An unnatural disaster Report of the Commission of Inquiry into homelessness and poor housing conditions in Wales

“Homelessness and housing need are not natural disasters; decisions of policy and resources are responsible for them. With political will we can change this situation – we can make Wales a country free of poverty and homelessness.” 1 Swansea Inquiry Day An unnatural disaster: Report of the Commission of Inquiry into homelessness and poor housing conditions in Wales. © Shelter Cymru June 2007

Shelter Cymru, 25 Walter Road, Swansea SA1 5NN Phone: 01792 469400 Fax: 01792 460050 Email: [email protected] Web: www.sheltercymru.org.uk

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2 Contents

Key recommendations 4. Affordable housing

1. Introduction 4.1 Why it is important

2. A national priority 4.2 The housing market and home ownership

3. Homelessness 4.3 The issue of supply

3.1 What is homelessness? 4.4 The Private Rented sector

3.2 How many people are 4.5 What is needed? homeless? 4.6 Affordable homes and investment 3.3 Leading on homelessness 4.7 Land and affordable housing 3.4 Local responses 5. A new approach 3.5 Services and practices 6. Conclusion 3.6 Intentional homelessness 3.7 How the money is spent Appendices 3.8 Resourcing the response i The Panel of Commissioners

ii Inquiry locations and evidence

iii Definitions of homelessness

3 Key that could see the disappearance of growth in social rented housing is local homelessness strategies. needed, but also new low cost home recommendations ownership initiatives. An important A new approach part of the new provision should be A new priority for people’s homes flats and bed sits, in sustainably- It is essential that a citizen- designed neighbourhoods, to There is an urgent need to centred approach to delivering respond to changing demographics address the serious shortage public services is developed and in particular the needs of young of affordable homes in Wales. in Wales and used in providing people. We believe the Assembly People’s homes must be a top homes. It must drive homelessness Government should aim to provide priority in the next Welsh Assembly prevention and the provision of 3,500 new affordable homes a year Government strategic plan. In affordable homes. In particular by 2011. practice this means a significant further moves to optimise increase of public investment resources, strategies, capacity People who want to buy in affordable housing as well as and expertise by combining local but cannot afford to get on the identifying innovative ways in which authorities across regional areas to first rung of ownership must be private investment can be accessed. respond to housing need should helped. A significant proportion be encouraged. We propose that of the new investment should be Tackling homelessness and planning for new homes should be directed at low cost, high quality housing need requires leadership undertaken on a regional basis and and sustainable home ownership and a change in culture at all resource allocations for housing, schemes, in particular looking at levels. It is essential that politicians homelessness and supporting the possibilities of shared equity generate a public debate that people should be also be regionally schemes with private lenders that providing affordable decent homes is provided. We also believe that can both extend Homebuy and fundamental to addressing concerns an approach that brings together make it more viable for first time about health, education, crime, anti- a number of local authorities buyers in high price areas. social behaviour, the environment working on a regional basis offers and local economic development. greater opportunities to raise new Land costs can make the private investment to provide more difference between an affordable The Welsh National affordable housing. home and yet another expensive Homelessness Strategy is hardly house on the market out of the recognised beyond people Affordable homes and investment reach of most people in the working in housing. The strategy local community. The Assembly must be elevated to the level of a We can no longer ignore Government should introduce key corporate programme for the the strains placed on our legislation that makes it easier Assembly, crossing all committees communities by the rampant for local communities to set up and divisions. Equally, its importance housing market. The Welsh Community Land Trusts (CLTs). must be reinforced with local Assembly Government must set CLTs can build homes, which authorities, local health boards and a new affordable homes target remain affordable to local people voluntary organisations, particularly funded by a combination of public in perpetuity giving them assets given the plan rationalisation process and private investment. A significant to move on when they are ready.

4 The Assembly Government should recorded which makes it difficult to and that the ‘housing approach will fund a CLT advice and development estimate real demand. It is essential begin to run out of alternatives. We agency to help and advise local that the new ‘options’ approach propose that funding to provide communities. is rigorously monitored not only in support to help people find and terms of numbers but also the quality keep their homes, both to voluntary Improving good practice and of outcomes. groups and local authorities, should challenging homelessness be significantly increased over The increase in resources and above inflation levels for the Intentional homelessness is a to tackle homelessness over next four years to ensure that no relic of the Poor Law. It punishes recent years is welcomed. These one is homeless through a lack of often vulnerable homeless people increases have undoubtedly made a services, support or accommodation. who may have lost their home difference. But we believe that more We propose that in order for through naivety or simply making resources are necessary to step up the ambitions of the National wrong choices. Often it is people’s homelessness prevention work and Homelessness strategy to be quickly social circumstances or health to provide more suitable alternative met the Assembly should also double problems and addictions that lead accommodation, advice and support the current homelessness grants to homelessness. We support the and to maintain existing effective programme to £10 million. Social Justice and Regeneration services and projects. We are Committee’s call to introduce concerned, given the current housing Introduce a clear single legislation in Wales to end the use market, that the demand on local definition of homelessness in of intentional homelessness for authorities and voluntary agencies Wales and launch a publicity households under 25 years old.1 will continue to increase campaign to explain it and what We also believe that the new laws people should do if they are should end the duty to find other facing housing problems. Having households intentionally homeless a definition recommended by the and to increase support and advice Welsh Assembly and a separate with the aim of finding sustainable different statutory definition does suitable alternatives. not help in either assessing the extent of the problem or assisting The new vigour with which people in understanding what local authorities are embracing duties they may be entitled to. We the homelessness prevention propose that the WAG definition is agenda is to be applauded. incorporated into the statutory one Many people are benefiting from and that a promotional campaign the ‘housing options’ approach, is launched encouraging people to which seeks to find alternative seek advice and assistance if they accommodation as early as possible are experiencing housing problems for people facing homelessness, or face homelessness. but the evidence suggests not all outcomes are beneficial. The new approach has also led to a change in how homelessness figures are

1Youth Homelessness ‘Everybody’s business, no-one’s responsibility’, (Social Justice and Regeneration Committee, January 2007)

5 1. Introduction payments, and from people who had proposals will make a difference, lost private rented homes because but the most important aspect is by the Archbishop of Wales, The their landlords did not renew tenancy that leadership and political will Most Reverend Dr Barry Morgan agreements. is shown at all levels on the need (Chair of the Commission of for more affordable homes and a Inquiry) We heard from people who had determination to end homelessness experienced particularly traumatic once and for all. Over the nine months between April events in their lives, which led to and December 2006 the Shelter them being homeless and living Cymru Commission of Inquiry held in hostels and people with mental six evidence days in locations health problems who needed help across Wales. Over 160 people gave to find and keep a decent home. We evidence and over 80 groups were want to thank all these people who represented. found the courage to share their experiences with us. During that time we heard from 2. A national priority a wide range of agencies about We talked to politicians and In 2003 the previous Welsh the effects of homelessness and government officials in Wales at Assembly Government published poor housing on families, children all levels, representatives from ‘Wales: a Better Country’, its and other vulnerable people, but the private sector and the police. strategy for the 2003-2007 it was listening to the experiences We also heard from many people Assembly term. ‘Wales: a Better of individuals who were either representing statutory and voluntary Country’ set out ten top priorities homeless or living in appalling organisations working in an for the Assembly. They are without conditions that made the most extraordinarily dedicated way with doubt important priorities, but a impact on us. To many people in people who were in housing need or fundamental issue not included in Wales the notion that there is still homeless. These included support the list was people and their homes poverty and homelessness in our workers in hostels, housing officers – a priority to ensure that people country may be unbelievable. The in local authorities, advice workers, could find affordable homes and extent and intensity of it shocked us health workers, youth workers, all that no one in Wales should be as Commissioners, some of whom working under immense and, it homeless through a lack of services thought they already knew the seems, increasing pressure. We or provision. It was a pressing issue extent of the problem. want to thank all these people who then. From the evidence we have make a huge, positive difference to heard it is even more so now. We heard from families with children people’s lives. living in temporary accommodation, The focus of our Inquiry was on confused, depressed and uncertain There were many issues raised with homelessness but although much of their future; from young people us and in this report we make a of the evidence was about how living in poor and sometimes number of key recommendations, current practices, joint working and overcrowded conditions because which we hope the new Welsh homelessness prevention work can of the lack of suitable homes and the Assembly Government, local be improved, it became clear that failure of the benefit system; from authorities and voluntary agencies many people facing or experiencing people facing eviction because they will prioritise. We believe these homelessness, or living in temporary were unable to keep up mortgage

