Main Navigation
Accommodation: an introduction
This section of the handbook details the different accommodation options available to rough sleepers. Accommodation provision is critical to support movement from the streets to a sustained, positive lifestyle.
Statutory provision
Local authorities have a responsibility to support homeless people under homelessness legislation. To decide if someone is legally homeless they will assess whether:
- He/she has a home anywhere that he/she can live in with his/her immediate family.
- He/she can only stay where he/she is on a very temporary basis.
- It is not reasonable to stay in his/her home due to violence or because of the condition of the property.
In England and Wales, all households, that are identified as homeless, are entitled to support from their local authority. Part seven of the 1996 Housing Act and the 2002 Homelessness Act stipulate that at a minimum, advice should be given to all homeless households. A household is only entitled to permanent accommodation from its local authority if it meets the criteria of priority need, with a local connection and the homelessness is not intentional.
Although rough sleepers in an area may have multiple needs, including mental health problems, it does not preclude that they will be categorised as priority need and so may not be considered for statutory provision. In addition, even in cases where rough sleepers are accepted for rehousing, there may be a process of waiting in temporary accommodation that can pose difficulties and even result in a return to the streets. During this time effective follow up and throughcare from outreach staff, who have a developed relationship with the client, can aid sustaining a bed space during this challenging time.
Bed and breakfast option
In some areas bed and breakfast accommodation may be a viable alternative for clients with low support needs (and who have been verified by outreach teams) who require swift access to accommodation but do not require key working. This approach has been particularly successful for older rough sleepers as it allows flexibility and development at the individual’s own pace. It can also be useful for giving accommodation to the entrenched who have negative perceptions of services and are wary of hostels.
Good practice: how City of London uses bed and breakfast accommodation
Bed and breakfast accommodation has been used to bring over 70 rough sleepers off the streets in the City in six months. Rough sleepers from City of London, verified by the local outreach service, were referred into this accommodation. There have been few evictions and clients are assessed for support needs prior to being offered a place. For some service users, this type of accommodation was viewed as preferable to traditional hostel accommodation.
However, bed and breakfast accommodation tends not to be as suitable for younger rough sleepers due to their support needs (in particular, the value of a keyworker to this client group). Rough sleeprs aged 16-17 should not be placed in bed and breakfast accommodation. Outreach workers and housing department staff should carefully consider the route of referral and be focused on the needs of the client. Appropriate move-on accommodation is vital so that rough sleepers are not left in temporary accommodation – especially where there are a lack of facilities (e.g. cooking space).
Voluntary sector provision
If a homeless person does not meet the priority need criteria then voluntary sector provisions such as day centres and hostels are essential to meeting rough sleeper accommodation, move-on, meaningful occupation and ETE needs.
Different services have differing approaches to working and interventions; this means that some services can support those with a low support need (i.e. simply needing accommodation) while other focus on the entrenched or those with multiple needs. The Homeless Link good practice in tackling rough sleeping through street outreach service report found that people with long term alcohol problems, whose behaviour can be more overtly problematic, were more difficult to place and sustain in hostel accommodation. Similarly, there were reported difficulties in accessing hostel spaces for those who wanted to avoid people who use alcohol or drugs. For further information on clients in couples or with dogs please see the Couples and dogs page.
High and low support needs
- High support needs
The Homeless Link good practice in tackling rough sleeping through street outreach service report reflected that it can be problematic to access accommodation for clients fitting into these categories. A lack of provision for drug users and those with mental health problems is highlighted. Some participants in the research said that hostels refused to accept or ended up evicting drug users and that staff lack knowledge and skills around drug use.
Good practice: Westminster’s use of Clean Break to support treatment outcomes
In August 2007, Westminster agreed to utilise Homeless Link’s Clean Break toolkit to look at the range of the services in Westminster, with the aim of creating more integrated housing and care pathways for those engaging in treatment services to improve treatment outcomes and reduce rough sleeping. A working party was established which included representation from commissioners from the Rough Sleeping Team and the DAAT and key accommodation and treatment services providers.
A three stage plan was developed: need analysis, mapping supply and action planning, with a view to creating a systems approach to service provision. More information on the completed actions to date and the planned work ahead can be found in the Resources section.
Good practice: working with drug users at CRI, Brighton
CRI in Brighton undertakes street-based harm minimisation work with injecting drug users, providing a needle exchange, support and advice to reduce drug use, and access to healthy food. CRI also train local hostels and other services in the practical and legal issues associated with working with drug users.
- Low support needs
Outreach teams have reported that obtaining accommodation provision for rough sleepers with low support needs can be as difficult as finding accommodation for people with high needs. The two mains reasons for this are
- rough sleepers without identified needs may not meet the criteria for those where hostel beds are available.
- placing rough sleepers with low needs alongside, for example, Class A drug users, is potentially challenging, perhaps as difficult as leaving them on the streets.
However, due to a lack of provision it is sometimes necessary for isolated people with low support needs to be brought into this less suitable accommodation.
Direct resettlement into a private rented sector tenancy, or bed and breakfast while awaiting suitable permanent accommodation, are options that have proved very successful with this client group (see case study above).
Good practice: Move-On Plans Protocol (MOPP)
Homeless Link recently undertook an 18-month pilot project across ten local authority areas to assess access to, and improve the availability of, move-on accommodation from hostels. This consists of six steps:
1. Partnership
2. Audit
3. Action Plan
4. Work to achieve against the plan
5. Analysis of progress
6. Review
Communities and Local Government recommends that local authorities implement the Homeless Link MOPP and many authorities across the country are now using the MOPP toolkit. More information on the MOPP can be found on the Homeless Link MOPP website page.
Next: Referrals and barriers to accommodation