Paper by John Mills Housing Manager (Allocations & Homelessness) Fife Council Housing Services.
FIFE HOMELESSNESS STRATEGY (2003/08) – Enhancing the Provision of Temporary Accommodation for Homeless People in St. Andrews Locality
1.0 Introduction
1.1 This brief Report aims to seek formal views from the St. Andrews Community Council on ways and means to expand the current provision of temporary accommodation in St. Andrews Locality. Fife Council is beginning a period of consultation with a range of stakeholders in the Locality to arrive at a preferred option, or package of options to achieve the enhancement of provision for homeless people.
2.0 Homelessness Needs Assessment
2.1 Homeless People presenting in St. Andrews Locality cover the spectrum of society, from young people seeking their first home to professionals, through to elderly people who lose their home. On average, 6 homeless households request interviews with the Homelessness Officers per week.
2.2 A key element in the development of the Fife Homelessness Strategy is the Homelessness Needs Assessment. Craigforth Consultants, commissioned by Fife Council undertook the research. A range of homelessness services in East Fife, provided by a number of Statutory and Voluntary agencies, were analysed and mapped. 9 Projects stated that they provided services in St. Andrews Locality, 22% of the total of Fife Homeless projects. This represents the lowest figure in Fife, along with Howe of Fife and Taybridgehead. The area analysis reveals clients in East Fife are less likely than in other areas of Fife to be able to access services in the area they come from.
Table 1 – Locality Areas where a homelessness service can be provided
Area Number of Projects Percentage of Projects in Fife
EAST FIFE
Cupar 11 27%
Howe of Fife 9 22%
Tay Bridgehead 9 22%
St. Andrews 9 22%
East Neuk 10 24%
2.2 “An analysis of the type of services by area (across Fife) shows the paucity of services in East Fife. Just 12 Services said they could provide services in East Fife... Only two are located in St. Andrews and four in Cupar”. (p. 41, Fife Homelessness Needs Assessment)
2.3 In relation to the provision of temporary accommodation, the Research confirmed that proportionately, East Fife had the lowest provision of temporary accommodation in Fife.
“Just three Projects provide temporary accommodation as their primary focus (in East Fife) .... East Fife Womens Aid, Cornerstone in Cupar, and Fife Council Temporary Accommodation Service” (p.80 Fife Homelessness Needs Assessment”.
2.4 In the case of St. Andrews Locality, the provision is limited to two Services.
Table 2 – temporary accommodation in St. Andrews
Temporary Accommodation Service Fife Council Women’s Aid Supported Accommodation
Individual Properties 11 4
The occupancy rate within the existing temporary accommodation is over 95% at any time and is in high demand. As at 27th November, there are approximately 30 households either in other temporary accommodation in Fife who emanate from St. Andrews Locality, or have made their own arrangements pending an offer of available temporary or permanent housing. "Homeless at Home” is recognised by the Scottish Executive as a legitimate form of temporary accommodation, where homeless people can make their own short-term arrangements.
3.0 Fife Homelessness Strategy (2003/08)
3.1 The Strategy was endorsed by Fife Council and NHS Fife in June 2003. One of the main objectives of the Strategy is to ensure that emergency temporary accommodation is always available to homeless people. A requirement of the Housing (Scotland) Act 2001, is that Fife Council has a duty to provide temporary accommodation to all homeless people. In Fife we accommodate non-priority homeless households for 28 days following their homelessness decision. This period enables the Council and the homeless person to find a solution to their short-term accommodation and other needs.
3.2 Fife Council is committed to working in partnership with Local Communities and Agencies to enhance the provision of temporary accommodation in East Fife. The East Area Services Committee accepted the need for additional accommodation in St. Andrews.
3.3 Appendix 1 represents a Review of temporary accommodation options for consideration and discussion . Views from St. Andrews Community Council, and other Community Councils in the Locality, as well as from other organisations such as Churches will be sought over the next 3 months. The next steps involve the collation of Community views, and reporting to the East Area Services Committee in March 2004.
4.0 Conclusion
4.1 The need to enhance the provision of temporary accommodation is outlined in the Report. What form the additional provision will take will be based on views from the Communities in St. Andrews Locality. Fife Council is committed to the implementation of the Fife Homelessness Strategy with the support of all Stakeholders.
5.0 Recommendation
5.1 The St. Andrews Community Council is requested to consider the preferred options for enhancing temporary accommodation within St. Andrews, and to provide feedback to Fife Council.
Fife Homelessness Strategy (2003/08) – St. Andrews Temporary Accommodation Options
Temporary Accommodation Option Current Provision Description
Permanent Accommodation 50% of annual allocations to homelessness in St. Andrews Temporary accommodation is only necessary where
• Homelessness assessment and/or investigation is ongoing
• Insufficient permanent accommodation in the Locality
To support an increasing pressure for temporary accommodation, the Council could decide to increase the level of homelessness allocations in St. Andrews to a higher level.
Homeless Hostel
1. 10-bed Hostel
2. 3-4 bed Hostel Nil Provision based on a number of bedrooms and shared communal facilities within a single building. A staff Team of 5 working shifts would staff the Unit on a 24/7 basis. The level of housing support provided can range from low to high level support. The requirement in St. Andrews would be for a low-level support Unit for homeless people. Clients needs would be for straightforward temporary accommodation.
