Building on the Past Ending Homelessness in Wales Who We Are: Shelter Cymru, the Housing and Homelessness Charity

Building on the past Ending homelessness in Wales Who we are: Shelter Cymru, the housing and homelessness charity.

What we believe: Bad housing wrecks lives and everyone should have a decent, suitable home.

What we do: We help people ﬁ nd and keep a home. We campaign for decent housing for all.

What we are ■ independent ■ challenging and authoritative ■ positive ■ inclusive ■ responsive ■ passionate and knowledgeable.

What we want: ■ an end to homelessness Shelter Cymru ■ a greater say for people over their homes and lives 25 Walter Road ■ a suitable, affordable and secure home for all Swansea SA1 5NN ■ access to support for anyone who needs it Phone: 01792 469400 ■ neighbourhoods that are safe, well served and Fax: 01792 460050 where people choose to live. Advice and Support: 0845 075 5005 Email: [email protected] 01792 774939 Web: www.sheltercymru.org.uk

02 Conference Report 2008 Design & Production Introduction

We are having a new 10 year Homelessness Plan, This could be the moment when we take tackling a new Supporting People Strategy and an homelessness out of its often disregarded and The journey so far overarching new Housing Strategy for Wales. misunderstood little compartment and make it You can’t argue any more that housing and central to our efforts to create sustainable homelessness are not on the political agenda. communities, rebuild lives, combat poverty and ill The legal framework relating to homelessness is health and develop new approaches that work now over 30 years old and has helped many With impeccable timing the issue of affordable with the aspirations and hopes of people in thousands of people in Wales since its inception in housing has also shot up the media agenda as the housing need. 1977. Homelessness however is still here. 6,336 credit crunch bites, house prices fall and mortgage households experienced statutory homelessness in products disappear. Seldom has Shelter Cymru With new powers and commitment the Welsh Wales during 2007. There are no offi cial fi gures for been in so much demand by the media to comment Assembly Government can take the lead on this those dealt with under the homelessness on the housing crisis, and it’s diffi cult not to fall into new approach, but all partners in Wales, statutory prevention agenda and those sleeping on friends’ “I told you so” mode when asked why it has and third sector will need to fully commit to fl oors or in other hidden homelessness situations happened and what happens next. playing their part. do not appear in any statistical returns.

But the market correction so long predicted by That will mean a change in how all of us think and The debate continues about: many of us may have a silver lining if it means that work. That’s the debate our 2008 conference ■ Who is homeless? a wider recognition of housing need and wants to start. ■ Did they cause their own homelessness? homelessness and the need for more affordable ■ Should they be helped? housing takes hold. Most importantly a mood of ■ When should we assist people and how? and “something must be done” among the public of ■ What about those awkward people who fall Wales could help to not only keep the issue high on outside the legislative safety net? the political agenda but also provide the consensus for increased investment so vitally needed. John Puzey This report charts the introduction of homelessness Director legislation and the major developments in terms of At all levels the call is for government intervention housing and homelessness in Wales since 1977. to save banks and to prop up markets. This mood Finally, it outlines Shelter Cymru’s vision for a may also be translating into the need for increased framework to end homelessness in Wales. help for people facing or experiencing homelessness.

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Pre 1977 1977 1980 The National Assistance Act The Housing (Homeless Persons) The Housing Act 1980 introduces security 1948 laid the foundation for Act 1977 places the fi rst ever duty of tenure in social housing, the Right to Buy the Welfare State. on local authorities to help for council tenants, and a shorthold tenure homeless people. for the private rented sector. The Act terminated the existing Poor Law, and The National The Act provokes much debate not 1979 A property owning democracy. Assistance Board and local least from those who thought it Housing explodes onto the Welsh Wales has long been hot on home ownership signalled the demise of waiting lists and the Right to Buy was too good an authorities were to provide help scene as Meibion Glyndwr begins and the over prioritisation of its campaign against second opportunity to miss. The Prime Minister of the for persons in need. homeless households. An invitation homes. Around 300 are targeted time spells out the reason and the ideology to be irresponsible really: in the next 25 years. behind the reform. Section 21, National Assistance ‘Having pregnancy as a criterion for Act 1948 - Duty to provide allocating a fl at surely is an invitation ‘Someone somewhere knows ‘Michael Heseltine has given to millions - yes, residential accommodation to to the irresponsible. In effect, that is something.’ millions - of council tenants the right to buy those people aged 18 years or what is being said to a young couple Investigating Police Offi cer. their own homes. It was Anthony Eden who over ‘who by reason of age, who years ago may have waited chose for us the goal of “a property-owning patiently with their name on a democracy”. But for all the time that I have illness, disability or any other In the political spectrum, Welsh housing list to get a home and then devolution is rejected by 4 - 1. been in public affairs, that has been beyond circumstances are in need of waited a few more years before the reach of so many, who were denied the care and attention which is not starting a family. What is being said right to the most basic ownership of all - the otherwise available to them’. to girls in that position is “Get homes in which they live. They wanted to buy. pregnant, and you will get a home”.’ Many could afford to buy. But they happened David Mellor, MP for Putney to live under the jurisdiction of a socialist Hansard, HOUSING (HOMELESS council, which would not sell and did not PERSONS) ACT 1977, believe in the independence that comes with 29 February 1980. ownership. Now Michael Heseltine has given them the chance to turn a dream into reality.’ 14,481 houses were completed Margaret Thatcher, Prime Minister, in her during this year. 6,991 were social speech to the Conservative party conference housing units. in Brighton on 10 October 1980.