6 accommodation and hostels were Social Justice and Regeneration, the Assembly to drive a new and primarily there because of a lack of members of the Social Justice exciting agenda given enforced alternatives. Put simply, they had and Regeneration Committee and savings on personnel. We are nowhere else to go. the team of officials concerned concerned that even though all the with housing and homelessness political parties have pledged more The evidence illustrated the very in the previous Welsh Assembly funding for social housing none of clear link between homelessness Government were committed to the promises will make the kind of and the lack of affordable housing tackling the problem and took huge impact that is now necessary. in Wales. It showed increasing strides forward with limited capacity numbers of people on social landlord and resources. We call on the Welsh Assembly waiting lists, young working families Government to set out a new struggling to find somewhere to But the issue of the provision of affordable homes strategy that live and people forced to stay in affordable homes, which is the real is properly resourced and which temporary accommodation or with long term answer to homelessness, will make an impact as quickly as friends or relatives. was a low political priority for the possible. previous Assembly as a whole, at The lack of affordable housing least judged by the overall resources We call on the Assembly as a in many areas in Wales is a allocated compared to, for example, whole to put people’s homes at local disaster, but it is the Welsh education or health. Although in the heart of its next term. Assembly Government that must the recent election campaign all the take a strategic lead on this issue. main political parties acknowledged Resources for affordable housing the importance of affordable come from a number of sources, This does not mean that nothing housing, none of the programmes, but the Assembly has a major role in has been done in Wales. We in our view, did enough to address providing a core public investment want to acknowledge from the the crisis or increase public fund, which can stimulate other outset the good work that has investment to the level that will investments. In 2005/2006 the been undertaken by the previous reverse the growing crisis of Social Housing Grant programme Welsh Assembly Government. It housing need in Wales. for Wales, which contributes to the developed a Housing Strategy funding of social rented housing for Wales to address housing Wales now has a new Government totalled £80 million, which enabled, need and poor conditions and a and new powers and can develop with additional private investment National Homelessness Strategy a new direction in addressing and loans, 998 units of new to lead on strategies, policies, and homelessness and housing need. It affordable housing to be provided.2 services that can specially address is the one most important thing that homelessness. It passed two all the main parties seem to agree In addition, WAG funding supported groundbreaking pieces of legislation on and on which progress can be low-income households to purchase to widen the safety net for homeless made. homes with a government loan, households and to reduce the though the Homebuy scheme. number of homeless families with This is about more resources Approximately 200 homebuy loans children and young people in poor and capacity. We are concerned were provided in 2005-2006 in Bed and Breakfast accommodation. about the capacity of the housing Wales. A further 50 homebuys were It is clear that the Minister for and homelessness division in provided through the re-investment

2 Social Justice and Regeneration Committee June 2006 (SJR(2)-09-06)

7 of the capital grants provided.3 3.Homelessness I became homeless due to These are important public domestic abuse and violence 3.1 What is homelessness? investments and the Commission from my parents and was made Often when homelessness is of Inquiry welcomes further to do stuff that I did not want to discussed in the media it is projected increases in the Social do but I had no choice. I either accompanied by descriptions and Housing Grant to £96 million in did what they said or I would be images of people sleeping rough or 2007-2008. This increase should thrown out. I got really annoyed begging, pictures of single people help in providing around another 200 and couldn’t take it any more so often with drug or alcohol abuse affordable housing units.4 I decided to pack my clothes and and/or mental health problems. leave the house until I would have Indeed this is probably the image However in the historic context somewhere to go. I went to my that many people have in their funding levels are low. Community sister’s house thinking she would minds when they think about Housing Cymru notes that if the help me but I was wrong. She homelessness. grant had been index linked to the refused so I was on the street for levels of 1997 it would be £30 million a day or two. When we took evidence from people higher than the current budget. across Wales it was clear that many Indeed, the evidence is that overall I went back to her because I had people did live precarious lives, ‘one the level of spending associated no money to buy food or anything. step away’ from the streets, and with housing is at low levels. For She felt sorry for me so she let me indeed we met people who said example, spending on housing sleep on her sofa for a few days. that at times they slept rough. We improvement, new provision and After a few days I had to sleep in did meet people with substance supporting vulnerable people has a car and then a friend’s house. I abuse problems and with mental declined as a percentage of the then realised it is not so easy to health issues. But we also found that Social Justice budget from 2.4% leave home. My sister then really many homeless people, including in 2004/2005 to a projected 2.3% started to help me, she got me families with children, were living in 2007/2008. Overall the total into a B&B and then I went on in hostels, refuges, or short term spending on housing in the Social benefits but I don’t like it at all, accommodation or moving between Justice budget in the three years but I had to get support and then friends and relatives because of a remains at about 3.7% of the total I got some support after nearly a crisis in their lives and their main WAG budget.5 year I was offered a Council flat. problem was simply that they had When I went to see it I couldn’t nowhere to go. believe it, all the floorboards were up, there were wires popping out It became clear that homelessness of everywhere and the place was is not only rough sleeping, it can not very safe to live in. But I had be a whole range of circumstances no choice. If I had not accepted including people living in very poor then I would have had to wait a conditions or in very insecure long time, about another year or conditions. A home is more than so, so I had to take it. a roof and bricks and mortar, it is Swansea Inquiry Day somewhere that is secure, safe, healthy, private, in the right place

and with support networks when necessary.

3 Ibid 4 Ibid 5 Final Budget Main Expenditure Group Allocations (Welsh Assembly Government, 2006) 8 The clear message is that 3.2 How many people are provided by Welsh local authorities homelessness affects a range of homeless? to the Welsh Assembly Government people in a range of circumstances When we started taking evidence, showed only part of the problem and it would be an error to simply we wanted to know how many in Wales. categorise people according to one people experience homelessness perception of the problem. By the in Wales. There is a formal legal We heard that many people who fit same token different responses definition of homelessness,6 and the legal or the WAG Homelessness are needed to this range of needs. the Welsh Assembly Government’s Commission definitions of However, it became clear to us at Homelessness Commission also homelessness are not included. a very early stage that the lack of defined it in 2000,7 a definition Households often referred to as affordable and suitable housing was which is reflected in the National the ‘hidden homeless’. These are a key common denominator for the Homelessness Strategy, but finding people perhaps forced to stay with majority of cases we heard. out the number of people in Wales friends or relatives in overcrowded who may fall into these categories at or temporary conditions, or living in That’s why this report reflects not any one time is difficult. poor conditions or in other forms of only some of the issues raised with insecure accommodation because us about homeless services and As far as street homelessness is they cannot find a home of their practices but also the wider issue of concerned the very first Assembly own. The recent Wales Audit Office the lack of affordable housing and Government pledged specifically review of the National Homelessness the consequent impact on health, to end the need to sleep rough, Strategy notes: education, children’s and young but 8 years later there is still no people’s lives and aspirations, and clear picture of the level of the “These (homelessness) statistics the prosperity of Wales as a whole. problem in Wales. An all Wales may not tell the whole story. Not all rough sleepers count has occurred people who are homeless present It is important that everyone this year although it is unclear if it themselves to the local authority. understands the extent and is able to provide a full assessment For example, some people who impact of homelessness, housing of the problem. It is essential that a lose their home and do not find need and poor housing not only benchmark of people sleeping rough alternative accommodation often do on the people directly affected is agreed so that actions to reduce not present as homeless, and there - but on all of us. We believe the numbers can be assessed. But is evidence that some prisoners that politicians and the media of course providing accommodation discharged without prospect of have a crucial role in leading an is only part of the response, it is the accommodation, do not present to enlightened debate on this issue quality of that accommodation and the local authorities.”8 in Wales. It is an issue which the all round support it provides should not be debased by inter- in helping people into meaningful Despite the limitations of the official party wrangling or sensationalised activities and lives that is important. figures numbers grew alarmingly in or misrepresented by the media. That requires resources and effective the first part of this century reaching Public support and understanding joint working. in 2004 the highest level since in Wales is vital if we are to make records began in the late 70s. That the shift necessary in resources When looking at the broader picture year over 50,000 people went to and in priorities that can of homelessness we were convinced their local authority for help and fundamentally address this issue. that the official homelessness figures around 25,000 were accepted as

6 See appendix iii 7 See appendix iii 8 Tackling Homelessness in Wales: A review of the effectiveness of the National Homelessness 9 Strategy (Wales Audit Office, January 2007) legally homeless. Of these at least ‘The current national priority were approaching the authority 8,000 were dependent children. is moving to homelessness with housing problems they were Something was clearly going prevention. This means that of the view that demand was as seriously wrong. instead of people trying to go high if not higher than ever. We are through the very legislative and concerned therefore that the fall in Since 2004 the recorded levels difficult route of making a full homelessness figures could give a of homelessness have fallen. The homeless application, as soon as misleading impression of true local evidence we have heard is that we get a problem, let’s tackle it demand for services and affordable much of this fall can be attributed upstream and get in there early housing. to a new way of responding to and let’s see if we can prevent the homelessness applicants by local homelessness. We have reduced our authorities called ‘Housing Options’. presentations, which were We will be counting prevention; 1,732 in 2003/2004, to 792 in The ‘Housing Options’ approach we haven’t done so as such at 2004/2005, and at current figures of finding alternative solutions the moment. There might be we are looking at around 800 for homeless people rather than other reasons (for the drop in presentations this year. There are immediately registering them as presentations); apparently the reasons for the reductions…we formally homeless, has clearly led to word might be out that we are have moved the agenda from the a positive outcome for many people. unable to help so perhaps people reactive to a more preventative Local authorities have developed aren’t coming to us.’ approach….we are still getting the a whole range of responses to Rhyl Inquiry Day work coming through the door, people facing homelessness but we are recording the figures including mediation services for When homelessness officers in a different way. young people, private leasing to were asked if the fall in the official Housing officer avoid families going into temporary figures meant that fewer people Swansea Inquiry Day accommodation, and funds to help pay off rent arrears. This new approach does appear for now at Homelessness Presentations and Acceptances 1997- 2006 least to have reduced the number of people formally accepted as homeless. But we also heard 25000 of applicants who were given poor 23141 19661 20019 advice or whose ‘option’ was 20000 16042 inadequate or unsustainable. It 15509 13671 13675 10071 was notable that sometimes people 15000 13328 12436 12804 were dissuaded from pursuing an 8512 10000 8376 application, that contact would be 6427 6974 5181 lost with applicants and that people 4297 4371 3695 4156 5000 were simply not informed of their rights. 0 1997 1998 1999 2000 2001 2002 2003 2004 2005 2006