Individual properties
(1) Procurement from letting stock
(2) Purchase of properties
(3) Private leasing 11 existing
4 new in pipeline
4 East Fife Womens Aid The commonest form of temporary accommodation used in St. Andrews Locality.
(1) The Local Office offers empty properties to the Homelessness Service for direct provision of temporary accommodation, or for use as supported accommodation, e.g. Womens Aid. The properties are fully furnished and can be returned to the Local Office for let as permanent accommodation following at least 3 years of use. The Local Office would replace the temporary accommodation with another property.
(2) Predecessor District Councils engaged in buying properties on the open market (usually former Council properties sold under Right to Buy) to supplement the stock in an area.
(3) North East Fife DC established a Private Leasing Scheme with Private Sector Landlords. This type of scheme can be a useful addition to enhancing the pool of temporary accommodation.
B&B Nil Least favoured form of temporary accommodation due to lack of control of standards of accommodation, services to homeless people, and high costs. Homeless Service currently book clients into B&B accommodation into Levenmouth & Kirkcaldy. A Fife B&B contract will be let by February/March 2004 to regulate standards, control costs, and improve services to clients. B&B should only ever be used for short-stays and for emergencies (fire & flood).
Homeless at Home 30 households Good Practice recognises the contribution that “Homeless at Home” can make to a temporary accommodation strategy. In these circumstances, homeless people make their own arrangements to stay with friends or relatives until they can be assisted into temporary accommodation, or can be made an offer of permanent accommodation. In effect, in East Fife, this is the most common form of temporary accommodation used due to shortage of other options.
Caravans/
Portacabins/
Logcabins Nil The purchase or lease of caravans is an option for consideration. Previous experience of their use for decanting tenants from their homes during modernisation works.
The use of Portacabins has a precedent in North East Fife, in Strathmiglo. This was a successful provision but discontinued in the early 1990’s due to vandalism and the high repair costs.
Option Advantages Disadvantages
Homeless Hostel
1. 10-bed Hostel
2. 3-4 bed Hostel Whether directly managed by the Council, or indirectly through a Voluntary Sector Provider, a high standard of accommodation, support services, and amenity can be guaranteed and maintained, Hostels are cost effective in revenue terms, if there is an adequate number of residents on one site. 9-10 bedrooms is the desired size for this type of provision. A smaller building/fewer number of bedrooms can provide a less-institutionalised provision. Particularly difficult to locate suitable properties at the right price in the right location for use as a hostel. High Cost of provision – typical cost for new build or rehabilitated building can reach £400-500,000.
Consultation with homeless people confirms this type of shared accommodation as less popular than single – occupation or individual properties.
Smaller hostels are not cost-effective as there are fewer rents to offset staffing and other revenue costs.
Individual properties (1) Recognised as most popular form of temporary accommodation with homeless people. Recognised as Best Practice.
Typical cost of provision is £5,000 per unit, if selected from the Council’s Stock.
(2) Purchasing properties from the private sector would alleviate the pressure on the letting stock in St. Andrews.
(3) As above, leasing temporary accommodation in the private sector could ease pressure to take units from the letting stock. (1) A balance needs to be maintained between taking properties from the letting stock and the provision of permanent accommodation to homeless people.
This requirement limits the number of temporary accommodation units that can be selected.
(2) The cost of acquisition, particularly in a high-cost property area, is likely to be considerable. Current estimate to purchase 4-5 properties could cost £400-450,000.
(3) Cost of provision is higher than in the public sector.
B&B Relative, ease of access where the Homelessness Service has reached agreement with proprietors to house homeless people. This is not the case in all parts of Fife, particularly St. Andrews.
Preferred option by some homeless people due to relative lack of rules and restrictions applying to them. This is the least favoured option for Councils, guided by Government Strategy. There are a number of practical issues arising from the use of B&B: • Poor standards
• Poor level of services for residents
• Clients tend to be not supported by Homelessness Service, although this is improving
• Seen as not cost-effective for the Council – income from charges does not match expenditure.
Homeless at Home Main advantage is no financial cost to Council. Some homeless people do have this as an option if they understanding friends or relatives. By using this option, homeless people can usually stay in their own Localities. Two main disadvantages:
• Council is not meeting its statutory obligation to temporarily accommodate homeless people in its area.
• We have experience where homeless people are at risk of further violence where they cannot access accommodation and go back to unsafe situations.
Caravans /
Portacabins /
Logcabins
Caravans – relatively low cost if leasing/renting option is selected. Standard of accommodation can be quite high, depending on age and condition of caravan. Portcabins/Logcabins – Higher standard of accommodation can be achieved at a higher cost. More acceptable than Caravans due to semi-permanence of sites. Are used in Rural Local Authorities where housing supply is low.
Caravans – procuring new sites a major issue due to non-availability of housing sites in St. Andrews Locality. Question mark over whether homeless people should be placed in this form of temporary accommodation, and whether it would be regarded as second-class accommodation.
Portacabins/Logcabins – issues consistent with those for Caravans. Higher cost than Caravans to establish, but more acceptable than Caravans.
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