04 Conference Report 2008 86

Martin Shakeshaft – www.strike84.co.uk

1982 14,943 homes are sold under Right To Buy at an average price of £7,516. 1984 The Social Security and Housing Benefi t The Miners strike hits communities Act establishes the housing benefi t across Wales. 1981 system - aimed at simplifying the 1986 Shelter Cymru is established as complex arrangements that had been Welsh Housing Aid becomes Welsh Housing Aid Welsh Housing Aid (at that time previously developed and helping low independent from Shelter in England. changes its name to part of the Shelter National income households to pay their Shelter Cymru. Housing Aid Trust). accommodation costs. Chief housing offi cers in south Wales bemoan the lack of investment into Housing conditions are a The 1982 conference report sums improving housing in Wales. big issue and 199,000 up the principle behind the houses in Wales are said organisation’s establishment and it 1983 Around 341,000 people in Wales to be unfi t for human has remained as the underlying In the wake of the Falklands war, the receive Housing Benefi t. (Hansard habitation. This is 19.5% reason for its work since. Conservatives win the General January 1984). of the stock. Election and take a record 14 seats in ‘In the complex fi eld of housing Wales. Neil Kinnock becomes the new The conditions of houses rights, housing aid is about Labour leader. in multiple occupation is supporting and helping people to 1985 in the news with the death unravel their housing problems and 8,674 homes are sold under the Right to The Housing Act 1985 introduces the of a man in a bedsit fi re in pursue the best course to improve Buy while local authorities and housing housing fi tness standard. Pontypridd. their situation.’ associations complete 2,267 properties. Housing Benefi t is derided as the 5,008 homeless cases - out of 9,191 - ‘biggest administrative fi asco in the are accepted by local authorities. history of the Welfare State’ (The Times).

Welsh Housing Aid opens its Wrexham housing advice service.

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1989 Some separate structures for Welsh housing are established: Tai Cymru opens for business with the remit of increasing the supply of well managed, good quality housing for those unable to meet their needs through purchase or rental at open market prices. 1988 1990 The Housing Act 1988 introduces The Welsh Federation of Housing Associations is established. The Poll Tax revolt is in full swing protection for existing tenants, new across Wales. tenancies on market rents and 12,468 homes are sold under the Right to Buy at an average price Assured Shorthold Tenancies. The Act of £12,319. In Cardiff alone, 20,000 people also establishes Tai Cymru to take refuse to pay. Margaret Thatcher is over the remit of the Housing Shelter Cymru claims the offi cial homelessness statistics for 1989 - replaced as Conservative leader Corporation in Wales. when there were 14,450 enquiries, 11,489 cases presented and and Prime Minister by John Major. 7,805 cases accepted - are just the tip of the iceberg. After opposition to the Housing Act, the Major fl ooding in north Wales sees Welsh Tenants Federation is established With the advent of the 1988 Housing Act and house price increases, thousands left temporarily as the fi rst national tenants organisation Shelter Cymru’s Director Val Feld paints a bleak picture of the future: homeless. in Wales. ‘Looking ahead to the 1990’s it is hard to see hope for homeless people. Despite our efforts, homelessness in Wales increased by 17% The Tenant Participation Advisory Service last year and in May 1989 the National Housing Forum pronounced Cymru is also set up. the housing problems in Wales “the worst in the UK”. Our fears are that massive house price increases in Wales and high mortgage rates Following the death of a man in a bedsit will bring increased homelessness in the future.’ fi re in 1986, Shelter Cymru’s HMO Working Party calls on central and local The Children Act is introduced but, in practice, it fails to resolve the government to control standards and confl ict between housing departments and social services teams as management in this sector. to who helps whom.