10 We are aware that a national is developed in order to plan and address the underlying issue of the Performance Indicator (PI) to deliver services that may help availability of homes, but it does measure homelessness prevention prevent homelessness or assist identify key priorities and seeks to has been introduced and we very people smoothly and quickly into optimise and develop homelessness much welcome this development.9 suitable accommodation and services with the aim of prevention It will certainly begin to reveal the support when necessary. where possible and sustainable volume of work still undertaken by options where it is not. local authorities in responding to As such it is proposed that housing need and homelessness. Wales includes the broader However it is also clear that few However we are not certain that this Homelessness Commission people outside those working in the indicator will fully measure the quality definition of homelessness as field are aware of the strategy or its of the options advice. For example part of the statutory definition. aims. We believe the importance a homeless household could be Moreover the definition and the and status of the National directed to a series of short-term prevention approaches should Homelessness Strategy needs to inadequate accommodation options be widely promoted in Wales in be enhanced by the new Welsh without ever being recorded as order that people who may be Assembly Government. In particular, officially homeless. As such they unaware of the help available are although the strategy recognises would not appear as a failed encouraged to seek assistance. the clear overlaps it has with, for prevention under monitoring for example, social service plans and the PI. It is important to recognise that in health and well-being strategies addition to those people who may at all levels we are not convinced We believe it is essential that the be facing homelessness as defined that in reality these other plans and new housing options approach by law or the WAG, there are many strategies similarly recognise and is rigorously, consistently and others whose lives are blighted reflect the importance of the National independently monitored both in because of the lack of suitable, Homelessness Strategy. terms of numbers and the quality affordable, secure and healthy of the outcomes. homes. We were told that waiting The National Homelessness lists for social rented housing were Strategy should be elevated However, it is also clear that the historically very high in Wales.10 to the level of a key corporate housing options approach itself is programme for the Assembly, resource and capacity intensive - That is why it is vital that an crossing all committees and unless resources are found the in-depth assessment of housing divisions. Equally, its importance options will run out, even if the need is required and an affordable should be further reinforced resources are found, the options will homes target agreed for Wales. with local authorities, local still eventually run out unless there is health boards and voluntary a significant increase in the supply of 3.3 Leading on homelessness organisations. affordable homes. We believe that the National Homelessness Strategy adopted 3.4 Local responses The Commission of Inquiry also by the former National Assembly At the local level it became clear that believes it is vital that a better provides a good basis for tackling there were significant differences in understanding of the levels and homelessness in the short term. the prioritisation of homelessness causes of homelessness in Wales It does not, nor does it claim to, and housing need between areas.

9 Local Government Data Unit 10 National Assembly for Wales, Record of Proceedings (7.3.2006) p89

11 Some local authorities were taking a responses to homelessness at the 3.5 Services and Practices lead on challenging homelessness, local level are accorded much higher The provision of decent affordable responding to housing need and priority and resources, this must be housing in places where people making a real difference. These a concern. need to live is the key to ending approaches were usually charac- homelessness and social exclusion. terised by effective and strong local We propose that the Welsh But we recognise the immediate homelessness forums and quality Assembly Government with importance of optimising homeless partnership work with the voluntary the Welsh Local Government services and preventative work sector. But in other areas there Association, initiate and fund to minimise the impact of appeared to be a lack of leadership, a training programme for local homelessness on vulnerable imagination and purpose. councillors on understanding people, families and children. the extent and impact of We were consistently impressed homelessness on households The Commission of Inquiry was very with voluntary sector services and and the community. mindful of the emerging agendas projects that, although having limited around the groundbreaking report capacity, not only provided essential We are particularly concerned by Sir Jeremy Beecham, and the services but also often showed that, with the ending of the Welsh Assembly Government’s own tremendous energy and commit- requirement to submit local Making the Connections initiative as ment and often seemed to provide homelessness and housing we listened to the evidence. These the impetus for many positive local strategies to the WAG, as approaches advocate a citizen- developments. part of the plan rationalisation centred approach in Wales “working programme, an already more effectively across boundaries It was notable that some local marginalized area will effectively to deliver outcomes that matter authority housing staff who attended disappear from sight. We believe most to citizens”.11 evidence days frequently expressed the Assembly Government should their feelings of being marginalized issue guidance that local health Many of the problems and barriers and demoralised by the increasing and well-being and community we heard about seem to be as a demand placed on them without any plans must make significant result of failures to put the needs significant increase in resources or reference to how homelessness is of citizens at the centre of service political support or recognition. to be tackled and how affordable delivery and the failure of effective housing is to be provided. joint working and partnerships People told us that there was a lack of understanding about the level and impact of homelessness in Wales. Although some local authorities had nominated councillors to be Homelessness Champions it was felt that these were often marginalized roles and that many local councillors did not fully understand the extent of homelessness in their area. Given the importance of ensuring that

11 Beyond Boundaries – Citizen-Centred Local Services for Wales – Sir Jeremy Beecham 2006 p71

12 sometimes even within the same way. This sometimes related achieve better joint working, but that organisation. Again we believe this to the requirements of different in practice this did not always seem is often a symptom of a lack of funding programmes, or statutory to be happening. Trying to develop leadership and will to address the requirements or simply departmental working relations and secure funding issues of homelessness and priorities. with services and agencies not housing need. directly concerned with housing It is the separation between the and homelessness, especially local We are in conflict constantly, and housing department, who should health boards, seemed particularly we try and resolve that on a local be dealing with homelessness and problematic, yet all acknowledged level but I think the traditional the finance department who have the huge physical and mental differences, if you like, between got no passion or concern about health impact on people who were Social Services and Housing, dealing with homelessness. All homeless or living in temporary are exacerbated by the growing they want is for the money to be accommodation. wealth of legislation. coming into them. Housing Officer - Blaenau Councillor Going onto temporary Ffestiniog Inquiry Day Cardiff Inquiry Day accommodation, my experience has been that often, young We were, in similar measures, There is no link between the families moved into temporary impressed and dismayed by the housing associations, the benefits accommodation, have got very different approaches and practices office, the housing office or the few facilities. This includes we were told about. In some areas council tax office. Nobody seems cooking facilities. These are we heard how poor communications to speak to anybody and it is families on low income and to with homeless applicants left them not until someone like Shelter be given just a microwave or a confused and uncertain about gets involved that things start to baby belling which is just one or their future; we also heard about happen. two rings that may work is not examples of gate keeping where Aberystwyth Inquiry Day conducive to bringing up a young people were dissuaded or simply family. You find the extra cost is not informed about their rights. But we were also impressed encouraging people to go out to We recognise that much of this is with the imaginative way local McDonalds for a quick fix of high anecdotal, although the Shelter agencies identified and accessed fat unhealthy diet. Cymru mystery shopping research new sources of funding to deliver Rhyl Inquiry Day surveys undertaken in 200312 and services. For example in Swansea again in 200513 appear to show quite we heard how a local agency had We believe that these issues can widespread examples of what can obtained European funding to pay a and must be addressed in a much only be described as poor practices. local GP to provide a nurse in one of more urgent and prioritised way. their homelessness centres. It is essential that homelessness We were struck by how often and housing services respond to agencies and departments working Participants acknowledged the need the new public service direction we in the same areas knew little for a more integrated approach to are attempting to achieve in Wales. about each other and appeared providing services and funding. In Elected politicians at all levels must not to be working together in all areas we found that agencies take a lead and be accountable for the most strategically effective and local authorities were striving to these essential changes.

