicants who are homeless or threatened with homelessness, and agree a personalised housing plan which should include reasonable steps required to meet any support needs identified. This more systematic assessment arrangement for all applicants will enable the generation of much improved data on the support needs of homeless people, which can be used as part of the homelessness review and to inform the homelessness strategy as well as commissioning plans. For further guidance on assessments and personalised housing plans see Chapter 11.

2.60 Housing authorities should consider mapping support services and activities in the district to assist in developing the homelessness strategy and to identify areas, both geographic and thematic, in which services are duplicated and/or where gaps in service provision can be identified.

2.61 Housing authorities should explore how budgets and resources from a wide range of sources can be used to provide support for people in their district. Due to the cross-cutting nature of homelessness there will be opportunities, for example, for the housing authority to work with organisations specialising in primary care, substance dependency, mental health or employment and training.

2.62 In two-tier authority areas it will be necessary to engage the upper tier authority, which holds responsibility for commissioning housing related support, in identifying resources available to meet support needs across all cohorts that are at high risk of homelessness.

Formulating a strategy to provide support

2.63 In formulating their homelessness strategies, housing authorities need to recognise that for some households homelessness cannot be tackled, or prevented, solely through the provision of accommodation. Some households will require a range of support services, which may include housing related support to help them sustain their accommodation, as well as personal support relating to factors such as relationship breakdown, domestic abuse, mental health problems, drug and alcohol addiction, poverty, debt and unemployment.

1. 2.64 Housing-related support services have a key role in preventing homelessness occurring or recurring. The types of housing-related support that households who have experienced homelessness may need include:

   1. (a) support in establishing a suitable home – help, advice and support in finding and maintaining suitable accommodation for independent living in the community;

   2. (b) support with daily living skills – help, advice and training in the day-to-day skills needed for living independently, such as budgeting and cooking;

   3. (c) support in accessing benefits, health and community care services – information, advice and help in claiming benefits or accessing community care or health services;

   4. (d) help in establishing and maintaining social support – help in rebuilding or establishing social networks that can help counter isolation and help support independent living.

Support for single people

2.65 Housing authorities will be aware that some individuals may be at particular risk of homelessness, for example young people leaving care, ex-offenders, veterans, people with mental health problems or individuals leaving hospital, and may require a broader package of resettlement support. When developing their homelessness strategies, housing authorities should consider carefully how to work effectively to prevent homelessness amongst these groups and ensure that appropriate support is available.

2.66 Housing authorities should work with key partners to assess and meet the support needs of people at risk of homelessness. Where appropriate, accommodation and support services might be jointly commissioned, with children’s social care, health, criminal justice agencies and other partners, in order to share and maximise resources and ensure a more holistic service response.

2.67 Many young people who have experienced homelessness will be in particular need of support to develop skills to manage their affairs and prepare to take on and sustain a tenancy and operate a household budget. Those estranged from their family, particularly care leavers, may lack the advice and support normally available to young people.

Support for rough sleepers

2.68 In districts where there is evidence that people are sleeping rough, the homelessness strategy should include objectives to work toward eliminating rough sleeping. This would include reviewing existing support arrangements, identifying which do or do not work, and where appropriate looking for alternative ways to provide accommodation and support that might improve outcomes for people who have slept rough. Accommodation and support solutions will vary according to the profile and particular needs of rough sleepers in the district, but authorities will wish to consider whether existing arrangements are working, or whether ‘Housing First’ or other service models might be more effective.

2.69 Housing authorities should consider what actions will assist in preventing rough sleeping, particularly for those groups that are over represented amongst those identified as sleeping rough, which includes people who have been in care or in prison, people who have mental health problems and those with a history of drug or alcohol misuse. Housing authorities cannot tackle rough sleeping alone and should involve partners in health, social care and criminal justice, as well as third sector and charitable service providers to develop and deliver the strategy.

2.70 Housing authorities should also consider joint working with agencies to tackle issues such as street drinking, begging, drug misuse and anti-social behaviour. Such collaborative working can help reduce the numbers of people sleeping rough and provide effective services targeted at those who are homeless or at risk of becoming homeless.

Support for families

2.71 Housing authorities should consider what support is available, or could be made available to support families who are at risk of homelessness, including preventing them from becoming homeless. Early Help services commissioned or delivered by children’s social care authorities can contribute to the identification of families that are struggling to maintain accommodation, and require help and support before problems escalate and they are placed at imminent risk of homelessness. Involving providers of services to children and families in developing the strategy will contribute to improving early intervention, as well as drawing in resources available to support families who become homeless or require support to access and sustain settled accommodation.

2.72 Housing authorities will also wish to involve teams responsible for delivering the ‘troubled families’ programme in developing and delivering a strategy that helps to prevent the most vulnerable families from becoming homeless.

Support for victims of domestic abuse

2.73 In formulating their homelessness strategies, housing authorities should consider the particular needs that victims of domestic abuse have for safe accommodation, which will include having accommodation placements available outside the district. Housing authorities should also work cooperatively with other local authorities and commissioners to provide services to tackle domestic abuse; and should involve any local Violence Against Women and Girls Forum and service provider(s) in developing the homelessness strategy.

2.74 Housing authorities should also work closely with local refuge providers to develop fair and efficient move on arrangements, and should be mindful that policies and practices do not disadvantage people who have lost settled accommodation because of domestic abuse.

Households in temporary accommodation

1. 2.75 The provision of support to households placed in temporary accommodation is essential to ensure that they are able to continue to enjoy a reasonable quality of life and access the range of services they need. In formulating their homelessness strategies, housing authorities should consider what arrangements need to be in place to ensure that households placed in temporary accommodation, within their district or outside, are able to access relevant support services. In particular households will need to be able to access:

   1. (a) primary care services such as health visitors and GPs;

   2. (b) appropriate education services;

   3. (c) relevant social services; and,

   4. (d) employment and training services.