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1991 The housing market crash takes hold and over 10,000 households in Wales face possession action. 1994 The homelessness legislation The Welsh Ofﬁ ce publishes Housing in Wales: An has helped 250,000 people in Agenda for Action with three key Welsh objectives: Wales since 1977 but reform 1995 1992 is imminent. Shelter Cymru Negative equity affects ■ Increase home ownership to around 80% by the campaigns against the Neil Kinnock resigns as Labour households across the year 2000 (no similar target existed for England). proposals to reduce the rights leader after the Conservatives win UK including around This was quietly abandoned in 1996. of homeless people. again in the General Election. 17,500 in Wales. ■ Create diversity and choice for people who could not, or did not want to, become home owners. Shelter Cymru launches its legal The recession in the housing market 2,434 units of social ■ Improve the quality of housing and the lives of casework service and a national continues to bite, with falling prices housing are completed, occupants. housing telephone helpline. and increasing interest rates. 2,258 by housing associations. 2,265 On its 10th anniversary, Shelter Cymru estimates Government reorganisation is Cynog Daﬁ s MP seeks the repeal of homes are sold under the that 65,000 people experience homelessness in one coming with the Local intentional homelessness but is told in Right To Buy at an form or another in Wales and calls for a radical Government (Wales) the Commons that this will not average price of £17,000. answer to the Welsh housing problem - ‘house Act 1994 setting the stage for happen. His request that the Secretary prices in many areas would be pegged by law within 22 local authority areas. of State for the Environment ‘make it a narrow band set by people’s ability to pay.’ his policy to provide funding for local authorities and housing associations Housing is again a subject of protest. to enable them to take on mortgage The lack of affordable local housing in communities debts’ is similarly rejected. (Hansard, in Wales hits the headlines as two Cymdeithas yr November 1992). Iaith Gymraeg activists receive prison sentences as the result of protests in support of a Property Act.

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1996 1997 Following intense debate, the demand and they will not increase The Labour Party wins a landslide by our own assembly to achieve the great Housing Act 1996 erodes some of the housing supply.’ (Diana Maddock MP, victory in the General Election after advances that our people need and are rights provided by the 1977 Act and Hansard 20 Nov 1995: Column 377). 18 years of Conservative rule. Its capable of achieving, but our history is introduces short-term assistance. devolution policy means a new future against it, and I fear the worst.’ (Sir Wyn Despite opposition, the Single Room in Wales. Roberts MP, Hansard 20 Nov 1995: ‘Investment in housing cannot be Rent that restricts the amount of Column 373. measured only in terms of money and housing benefi t that single people This is what one eminent Welsh fi nance; the value of investment in under 25 years of age are eligible for is Conservative MP said about devolution On 18 September 1997 Wales goes to the homes has a tremendous effect on introduced. At least some of its barely 15 months earlier: polls and decides with JUST over 50% people’s lives. To be homeless can be consequences are foreseen at the time: ‘My real complaint against the Opposition to establish a devolved assembly. crippling. Not only is it very stressful: it and their obsession with devolution is that is also very damaging to people’s ‘The limitation of housing benefi t they distract attention from Wales’s real A report by the Institute of Welsh Affairs physical health. Homelessness means amounts for young people under the need to strive and battle ever harder to says that: that people are often excluded - they age of 25 will have a series of malign develop its economy and to bring ‘Wales has the worst housing in Britain, are divided from society and shut out consequences. It will force young increased prosperity to its people. and the oldest in Europe. And it will get from opportunity, education, meaningful people out of bedsits and one-bedroom A Welsh assembly will not create jobs, worse, jeopardising hopes of economic work, health care, fi nancial support and, fl ats into inadequate, unregulated and except for the boyos of the Labour party recovery, without fresh investment.’ fundamentally, decent housing. Quite potentially dangerous multi-occupation perhaps. It will not bring a single foreign It calls for more investment in social apart from everything else that the dwellings.’ (Chris Smith MP, Shadow or British investor to Wales - it will scare housing and ‘the creation of local housing Government are proposing, these Social Security Secretary, Hansard, them away. It will sap such power as companies with a mixture of private, local reforms are really something of a con House of Commons, 29 Nov 1995, Wales has in Westminster and in Whitehall authority and community involvement.’ trick. Putting homeless people into Col 1216). and dissipate scarce resources in what (Malcolm Fisk and Dale Hall, Institute of temporary accommodation and then on will prove to be a petty squabbling shop Welsh Affairs) Reported in the Times to the waiting lists will not make the Research by the Joseph Rowntree rather than a talking shop. Wales will be 7/3/1997. waiting lists any shorter or make any Foundation reveals the need for torn apart. We shall see north versus difference to the speed with which most additional ‘social’ housing will average south, the valleys versus Cardiff, and With devolution on the horizon Shelter of the people currently on them will be between 4,000 and 5,000 new homes a unitary authorities versus the assembly. Cymru begins the call for a National housed. The Government’s proposals year in 1991-2001 and 5,000 a year in Of course, I wish that it were all going to Homelessness Strategy for Wales. will not reduce housing need or housing 2001-2011. be different and that we would be inspired