12 First Contact (Local authority responses to homelessness enquiries) – Shelter Cymru 2003 13 Return Call (First Contact revisited) – Shelter Cymru 2005 13 We believe there is a case Brenda lost her home when her for developing responses to landlord denied that she had homelessness and housing need received any rent. Brenda’s in general across more rational landlord lived in Berkshire and regional areas. Explore the possibility the rent was sent every week by of a single regional directorate special delivery and postal orders. concerned with addressing social exclusion across regional areas, but ‘’The landlord heard about how answerable to the local authorities property prices had risen in the and local planning boards. area. She decided to sell the property.’’ 3.6 Intentional homelessness Current law places a duty on local Suddenly, Brenda’s landlord councils to consider whether and poverty. We agreed with another alleged that a lot of that rent did homeless applicants have made worker who told us that sometimes not get to her, even though the themselves intentionally homeless. behaviour by young people as a Post Office claimed that those If they believe this is the case result of naivety, inexperience and letters had been received. She then duties to that applicant perhaps poor parenting could lead was evicted. household are very limited, even to them being found intentionally if the household is vulnerable, homeless. As soon as the Local Authority young or a family with children. saw that Rent Arrears were Usually, once a household has We were very concerned about involved, it automatically made a been found intentionally homeless, evidence we received about decision that Brenda had made they are provided with temporary how intentional homelessness is herself homeless intentionally; accommodation for a limited period, sometimes used in Wales and that without carrying out any often 28 days, and then almost left often when legally challenged, investigation whatsoever. Brenda to find their own alternatives. decisions are overturned suggesting was offered 28 days in B&B there may be many more incorrect accommodation: The impact on many households decisions. is devastating. We heard from “There was no way on God’s earth young people who had been found The issue is not only about the that I would put my children in a intentionally homeless and effectively number found intentionally homeless bed and breakfast”. left to fend for themselves, and also but also that, in some cases, simply from families with children left with the threat dissuades homeless Brenda immediately appealed little option other than to take poor households from pursuing their against that decision and the accommodation or live with friends application. As such the number Local Authority lost the appeal. It or relatives. We were particularly of intentional homeless decisions had no choice but to find Brenda struck by the evidence of a youth recorded in the official statistics, and her children a home. worker who told us how difficult it which in 2006 was 976 households, was to place young people found only reveals part of the picture of Brenda talked about the effect on intentionally homeless and how this how it is used. her children, saying “as much as continued the spiral of deprivation you try to hide it and get on with

14 a normal life, they still pick up parenting they have needed. 3.7 How the money is spent vibes and it’s still very stressful on Rhyl Inquiry Day We heard evidence from a number them, especially my oldest, it’s a of people suggesting that housing worry.” But other households found and homelessness was not a major Merthyr Evidence Day intentionally homeless also need priority for some local authorities more help. Local authorities currently in Wales. This may result, it was In our view, the effective have a duty to investigate whether a argued, in an under-resourcing of abandonment of homeless household is intentionally homeless services, particularly homelessness, households by statutory housing and, if they wish, powers to provide as other higher profile services were services when they are found more advice and assistance. We preferred. intentionally homeless conflicts with want these duties and powers the Welsh Assembly Government’s reversed. There were three main issues raised aims set out in the vision statement in evidence: of the National Homelessness We are asking the Assembly Strategy: Government to seek, through That local authorities were Orders in Council, measures sometimes reluctant to spend “There are many facets to which in Wales will end the on homelessness services and homelessness which require a duty to investigate intentional often only provided match funding response from services tailored to homelessness and make it when specific ring fenced funds individual need.”14 instead a power, which local were available from the Welsh authorities can choose not to Assembly Government. The Commission of Inquiry use. However, if they do use feels strongly that the Assembly the power, then there would That given the ‘unpopularity’ of Government should take action on be a duty to provide help and homelessness and providing this matter. We fully support the support to the household to services to vulnerable people, Social Justice and Regeneration find sustainable and suitable there was a real concern that Committee’s recommendation to the accommodation and that suitable the Supporting People Revenue Minister, to end the test of intentional accommodation should be Grant, which funds supported homelessness for people aged available to them until that duty housing developments, if not under 25 years old.15 is fulfilled. It is vital, however, that protected in some way would not this development is accompanied be fully utilised for such services I am picking up cases that have by increased resources to allow when the funding is devolved to been made intentionally homeless local authorities to implement the local authorities. by the housing department, and proposed measures. I feel that they fall through the That, in general, some local In the worse case scenarios system, through the fishing net. authorities did not spend all of children are taken into care, They are deemed intentionally the resources nominally allocated and we have two cases where homeless because a lot of the to them for housing under the the children are in foster care time they are young, they are standard spending assessment. because the mother has been inexperienced, they have had made intentionally homeless. very negative life choices, and The evidence for these conclusions Children’s Services they have very often not had the is mixed and not conclusive. We Rhyl Inquiry Day

14 National Homelessness Strategy for Wales 2006-2008 (Welsh Assembly Government, November 2005) p4 15 Youth Homelessness ‘Everybody’s business, no-one’s responsibility’, (Social Justice and Regeneration Committee, January 2007) 15 reviewed the spending by local back into mainstream life. But it Question: I was very interested authorities on private renewal grants was shocking to hear some of the in the role that you fulfil of against that nominally allocated evidence about what happens to providing a secure environment to them through General Capital people who frequently sleep rough. for single young homeless people: Funding.16 It was clear that while you were talking about the some authorities under-spent against Trench foot. I was appalled to process of gaining maturity and this allocation, some spent more. find as much trench foot as I independence and the support Overall, in Wales, however, there have. There was I thinking it was you provide for people to do was shortfall against this ‘allocation’ a condition from the First World that. The two gentlemen you of around 2.4%, approximately War and I was disabused of that brought with you both described £2 million. in a very big way. Scabies and experiences where they had to head lice, depression and anxiety leave their own homes and then If there is a case for more ring- and very commonly ear, nose, there was a gap before they came fencing of allocations it should be throat and dental problems. In a into contact with you. Why does for limited periods. An alternative three-month period I have seen that gap have to exist? to ring-fencing may be a structure 67 patients and undertaken 118 which indicates minimum and consultations. Response: I don’t think it does maximum resources which need to Homeless centre nurse have to exist, but it does exist. be spent on essential services and Swansea Inquiry Day We are dealing with emergencies. provision. These approaches leave Our hostel is an emergency more room for local decision making. The very first Assembly Government accommodation hostel. The gap The Assembly’s goals in addressing gave a high priority to tackling rough exists because it is always full. homelessness and housing need sleeping. But we continued to hear Since we opened three years ago to be shared by local authorities evidence of good projects losing we have never had a night that and decisions should ultimately funding and that key services were has been void, which means we be taken at a local level if they are not available in certain areas. have never had an empty bed to be effective and owned. Finally, space. simply ring-fencing existing levels There is no emergency direct Swansea Inquiry Day of resources will still not provide access accommodation in the area, enough capacity to address housing for young people or for anybody, Both in North and South Wales need and homelessness. Whatever period. we heard of innovative projects mechanisms are used to direct how Children services agency that provided health services to funding is spent at the local level, Cardiff Inquiry Day homeless people but whose funding there must be more resources had ended. to spend. Although there was an acknow- ledgement that increases in The post of homelessness 3.8 Resourcing the response resources, such as Supporting People outreach nurse did exist and At the sharpest end of homelessness funding, had made a huge difference did provide a lifeline to the most we heard from many agencies who in the provision of more services, it desperate people but it has not were providing both accommodation was also felt that there were still gaps been covered for nearly two and support, and often imaginative and that yet more resources were years. The consequence of that programmes to assist people essential if we are to bridge that gap. decision of absence of action is

16 Social Justice and Regeneration Committee paper SJR(2)-09-06 – June 2006

16 untold suffering to some of the The work of supported housing The Commission of Inquiry also most desperate people suffering agencies working to keep vulnerable believes that current specific at the moment. people in their homes, for example, homelessness funding is set too Swansea Inquiry Day shows very tangible and evidenced low. We call on both the Assembly social and economic benefits. The Government and Local Authorities When I was actually doing the recently published ‘Matrix’ report to review their priorities and plan homeless health-visiting role, I on the costs and benefits of the future spending on homelessness, was actually able to liase between Supporting People programme and prevention and advice services other health visitors or other estimates that every £1 spent in a way that will make a lasting health agencies, and housing generates £1.68 in benefits to difference. We heard, for example, to get a bit more of an insight Wales.17 This is further underlined in about ‘Spend to Save’ schemes into both sides of a situation, Cymorth Cymru’s report ‘Bringing where it was recognised that which was useful. Unfortunately it home’18 where the benefits to the finding alternatives to poor bed and the funding for homeless health community as a whole of keeping breakfast accommodation was not visitor posts wasn’t ongoing so people in their homes, such as only good for the homeless family that kind of collapsed. reducing crime, improving health, but saved taxpayers money. Rhyl Inquiry Day reducing the number of children going into care among many other This kind of approach should be More resources for tackling examples, are clearly a gain for reflected on a larger scale. homelessness not only makes sense us all. for the people helped, but makes We believe that the Assembly Of course, organisations involved in sound economic and social sense Government should increase the homelessness, support and advice as well. homelessness grants programme services, like any other group, will from the current £5 million a year always ask for more resources. But We heard from: to at least £10 million over the it is clear that demand for services next three years. Even this level still outstrips those available and Projects which support people of funding is modest within overall that opportunities to make a real who may otherwise fall into crime, public spending but it will speed difference and substantially reduce anti-social behaviour or substance up the achievement of National future homelessness are being lost. misuse. Homelessness Strategy goals and This may be another example of the Advice and assistance services will contribute to significant social low priority of homelessness - the that save people’s homes and economic benefits. We also fact that, as one evidence-giver and often relationships and call on local authorities to match told us, ‘there are no votes in employment; and increases from the Government homelessness.’ Projects working with families of Wales. to improve parenting skills and There will always be resource prevent children being taken into constraints but the Commission of We believe this new investment care, in addition to many other Inquiry believes that the social and should be directed at imaginative services that help people avoid economic contribution of Supporting ways of sustainably preventing the trauma and dislocation of People funding is well evidenced homelessness, many of which are homelessness. and that further efforts to increase already highlighted in the National resources will benefit Wales as Homelessness Strategy. a whole.

