Will homeless people be forgotten in Scottish stock transfers ?
Evidence from England suggests risk to homelessness services.

Homeless people may be forgotten in stock transfers. This was one of the key findings of "But what about me .... ? Homelessness after stock transfer" – a major study by Scottish Council for Single Homeless which looked at services to homeless people after stock transfers in England . The findings indicate that homeless services are likely to deteriorate unless local authorities and registered social landlords (RSLs) plan early.

The dangers lie in dividing up homeless services between local authorities and new RSLs instead of maintaining a comprehensive, integrated service. Scotland must learn from this experience.

Commenting on the report, the director of SCSH, Robert Aldridge , stated:

"This report sends a clear message to the Scottish Executive and local authorities contemplating stock transfer. If transfers are to go ahead, we need to be planning how homeless services will be delivered at the earliest opportunity. We are very concerned that homelessness services are not being given the priority they deserve. We are therefore calling on the Executive to ensure that the future of homelessness services is given high priority in the criteria for decision-making on whether to approve each transfer.

It is clear that homeless people in England were best served during stock transfer when decision making was kept within the council. Council housing departments are mainly responsible for services to tenants but also for providing services to the wider community. In particular, they are required by statute to provide a range of services to homeless people. In practice, the organisation and funding of a councils landlord and statutory functions have been inextricably linked for many years. Stock transfer challenges these established patterns of service delivery and is therefore a risk to effective services for homeless people."

Key recommendations

The following points are aimed at the Scottish Executive, local authorities considering stock transfer, new and existing bodies taking on stock arising from stock transfer and other interested parties.

• New landlords should work with central and local government and the voluntary sector to ensure that the issues around homelessness are properly considered before transfers proceed. Common frameworks for operations must be agreed at local level.
• The future of homelessness services should be given high priority in the criteria for decision-making by the First Minister on whether to approve each transfer.
• Local authorities should ensure that prior to ballots, the public, and not only existing tenants, is provided before with comprehensive information about the prospects for services to people in housing need after transfer.
• If any aspect of the homelessness function is to be contracted out, local authorities should work out policies, procedures and standards with the new provider well ahead of transfer and ensure that a monitoring framework of standards, targets and performance indicators are specified in contracts.

Services to homeless people (the English experience)

Our research highlights the following concerns about key aspects of services to homeless people, all of which will need to be considered for future Scottish transfers.

Temporary accommodation

Temporary accommodation was generally transferred along with other stock. There is evidence of pressure from councils on new landlords to reduce the use of temporary accommodation provided at the council’s expense. This may lead to quicker re-housing, but there is some evidence that it has led to more restrictive interpretations of homelessness.

Homelessness outcomes

Some local authorities and voluntary organisations report deteriorating services where homelessness casework has been contracted out, with more restrictive decisions on priority need, particularly in regard to vulnerable young people. Arguably some council policies surrounding priority need were already restrictive before transfer.

Contracting out

Some Councils have contracted out their homelessness functions. Contracting-out of homelessness casework has worked well in some areas, and not in others. The decision to contract out generally comes last and is based on criteria other than quality of service. Some reviews have resulted in services being brought back into Council operation at a later stage.

Public awareness

Public understanding of the arrangements after transfer was poor; in particular, there was confusion over the roles of the different bodies, especially initially and if homeless assessment and decision-making were separated. It is vital that those who are at risk of homelessness are aware of where to go to access housing services.

Summary of key findings

• In transfers to date, providing a quality homelessness service has not been a significant consideration in decisions about whether to transfer.
• Experience has been mixed on whether there are benefits in the service to homeless people in cases where stock transfer has taken place.
• Some local authorities and voluntary organisations reported a decline in the quality of the homelessness service following transfer and specifically following contracting out, if the new landlord does not give priority to homelessness.
• Where benefits were noted the ability to make that happen was dependent on issues like a commitment to improvement from all parties, good working relationships at all levels and attention to practical arrangements long before transfer took place.
• In transfers to date the relative advantages and disadvantages of contracting out do not generally appear to have been considered in detail prior to any decision being taken. The decision on whether to contract out was based on criteria other than the quality of service to homeless people.

Notes

• The report presents the key findings and recommendations of research carried out by the Scottish Council for Single Homeless and the University of Stirling between October 1999 and February 2000. The aim of the study was to address the question, ‘How can local authorities’ statutory duties towards homeless people best be implemented after stock transfer, and how can best practice be ensured?’ The final report summarises the lessons for potential future transfers in Scotland .
• Scottish Council for Single Homeless (SCSH) is the national membership body for organisations and individuals tackling homelessness.
• Robert Aldridge is a member of the Homelessness Task Force led by the Scottish Executive.
• Copies of the report are available for public sale at £10 (+£1.50 P&P).