08 Conference Report 2008 01

1998 2001 The Government of Wales Act establishes Extending priority need The Homelessness Commission is established. the National Assembly for Wales. Following lobbying by Shelter Cymru, the Shelter Cymru continues to call for a National Assembly passes its fi rst piece of Homelessness Strategy and one of the 8.5% - or 98,000 occupied homes - of the homelessness legislation and introduces new Commission recommendations is that: Welsh housing stock is unfi t. priority need categories under s189 of the ‘The National Assembly should adopt a Housing Act 1996. This legislation gives priority strategy for addressing homelessness in Wales need for homelessness assistance to groups that should form part of the wider National including 16 and 17 year olds and prisoners Housing Strategy for Wales’. 1999 released as homeless. On 6th May 1999 Wales elects its fi rst The Assembly Goverment sets a target that all National Assembly for 600 years. Although the Order caused controversy and social housing must meet the Welsh Housing misinformation is rife, research supports the Quality Standard (WHQS) by 2012 but - with Shelter Cymru calls on the Assembly to need to tackle housing need, even amongst the Public Sector Borrowing Requirement rules extend the homelessness legislation in Wales the most controversial group in the order. - where does the fi nance come from, and will and increase the priority need categories. this herald a rush to stock transfer? ‘Research suggests that stable accommodation can make a difference of over 20 per cent in House prices have been increasing year on terms of reduction in reconviction. This is year since 1996 but in 2001 the increases 2000 unsurprising as the need to look for housing begin to get steeper. The roller-coaster is Paul Bevan’s Rough sleeping in Wales makes it hard to fi nd a job and earn money underway everyone aboard or not. report is published and makes wide legitimately - over three times as many ranging recommendations, including ex-prisoners with an address on release were Shelter Cymru introduces its Education the introduction of local homelessness in paid employment as those without an Service to provide young people with vital champions and reiterating the calls for address.’ (Home Offi ce) information about the diffi culties they could a national homelessness strategy. face when leaving home.

Homelessness ﬁ gures rise with 12,804 applications and 4,156 cases of priority need. This trend continues for another 4 years.

Conference Report 2008 09 02

2003 2004 It’s a big year The Housing Act 2004 introduces new regulation for The Assembly Government launches the National the private rented sector, tenancy deposit protection, Homelessness Strategy for Wales 2003-2008 - the fi rst HMO licensing (fi nally) and a new housing fi tness 2002 strategy in any of the UK countries. The strategy aims to set regime (with the introduction of the Housing Health and Safety Rating System). The legislative safety net is again a national lead for tackling homelessness at a local level and amended with the introduction of the has 22 strategic objectives. The Westminster Government establishes pathfi nder Homelessness Act 2002 and the areas to test a new way of paying housing benefi t to changes made to Part VI on the ‘The Welsh Assembly Government believes that everyone households in the private rented sector. Conwy and then allocation of accommodation and Part in Wales should be able to live in a good quality, affordable Pembrokeshire participate. VII on homelessness. It includes new home. People need this to live stable, constructive lives. duties on local authorities to: It recognises that homelessness is one of the most serious forms of social exclusion, and has a major effect on all other Statutory homelessness reaches its highest level in Wales ■ Carry out a review of homelessness aspects of a person’s well-being. A home is more than a since records began in 1978, with 10,017 households in their area. physical structure; it represents a sense of belonging, security homeless and in priority need. ■ Publish a strategy to tackle and and of personal affi rmation.’ (National Homelessness prevent homelessness. Strategy, 2003) There is a 23% increase in average house prices between ■ Provide settled accommodation for 2003 and 2004 and the trend of increasing mortgage unintentionally homeless people in It also publishes the fi rst separate Code of Guidance for possession claims and orders begins. priority need; and Local Authorities on the Allocation of Accommodation and ■ Reforms to the framework by which Homelessness. Stock transfer remains contentious with a ‘no’ vote by councils allocate housing. tenants in Wrexham. It leaves the council with the Following a vote by tenants, Bridgend County Borough dilemma of how to fund improvements to the stock. Council becomes the fi rst to complete a large-scale voluntary transfer of its housing stock. Valleys to Coast Housing is The Richard Commission considers the future structure, created as a result. powers and role of the Assembly and Welsh Government. Shelter Cymru’s Education Service introduces a 3 year 411 social rented units are built and 6,839 units are sold to peer education project to involve young people who have the Right to Buy. experienced homelessness to relate their experiences to their peers.