17 Costs and Benefits of the Supporting People Programme, (SJRRR 06/06 September 2006) 18 Bringing it home: putting citizens at the centre through housing related support. (Cymorth Cymru 2006) 17 We propose that the Government shortage. Simply building a load beyond the grasp of many identifies more resources to provide of houses in Wales for Londoners households, even those on average information and advice within to buy as holiday homes will incomes. It has distorted local com- education and that more work iden- increase supply, but will not help munities, interfered with people’s tifying potentially vulnerable groups the situation. More imaginative lives and ambitions and is creating and providing early advice and thinking is needed. even more divisions between those support should be initiated. What is Toby Lloyd - Henry George who own, and who have assets, and key now is that the new Govern- Foundation those who do not. ment recognises the importance of a substantial increase in the It is clear that ensuring homes Most people want to own their own homelessness budget as soon as are in the right place, are suitable home, but buying and, increasingly, soon as possible. and affordable, the right tenure maintaining the costs of ownership and crucially available for people is becoming difficult in Wales. 4. Affordable in need is the key challenge. That and an ability to retain affordable Wales is now the least affordable housing homes for people in need or area in the UK outside London and replace homes that are either lost the south of England for younger 4.1 Why it is important to right to buy, or to the market. working households. Research in As already stated there is a clear 200519 showed that for working and significant overlap between the 4.2 The housing market and home availability of affordable and suitable ownership families in the 20 to 39 age group housing, and homelessness. We We believe that the housing market in Wales the average house price to believe that affordable housing is the over recent years has had a disas- income ratio was 4.22 to 1. Ratios key to social cohesion and social trous impact on Welsh communities. are significantly higher in areas such inclusion in Wales. If it is ignored Huge and continuing house price as Powys, Cardiff, Denbighshire and all of us will suffer. At the moment, inflation has taken ownership Ceredigion. With continuing house however, housing provision is not driven by well meaning policy, but by a market insensitive to the needs 180,000 House Prices in Wales 1996 – 2006** 4 00 of people on low or even average 160,000 6 7, 0 09 15 5,

incomes. 46 140,000 6, 14 2 13

120,000 27

However it is also clear that resolving 1, 11 the issue of affordable housing is not 100,000 42 ,3 51 a simple matter. 80,000 89 ,0 88 79 06 ,3 05 73 ,2 25 ,1

60,000 ,7 65 ,3 62 58 Is there a housing crisis in 56 40,000 52 Wales? In parts of Wales there are plenty of affordable homes, 20,000 but they are not where people 0 want them or where the jobs are. 96 97 98 99 00 01 02 03 04 05 06 19 19 19 19 20 20 20 20 20 20 20 It’s more a case of geographical misallocation than of overall (Source: HM Land Registry, Residential Property Price Reports – October to December Quarter. ** The figures are based upon the average price across all property types during the October-December quarters.)

18 19 Young, working and STILL homeless. (Chartered Institute of Housing Cymru 2006.) price inflation these ratios are now In addition to the difficulties of The detrimental effects of the current likely to be even higher. buying a home, the lack of affordable housing market are significant – it alternatives means that many people prevents people from being able to The same research suggests that on low incomes, or in insecure move easily to find work and careers 43% of young working families who employment, are purchasing homes and often condemns them to want to buy in Wales were largely that they can hardly afford. Over the insecure and poor accommodation. unable to access even housing past two years actions by lenders It is also creating a divided country within the lowest quartile of against people in arrears have grown of people acquiring assets through house prices. dramatically in Wales, indeed faster ownership and people who cannot, than other areas of the UK. Lenders and it puts massive pressure on the Evidence also showed that young need to lend responsibly and people rented sector from people who want working families were having con- need to be careful about using their to buy but cannot afford the costs. siderable difficulties finding deposits home to realise cash or pay off to get on the first rung of ownership. other debts. However, the lack of Indeed it seems in the current alternative low cost home ownership economic climate that the ‘deposit options or indeed secure rented barrier’ is an even greater problem housing is clearly a significant factor than income to price ratio. in increasing arrears and possession actions. The average wage in Carmarthenshire is £18,000. You can’t get a house anywhere or barely get a house anywhere, under £100,000. It’s not affordable on that kind of income. Cardiff Inquiry Day Mortgage possession actions in Wales 1987 - 2006

Conwy is one of the most ridiculously over priced areas at 12000 the moment. I was in London at 10000 the weekend, looking in estate agents windows, I thought that 8000 house prices in London were Actions Entered 6000 Suspended Orders obscene a few years ago, but now Orders Made they are not so different to the 4000 house prices in Conwy. When you think of the difference in salaries 2000 between those places it really is 0 outrageous. 87 88 89 90 91 92 93 94 95 96 97 98 99 00 01 02 03 04 05 06 19 19 19 19 19 19 19 19 19 19 19 19 19 20 20 20 20 20 20 20 AM Rhyl Inquiry Day

19 4.3 The issue of supply sector and the number of lets to new The number of properties that The waiting list in Denbighshire entrants declines …… the number became available for allocation is 2,400. That is at record levels of applicants registered on housing last year (on Ynys Môn) was 233. and again that is shared by waiting lists rises, and the number of The total number of applicants on many other local authorities. At households presenting as homeless the waiting list is 2399. the same time you have a lot of …. increases.” Housing Officer - Rhyl Inquiry day people living in unsatisfactory and difficult conditions that we are This research was reinforced by 4.4 The Private Rented sector frankly unable to help. evidence given to the Commission of One of the other consequences of Housing Officer Inquiry by local authorities showing the lack of affordable social housing Rhyl Inquiry Day two related effects of the current is that many, often vulnerable market situation on social rented people, are finding themselves in The Commission of Inquiry received housing: inadequate and sometimes unafford- considerable evidence that the lack able private rented accommodation of social rented housing was a major More people are approaching contributor to homelessness. The local authorities and housing We are in this bed-sit, I don’t like supply and therefore the availability associations for accommodation it at all, I’m next to a block of flats of social rented housing is strongly because they cannot afford to where there are boys next door related to the general housing buy; playing music until half one in market, with additional pressures in Fewer people are moving on from the morning which is ridiculous. I areas of particularly high demand. the social rented sector because made three complaints last night. they cannot afford to buy. My son used to go to sleep at 7 The need in Wales for a greater o’clock. He would go to bed at supply of social rented housing to The reduction in the turnover 7 o’clock, he would be asleep provide secure decent homes for of social rented housing is now by half 7, now I’m struggling to people on low or fixed incomes is clearly a major issue and we were get him to sleep for 10 o’clock at clear, but it is also clear that, at a particularly struck by evidence night, and he is still waking up at time of high house price inflation, provided by Cardiff City Council half 6, 7 o’clock in the morning. demand for social rented housing concerning the number of applicants And as you can see, he isn’t could increase significantly across for council housing. One example usually asleep now but he is tired, all areas. included three 2-bed properties that he is worn out. There is no room had become available in an area in for him whatsoever in this flat, I’m Research into lettings and home- Cardiff, which had over 950 appli- scared to do any cooking because lessness in Wales over a 25-year cants over a twelve-month period.21 I’ve got to have eyes in the back period from 1980 to 2005 20 showed and side of my head to make sure an inverse relationship between The type of accommodation he isn’t grabbing the cooker. cycles of supply and demand for becoming available is also crucial. social rented housing and general The same submission showed that …. the bed and bathroom are house price cycles. in another area of Cardiff only one very damp, we have black mould social rented bed-sit became vacant growing in the bathroom, we have “As real house prices increase, fewer during a 12-month period. fungus growing in the bathroom. households leave the social housing The bathroom is attached to the

20 Michael Jones, The Social Housing Cycle: Lettings and Homelessness in Wales 1980-2005 (Cambridge Centre for Housing and Planning Research, 2006) 20 21 Is that all there is? Cardiff City Council 2006 bedroom so me and my partner and the rent.22 We noted particular The new Local Housing Allowance, take turns to sleep in the living issues concerning under 25 year which replaces housing benefit room with the baby so we wont olds and the Single Room Rent. payments in 2008, will mean that have to sleep near the bathroom. We hope that the Government in most private landlords will no longer The property is very insecure as Westminster can be persuaded to receive the allowance payable well. The front door has been reform this particular regulation, directly, which may well dissuade kicked in so many times, we which was clearly causing significant some private landlords from have had problems with drugs hardship to young people. letting to people on low incomes. in the building and it isn’t a safe Furthermore increased demand for environment to bring a baby We also heard about the potential of private accommodation from new up in. Since last November we the new HMO licensing laws and the markets, such as migrant workers, have been in touch with housing ability in Wales for local authorities mean private landlords have a enforcement who have done to selectively license other private wider range of potential tenants. nothing to help us out. They rented homes. We heard about the Combined these factors could see have given a list of things which importance of bond schemes and the sector shrink for people on the landlord needs to sort out the new Tenants Deposit Scheme. low income. in the property but nothing has We also heard about innovative been done since November….. private leasing schemes operated by This is yet another compelling me and my partner haven’t slept local authorities, which can provide reason to address the issue of the in the same bed since the baby good quality accommodation for lack of affordable and suitable was born. We have to take it in homeless households. housing in Wales as soon as turns to sleep in the living room possible. with the baby. So its hurting our We recognise that the private rented relationship as well. sector must be utilised given the Rhyl Inquiry Day lack of affordable alternatives at the moment, but we do not intend On a number of occasions we heard to explore the various models that how local authority enforcement are being or have been developed services seemed unable to follow between local authorities and the through the necessary actions to private landlords as they are already force private landlords to make well documented. necessary repairs, particularly if the case involved an absentee landlord. Our purpose in raising the issue of Again we heard that this was largely the private rented sector is simply to due to a lack of capacity and point out that the lack of affordable resources. housing means that more people are resorting to the sector, unfortunately We also noted from recent research at a time of uncertainly over its undertaken in Wales that the future at least as far as letting to low majority of tenants on housing income households is concerned. benefit had often very significant shortfalls between their benefit levels

22 Providing the solution (improving the Private Rented Sector as an option for resolving housing need in Wales) – Shelter Cymru Nov 2006 21 4.5 What is needed? the report also notes that at that housing market areas occur to build Tackling the shortage of afford- time there was a backlog of unmet up a picture of housing need on a able housing can seem daunting, need of 33,000 dwellings in Wales national, regional and local basis. complex and expensive, particularly made up of “concealed families, We urgently need a new national if the majority of the electorate are private tenants who are sharing and housing need assessment on which reasonably happy with their housing private/social tenants.” plans and targets can be based. situation. Unlike health, education and crime the lack of affordable The Commission of Inquiry believes We recognise that delivering housing appears to affect only some that given recent household projec- affordable homes in Wales cannot of the population. tions, the high level of house price be achieved by one means or one inflation and the fact that social agency alone. It must be a partner- But this would be a serious mistake housing build has recently only been ship between the Welsh Assembly for a number of reasons: around 1,000 units in a year, that Government, local authorities, It affects the population the Holman’s figures should now be housing associations, voluntary disproportionately – it is young revised upwards. organisations and the private sector. working families who have par- It is vital that these partnerships are ticular problems finding affordable But as this research on young first real, constructive and work towards homes. time buyers in Wales shows, there a common goal. We believe that is also a high level of demand for the Welsh Assembly Government It is a growing problem – more low cost home ownership options. has the key role in setting out and people are likely to find them- Indeed it is the pressure from this leading on that common goal. selves in poor, overcrowded or group of households, that are temporary accommodation unless working, above Housing Benefit 4.6 Affordable homes and affordable housing is increased. levels and who want to buy but investment cannot, that is contributing to longer The Commission of Inquiry It undermines the achievement waiting lists and lower social rented recognises that house-building of other key ambitions including housing turnover. Increased options programmes are long term projects improving health and well-being, for this group of people will not only and that is why it believes that action improving skills, training and respond to their aspirations, but free must start now to substantially education, reducing crime and up rented housing for those house- increase investment in housing and stimulating local economic and holds who want or need to rent. the associated development of skills. community development. It is vital to begin a programme to It is clear to us that a combined accelerate the provision of affordable There is a range of estimates of the approach of more social rented housing to meet current need and level of social housing needed in homes and sustainable low cost to begin clearing the backlog of Wales. The most recent is the work home ownership schemes needs to demand from households in poor or undertaken by Alan Holmans in occur in tandem if growing housing overcrowded conditions. 2003 of the Cambridge Centre for need in Wales is to be addressed. Housing and Planning Research.23 New affordable housing must This predicts a demand and need What is essential is that high quality respond to actual need. For for around 2,500 new social rented and vigorous housing market example, the Commission of Inquiry homes a year up to 2016. However, assesments based on sensible received considerable evidence

23 Alan Holmans, Who’s Counting? Demand for Homes in Wales 1998-2016. (Council for Mortgage Lenders 2003)

22 about the particular problems to purchase first homes. This stock continues to be available for affecting young people trying to find loan is funded through the Social people who want and need to rent. secure, affordable and indeed safe Housing Grant and local authorities It therefore supports the current homes. The Commission of Inquiry make bids dependent on assessed Assembly Government’s desire to believes it is vital that planning for demand. acquire powers to suspend, when the right sort of provision and tenure, and where necessary, the Right and where necessary support, is Given the clear evidence that many To Buy. improved and delivered. first time buyers cannot afford even the lowest cost housing in Wales (as Of course we recognise the A vision for Welsh housing must noted in the section on Ownership), significant changes that are likely to include an increase in social rented we believe that this scheme should happen to social housing over the housing, ensuring that the increase be extended. coming years through stock transfer. is both a mix of family homes, flats We are also very aware that there and bed sits for single and young We believe that the shared equity are potentially huge opportunities people. In addition, an increase model, where Government and for investing in our communities if in the provision of low cost home lenders share the loan subsidy the stock transfer option works as ownership schemes is needed to should be further investigated. people hope. But we recognise the assist first time buyers safely and The Government guarantee concerns that many council tenants sustainably on to the first rung of element would make it easier have about the change and their ownership. for lenders to satisfy regulatory future security and rent levels. But liquidity and other rules, the 30% this report has been focussing on We believe that a minimum target or 50% stake could be shared the need to increase supply whether of 2,500 new affordable homes a between Government and Private stock transfer takes place or not. year to meet current demand and Lenders which would double the a further 1,000 a year to begin amount of Homebuy completions It is relevant to this report, however, clearing the backlog of need without increasing public to state that stock transfer must should be the new Assembly expenditure above the current not result in access being restricted Government’s target. As a point levels. to social rented homes among of historical context this was the what might be perceived as output of Housing Associations However, we believe that more problem households or people in Wales in 1996. At current public investment should be put into who may need support and help values that would mean a public Homebuy, not only to extend the in their tenancy. Building balanced investment of around £350 million. scheme through a partnership with communities is very important but the private sector but also, given so is responding to urgent housing As already noted, the Assembly continuing house price inflation, the need and homelessness. Once already invests in the Homebuy Government lender stake could be again it is the supply of housing and scheme. This scheme is based further increased in areas of high the need for more support capacity on the Assembly Government house prices. which must be addressed to ensure providing a 30% of house value that changes to the ownership loan, in rural areas 50%, via The Commission of Inquiry also of social rented housing does Housing Associations, to low recognises the importance of not actually worsen the plight of income households enabling them ensuring the existing social rented homeless people.

23 The housing programme we are The British are obsessed with When people move on from the CLT, proposing will require a significant housing; yet fail to see the link they receive some of the increased but essential growth of public and with land. The increase in the value in the land, enabling them to private investment. We recognise value of property is down mainly put a deposit on another home, that at a time of reduced public to the increase in the value of the while the remaining value again expenditure increasing investment in land on which it is built. Simply subsidises a new purchaser. People housing will be politically challenging, building more will not drive prices on average or low incomes are able but an increase in public funding down and meet supply. It is an to build up assets, but the houses for housing is essential to attract odd market where price does built on the land continue to be further investment from the private not respond to supply, and vice only available for low cost home sector. In addition it is important to versa. We do need to build more, ownership. identify other mechanisms that can due to shifting demographics, for stimulate the provision of affordable example, but not on the basis of The key element of the CLT is that housing outside public expenditure pricing. it introduces greater community constraints. Toby Lloyd – Henry George involvement in the planning and Foundation in evidence to the provision of affordable housing, and The Commission of Inquiry Inquiry. crucially the low cost option is not believes the new Assembly subsidised from public funds. Government should announce an In this report, however, we want to affordable homes target as part focus on the potential of Community The Commission of Inquiry of a four-year strategy. A detailed Land Trusts (CLTs) to contribute to acknowledges that the Assembly programme should be developed providing more affordable housing in already supports three schemes for increased building capacity perpetuity for local communities. in Wales but believes this is a and planning. potentially exciting development The CLT approach allows the local in the provision of more affordable 4.7 Land and affordable housing community to acquire low cost or homes, particularly in rural areas. One theme that consistently even no cost land with covenants emerged in the evidence was that it can only be used in perpetuity We believe to facilitate the further the central importance of land for affordable housing. Homes development of CLTs, the new to the development and costs of built on the land can be for rent, Assembly Government should housing. The main elements of the co-ownership or ownership. The key introduce legislation similar to evidence we heard were calls for element is that the increasing value Scotland, that allows local com- the introduction of an Annual Land of the land subsidises housing costs munities to acquire land more Wealth Tax, proposals that planning making it accessible for people easily and to fund an agency and housing functions should be who would not otherwise be able to that can advise and support the more closely integrated, and better afford the homes. Some CLT models development of CLTs in Wales. use of the provisions in section actually show house prices falling 106 of the Town and Country making them more accessible to Planning Act. lower income households.