10 Conference Report 2008 06

2006 The work of Shelter Cymru and partners pays In Shelter Cymru’s 25th year John Puzey 2005 off and the Assembly introduces legislation identifi es the work of the organisation and the The advent of the Prevention on B&B and temporary accommodation. challenges that are faced. Agenda heralds a drop in ‘The nature of the problems Shelter Cymru was statutory homelessness but at a The second National Homelessness Strategy is set up to tackle has changed, but the scale is time of housing market pressure, published with homelessness prevention top of still daunting with many thousands of lives in expensive rented accommodation the agenda. Wales blighted by homelessness. This is unjust and diminishing social housing, and wrong and we remain firmly committed to where have the people gone? ‘The aim should be to enable people, as early as the need for change and our belief that everyone possible, to locate their own solutions to their should have a home. The lack of affordable Housing affordability continues to housing problem, which will very often be in the homes is creating a more divided Wales and worsen and research shows that private rented sector.’ (National Homelessness threatening social cohesion and stability. Many the price of a 2/3 bedroom house in Strategy 2006-2008). more people are now unable to buy or rent Wales is 4.6 times the average suitable homes, not only seriously affecting the annual income for those in full-time As activity in the owner occupied housing health and life chances of increasing numbers of employment compared to the 2.9 market continues to grow, by the end of 2006 people, but also potentially creating an ratio during the early 1990’s. the average house price in Wales has increased atmosphere of discontent and intolerance. by 115% since 2001. Housing infl ation is widening the divide - 43% of younger working increasing the wealth of many at the expense of households are unable to buy a 2/3 The Government of Wales Act 2006 heralds others who are unable to afford to get on the bedroom house within the lowest the new face of devolution and greater fi rst rung of home ownership. Wales is now the quartile of house prices while 22% Assembly powers. least affordable region for housing outside of cannot afford to buy within the London and southern England. This, in turn, lowest decile of prices. Realising the need to provide coordinated and increases pressure for scarce rented specialist support to people faced with accommodation leading to many people The Living in Wales Survey shows homelessness because of alleged anti-social experiencing homelessness’. that unfi tness has decreased - behaviour, Shelter Cymru introduces its 57,000 occupied homes are unfi t groundbreaking Valleys Inclusion Pilot Project compared to 98,000 in 1998. in Caerffi li and Rhondda Cynon Taf.