24 The other thing we have noticed 5.2 Using the combined assets of is the effect of nimbyism on the regional groupings to attract new groups that we try and assist. private investment We have had two schemes Proposals have already been made that had the funding but were to develop an asset-backed Welsh blocked by elected members. Property Bond which could attract One of the great difficulties new private investment to improve in Wales is to overcome the house conditions and provide more political ‘’uncomfortableness’ affordable housing. The Bond would of developing projects for be raised on the basis of the value groups such as substance users, of social housing but it is recognised refugees, offenders and other that individual local authorities may vulnerable groups. not have a large enough assets base Cardiff Inquiry Day to attract private funding nor, it must be said, the expertise to draw up a Local planning for housing also 5. A new approach Bond. tends to work on small-scale areas We believe that the impetus to with little scope for competition We believe this could be another develop regional solutions to between landowners when aspect of the regional approach to public services, emerging from the purchasing land for housing providing affordable housing with Beecham agenda, can make a development. Consequently the local authorities combining their significant impact on helping to meet increase in the value of land is huge assets and raising Bonds. The Welsh housing need. Regional groupings which in turn increases the costs of Assembly Government would have a of local authorities can create joint housing. key role in facilitating this approach strategies reflecting local housing and providing support and guidance. markets, create greater economy We propose that regional of scales and use resources more approaches to planning are 5.3 Optimising resources effectively. There are three key areas explored. Such approaches must be As already noted above, we believe that the Commission of Inquiry sensitive and reflect local housing there may be a case for ring-fencing, believes should be explored: needs assessments. But working or directing government housing, across a broader area could create homelessness and support related 5.1 Developing a regional greater competition for land and funds for a period of time to address approach to planning consequently reduce land costs to the current crisis of housing need and It has been argued that planning more sensible levels which in turn homelessness. But we also believe mechanisms hinder rather than reduces the costs of the housing that such funding should be provided assist the provision of affordable built on the land. on a regional rather than local housing.24 Our evidence also authority basis in order to encourage suggests that projects seeking the development of joint strategies to provide accommodation for and to respond better to the reality of vulnerable homeless people can be local housing markets. blocked by local planning decisions.

24 Barker Review of Housing Supply – Delivering Stability: Securing our Future Housing Needs, (HM Treasury, March 2004)

25 It is also proposed that the regional are more likely to be met if those The Commission of Inquiry believes groups introduce a housing regions operate effectively. that the media in Wales has a homelessness and support Frankly we can find little that is vital role in responsibly reflecting executive that can lead on the democratic about a family forced the problems caused by a development and implementation to live in poor or temporary lack of affordable homes and of a regional strategy. accommodation because of the homelessness, and avoiding lack of affordable housing. stereotypes and sensationalism. Although the Commission of Inquiry has heard evidence that The real day-to-day problems that the Assembly should retain the 6. Conclusion people encounter all over Wales Supporting People grant rather because of the lack of affordable Housing and homelessness in than devolve it to local authorities, housing rarely get the headlines. But Wales have a low political priority it proposes that consideration is the inquiry days showed very clearly at all levels, evidenced by a given to ring-fencing the funding that given an opportunity, people comparative lack of investment, of on the same regional basis. It also wanted to tell their story. If we were capacity to meet urgent housing proposes that representatives to sum up the feelings of the people need, and to deliver housing and from the voluntary sector should who spoke to us at these evidence homelessness strategies. Other be involved in regional forums and days, it would be frustration. At the important areas, such as health boards which inform the regional beginning of the report we quoted and well-being, education, crime strategies and commission services. one of the contributors to the inquiry reduction etc. barely recognise the days who said, “With political will central importance of decent homes It has been argued that regional we can change this situation – we as a foundation for the success or approaches and the ring fencing can make Wales a country free of otherwise of those strategies. of funds will reduce local poverty and homelessness.” That democracy, but we believe that is the belief of the Commission of This low political priority may be a local authorities can still ensure Inquiry as well. reflection of a low public perception that local needs are reflected on a of housing need and homelessness. regional basis and that needs

26 Appendices

i The Panel of Commissioners ii Inquiry locations and evidence iii Definitions of homelessness

27 Appendix i The Panel of Commissioners

The Archbishop of Wales Dr. Barry Morgan (Chair) Barry Morgan was born in 1947 in Neath. He was educated at University College, London and Selwyn College, Cambridge and trained for ordained ministry at Westcott House, Cambridge. In 1986 he was awarded a PhD from the University of Wales.

Following ordination as a deacon in 1972 and priest in 1973, Barry worked as a curate in the parish of St Andrews Major, w Michaelston-le-Pit, before moving to become Chaplain and Lecturer at St Michael`s College and the University of Wales Cardiff.

Subsequent appointments include: Warden of Church Hostel Bangor; Chaplain and Lecturer in Theology at the University of Wales Bangor; Director of Ordinands and In-service training advisor in the Diocese of Bangor; and Rector of Wrexham. In 1986, he was appointed Archdeacon of Meirionnydd and Rector of Criccieth with Treflys. He was elected and consecrated Bishop of Bangor in 1993 and in 1999 was elected Bishop of Llandaff. In 2003, he was elected Archbishop of Wales.

Meri Huws (Vice Chair) Meri’s role within the University of Wales, Bangor is Pro Vice Chancellor with responsibility for Widening Participation and the Welsh Language Strategy. She was previously Head of the Department of Lifelong Learning; which has the specific remit to provide opportunities for flexible education and training in higher education across North Wales - targeting in particular the issues and problems associated with social exclusion for individuals and communities.

Meri previously worked at Dublin City University – where she managed the restructuring of the university programme to provide flexibility and accessibility. From 1989 to 1997 she was employed at the University College of Wales Newport. Before moving into higher education in 1984 she trained as a community social worker.

She is chair of the Welsh Language Board, a Board member of Chwarae Teg and Vice Chair of the Shelter Cymru Commission.

28 Tracy Morshead - Managing Director Principality Building Society Tracy Morshead is Managing Director of Principality, Wales’s largest building society. He joined Principality in November 2004 following a career of more than16 years in the financial services industry, with 14 of those spent in the building society sector.

During this time he fulfilled a number of key roles at Nationwide Building Society progressing from Head of Marketing in 1994 to divisional directorships between 1996-2004 including marketing, operations and mortgages and insurance.

As Managing Director of Principality Building Society, Tracy is part of a senior team which is taking the business forward - retaining the Society’s commitment to its extensive branch and broker network whilst developing the product ranges and direct and internet capacity. He has a proven record of achievement in developing marketing strategies, growing businesses and delivering strong bottom line performance within the regulated environment. Together with other senior Principality executives, he is particularly interested in the wider issues around housing, such as affordability and funding.

Tracy is a Fellow of the Chartered Institute of Marketing and a Chartered Marketeer. He is married with three children.

Dr Heledd Hayes - NUT Cymru Education Officer Born and brought up in Aberystwyth, Heledd Hayes gained a first degree in French and Italian Studies from the University of Hull, followed by a PhD in Italian from the University of Manchester. After lecturing in Italian at a number of Universities, she went to work for the National Foundation for Educational Research in Slough.

In 1995, she came back to Wales to the NUT as its Education Officer for Wales. She is a member of the Wales TUC General Council and chairs its Women’s Committee. She is also on the Board of Directors of Chwarae Teg and the Wales Women’s National Coalition.

29 Jonathan Adams - President RSAW and architect of the Wales Millennium Centre

Jonathan Adams trained as an architect at the Welsh School of Architecture, University of Wales Institute of Science and Technology (1979-82) and at the Architectural Association School of Architecture (1984-87).

He worked for the GLC Architects (1982-83) and with William Alsop 1985 to 1998. He worked closely with Alsop from the early years of his practice until he left to take up the post of lead designer for the Wales Millennium Centre project with Percy Thomas Architects in Cardiff, which he worked on from initial concept through to the successful opening in November 2004.

He has taught at the Architectural Association School of Architecture and the Welsh School of Architecture and, as visiting critic at the Bartlett School, University of Central London and Cambridge University among others in the UK and Europe. His work has been published in most of the major UK and European architectural journals, and exhibited widely. He has been an occasional contributor to television and radio broadcasts commenting on architectural affairs. He is also a published author on architectural subjects. In 1999 he initiated the lobbying process, which led to the establishment in 2002 of the Design Commission for Wales by the Wales National Assembly. He was joint author of the Institute of Welsh Affairs report ‘Designing Success’, which set out the case for the Wales counterpart to CABE.