Conference Report 2008 11 07

2007 2008 The Assembly elections come and go but ‘In some ways the housing market has The credit crunch is here the question of who will govern Wales is resembled a drunk standing at the bar in Possession actions continue to rise, banks pull not settled. A period of intense discussion some back-street boozer. With every drink he mortgage offers and house prices fall. The word leads to the Welsh Labour and Plaid Cymru has, people think he must soon stagger and CRASH tentatively re-emerges and house prices in coalition and the One Wales agenda. tumble over. But he doesn’t. He keeps Wales fall by 4.7% during the fi rst three months of drinking and he remains standing. He stays up the year. The biggest fall since the early 1990’s. The One Wales document commits the for so long that eventually people decide they coalition to ensuring that there is enough were wrong to think he would fall over. But The Local Housing Allowance revolution is here for housing to meet people’s needs in all then, just as they decide he will never fall, he households in the private rented sector. communities. There is a commitment to takes the last drink and fi nally tumbles to the provide 6,500 new affordable homes over ground.’ (Ashley Seagar, The boom is over, Funding the Welsh Housing Quality Standard the term of the Assembly. the price must yet be paid, The Guardian, Seven local authorities have approved transfer and 19 February 2007). three others are planning to ballot tenants. Seven A snapshot survey by Shelter Cymru fi nds authorities have decided they have suffi cient that there are over 80,000 households on In the fi nancial year ending in March 2007 resources to improve stock and three continue to waiting lists in local authority areas across there were 9,934 housing completions. debate the options. The high profi le no votes in Wales. 346 of which were social housing units. Wrexham and Swansea still leave these authorities A further 391 social housing units were considering their position with less than four years In the home ownership sector, with over 9,000 started. to go until the deadline of 2012. claims issued, mortgage possession actions continue to rise and reach their highest since Swansea tenants vote ‘no’ in the stock The Joseph Rowntree Foundation Commission on 1992 as Welsh households face high house transfer ballot. Rural Housing in Wales reports that there is prices and unmanageable debt. increasing unmet housing need in rural areas with The Assembly, as the Assembly Government, the problems of affordability becoming more acute. Prices continue to rise - a holiday chalet is on applies for a Legislative Competence Order sale in Abersoch in Gwynedd for £500,000 - on affordable housing and controlling the The Assembly Government gears up for a 10 year but there are signs of falling house prices to Right to Buy in Wales. plan to tackle homelessness and starts work on add to the increasing repossessions. the new National Housing Strategy.

12 Conference Report 2008 Tackling homelessness in the future

Is it now time for a fundamental change? Helping people acquire the skills required to live ■ Universality - All people facing or experiencing The homelessness legislation has helped, and independently is crucial. Homelessness assistance homelessness should have the right to continues to help, thousands of households in needs to be integrated with help to access other assistance to secure a suitable home. We should Wales every year. It is however over 30 years old services such as employment/training, education ensure that all people in Wales have a right not to and was introduced in a very different environment and health. be homeless. certainly as far as housing is concerned and, it could be argued, people’s aspirations. It is a The system will incorporate incentives and ■ Preventing homelessness - Prevention and restrictive and infl exible all or nothing package, rehabilitation rather than knee jerk exclusion. options work should become part of the it gives people little control over options and it The removal of the ‘priority need’ barrier and a statutory framework and be linked to fl exible maintains a basically punitive approach. fundamental reform of ‘intentional homelessness’ tenure responses. are key elements of these changes. Shelter Cymru does not believe that changing the ■ Flexible responses - The home option could law in itself will end homelessness. But it does Clearly resources and capacity to deliver this new be a short-term lease in a private or social rented believe that changing the legal framework can approach are fundamental, but equally much can property, a longer-term lease, a low cost home make a huge difference to how services are be done now to ensure services are optimised and ownership scheme or a secure or assured social delivered, resources deployed and how services partnerships developed. tenancy depending on needs, circumstances and citizens interact. and availability. The underlying elements of any new legislative and A new citizen-centred approach, incorporating both service framework should include: ■ Accountability - Services must be accountable changes to the legislative framework and to the people who use them. The aim must be developing a broader cooperative partnership ■ Information and knowledge - A public to support citizens so they are able to engage framework between a range of services must be information and education campaign to ensure with services as equals, so that options are the way forward. The key aspects of this will be that people understand their rights and what mutually agreed increasing the likelihood of that all homeless households are assisted into they should do if they are experiencing housing sustainable outcomes. suitable homes which meet their immediate needs diffi culties. Such a campaign should reach out to and, when necessary, are provided with a package all citizens so that a greater understanding and of support that can help address their longer term tolerance of housing need and homelessness aspirations in a sustainable way. is encouraged.

Conference Report 2008 13 Conclusion

Shelter Cymru remains convinced that the essential elements in combating homelessness are more affordable housing supported by a framework of law and rights. Part of this is to reform and re-energise the current legal system that means-tests and restricts homelessness assistance.

We believe this provides the foundation for an inclusive and progressive framework to tackle homelessness and exclusion in Wales. A framework that increases rights but also increases the opportunities for independent living and the exercising of responsibilities.

We need a well resourced approach based on working with aspirations and hopes and building a partnership with people. This approach could transform the experience of homelessness and housing need from one that is often the start of a downward spiral of poverty and deprivation - to one that signals a new start in life.

14 Conference Report 2008