He is currently Special Projects Director for Capita Percy Thomas Architects. He is Honorary Secretary of Cywaith Cymru / Artworks Wales and vice- president of the Wales Stone Forum. He is a Design Review panel member for the Design Commission for Wales, and current President of the Royal Society of Architects in Wales.

Peter Johnson – Freelance Broadcaster & Journalist Peter Johnson is one of the best-known voices in Welsh broadcasting. His experience includes twelve years as presenter of the breakfast news programme Good Morning Wales for BBC Radio Wales. Today he presents the award- winning Eye on Wales current affairs programme and he can be seen occasionally as a television reporter for Week In Week Out.

After obtaining a degree in politics at the University of Exeter, Peter worked as a journalist on the Pontypridd Observer and the Western Mail before moving into broadcasting in 1977. Peter is married with two daughters and lives in Pontypridd.

30 Robert Maskrey Current Directorships and Interests Chairman - Maskreys Ltd Director - Furniture Traders Ltd Managing Director - Maskreys (Holdings) Ltd Chairman - Lower Machen Festival Director – ESG Hereford

Robert’s passionate interest in design and the arts has provided a career in the Furnishing Industry and an involvement in the arts in Wales. As a former member of the Arts Council of Wales, he helped develop a marketing strategy for the arts and was involved in the Old Library Gallery in Cardiff (CVA).

“Following the centenary of Maskreys Ltd in 1998 when we chose Shelter Cymru as our charity, my wife and I have developed a close and affectionate relationship with Shelter Cymru, helping to celebrate and support their outstanding achievements for the homeless in Wales.”

Dr Dyfed Wyn Huws Dyfed was born in Aberystwyth and enjoyed his secondary school education at Ysgol y Preseli in Pembrokeshire. After studying medicine in Cardiff he worked as a junior doctor all over Wales, before specialising in public health with placements and study in London and then back in south east Wales.

His main areas of interest are Health Impact Assessment tools and how socio-economic factors and how political institutions and political factors affect population health, as well as how urban planning, transport and housing affects health. Dyfed was therefore delighted to be able to work with local government across Europe during a secondment with the Healthy Cities Project of World Health Organization Europe in Europe in 2002. It was then a challenge putting some of these principles in to practice as Director of Public Health with Gwynedd Local Health Board and work with the Cyngor Gwynedd. Dyfed has now returned to Cardiff where he freelances in public health and works in general practice. He is also involved in research with Cardiff University’s Centre for Health Sciences Research.

31 Appendix ii Cllr Ray Davies (Caerphilly) Inquiry locations and evidence Denbighshire County Borough Council The inquiry evidence day locations 3 text messages received Health Visitors and Nurses from were chosen to try and provide the 29 pieces of written evidence Denbighshire and Conwy Local best access possible for people from submitted Health Boards all parts of Wales given the restraints Digatref Ynys Môn of time and resources. Inquiry day contributors Esgobaeth Bangor/Plwyf Aberystwyth Women’s Aid Blaenau Ffestiniog It is important to note that the Adref, Garth Villas Family Support Team, Social evidence given by people does Anti Poverty Network Cymru Services Rhyl not necessarily relate to the local Argorfa Gofal Cymru authority in which the inquiry day Nurses from Bro-Morgannwg Gwynedd CAB was held. People came from a wide Health Trust Gwynedd County Council area around the locations, and Caerphilly County Borough Gwynedd Tenants Federation indeed many from all over Wales Council Gwynedd Youth Offending Team attended the Cardiff event. Caerphilly Youth Offending Team Hafal Caerlas/Routes Cllr Diana Hammond There are many issues that Cardiff County Council Edwina Hart AM were raised which we have not Cardiff Youth Offending Team Cllr Keith Hett (Wrexham) reflected in this report, but the Care & Repair Cymru Alun Ffred Jones AM evidence collected will be collated Carmarthenshire County Elin Jones AM Ceredigion and made available for public Borough Council Llamau Ltd inspection. That evidence will Ceredigion Care Society Dr John Marek AM continue to be used by Shelter Ceredigion Probation Service Merthyr Tydfil Youth Offending Cymru in its work campaigning for Coleg Powys Team an end to homelessness and poor Communities First Aberystwyth/ Merthyr Tydfil Women’s Aid housing in Wales. Penparcau Monmouthshire Women’s Aid Communities First Gwynedd NACRO Inquiry Days Communities First Neath Port National Energy Action Wales 10 April 2006 Merthyr Tydfil Talbot County Borough Council National Landlords Association 1 June 2006 Rhyl Conwy County Borough Council NCH Network (Blaenau Gwent) 5 September 2006 Aberystwyth Cyfle Ffestiniog Neath Port Talbot County 26 October 2006 Blaenau Ffestiniog Cymdeithas Tai Cantref Borough Council Youth Service 29 November 2006 Cardiff Cymdeithas Tai Clwyd NOMS Wales 20 December 2006 Swansea Cymdeithas Tai Eryri North Wales Police Cymdeithas Tai Hafan Pembrokeshire County Borough Key statistics Cymdeithas Tai Hafan - Rhyl Council Approximately 169 attended Young Womens Project Pembrokeshire MIND our evidence days Cymorth Cymru Royal Agricultural Benevolent Cymorth i Ferched Gwynedd Institution North Wales & Cyrenians Cymru Shropshire

32 Royal College of Nursing CAB Chris Ruane MP Care & Repair Denbighshire Salvation Army Citizens Advice Cymru Supporting People Blaenau Gwent Swansea CAB Swansea Young Single Homeless Project Tai Pawb Talysarn and Nanlle Partnership The Bays Project Barnardos Cymorth Cymru Rhodri Glyn Thomas AM Cyrenians Cymru Trothwy Cyf Cllr Brian Finn (Cardiff) University of Wales Aberystwyth Cllr Jacqui Gasson (Cardiff) University of Wales Aberystwyth Gwynedd Tenants Commission Students Union Land for people University of Wales Cardiff Cllr Gwenllian Lansdown (Cardiff) Vale of Glamorgan Local Public Val Lloyd AM Health Team, NPHS NCH Cymru Voices from Care NEA Wales Wales & West Housing North Wales Domestic Abuse Association Forum Wallich Clifford Cllr Adrian Robson (Cardiff) Welsh Assembly Government Cllr Jean A. Roscoe (Gwynedd) Welsh Refugee Council RNIB Cymru Welsh Tenants Federation Swansea CAB West Rhyl Community Swansea Young Single Company Ltd Homeless Project Mark Williams MP Ceredigion Lord Dafydd Elis Thomas AM Young People’s Project/Viva Rhyl Gwenda Thomas AM Youth Gateway, Careers Wales Voices from Care Ynys Môn County Council Wrexham County Council

Policy input This list is not exhaustive, and does The Principality not include the many individuals Cooperative Concepts and and families that came along to our Community Mutual evidence days to tell their stories. Henry George Foundation Thank you to everyone that came Written evidence along to our evidence days and Lorraine Barrett AM forwarded written evidence to CAB Gwynedd & De Ynys Mon contribute to our inquiry.

33 Appendix iii Definitions of homelessness

The definition of homelessness custody, prisons, the armed available for his or her occupation and recommended by the forces and other institutions or which that person has a legal right to Homelessness Commission supported housing, occupy. in 2001 and adopted by the Required to leave by family Assembly Government is: or friends due to relationship A person will also be homeless breakdown, where he or she has accommodation “Where a person lacks Within three months of the end but cannot secure entry to it, or where accommodation or where their of tenancy, facing possession he or she has accommodation that tenure is not secure” proceedings or threat of is a moveable structure (such as a eviction. caravan or houseboat) and there is Examples of people covered by this nowhere it can be placed in order to definition will include people The Assembly recommends the provide accommodation. who are: following definition of ‘rough sleeping’: A person who has accommodation Sleeping rough is to be treated as homeless where it Living in insecure/temporary ‘People who are sleeping, or would not be reasonable for him or her housing (excluding assured/ bedded down, in the open air; to continue to occupy it. assured shorthold tenants) people in buildings or other places Living in short term hostels, not designated for habitation.’ This Under section 175 (4) a person is night shelters, direct access definition will include, for example, threatened with homelessness if it hostels people sleeping on the streets, in is likely that he or she will become Living in bed and breakfasts doorways, in parks, in bus shelters, homeless within 28 days. Moving frequently between or buildings not designated for relatives/friends habitation such as barns, sheds, car Squatting parks, cars, derelict boats, stations, Unable to remain in, or return to, squats, tents, or makeshift shelters.’ housing due to poor conditions, overcrowding, affordability The statutory definition of problems, domestic violence, homelessness can be found in harassment, mental, physical part 7 of the 1996 Housing Act as and/or sexual abuse, amended by the Homelessness unsuitability for physical Act (2002). needs etc. Threatened with losing their Under section 175 a person is home and without suitable deemed homeless if: alternative accommodation for any reasons e.g. He or she has no accommodation Leaving hospitals, police in the UK or elsewhere which is

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