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The Role of Supported Hostel Accommodation in Meeting the Needs of Homeless People

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The Role of Supported Hostel Accommodation in Meeting the Needs of Homeless People THE ROLE OF SUPPORTED HOSTEL ACCOMMODATION IN MEETING THE NEEDS OF HOMELESS PEOPLE Joanne S. Neale B.A. (Hons) (Bradford) C.Q.S.W. (Bradford) M.A. (York) A thesis submitted for the Degree of Doctor of Philosophy of the Department of Social Policy and Social Work at the University of York. June 1995 ABSTRACT The origins of this thesis lie in the proliferation of various forms of supported hostel accommodation which has accompanied the increase in homelessness, particularly over the last decade. The research has two central aims. The first is to ascertain the extent to which supported hostel accommodation is meeting the needs of the homeless people living in them, and the second is to consider how it might be possible to improve such accommodation in order that it might better meet those needs. The main areas of interest relate to those issues not considered, or afforded only limited attention, by previous research. These include the outcomes of provision; the day-to- day experiences of hostel life (for example, what it means and how it feels to live in a supported hostel for homeless people); and the relevance and meaning of conceptual issues (such as needs, stigma, rights, power, control, choice, participation, dependence, and independence). Stage one of the fieldwork was based upon the collection of general factual information (quantitative data) about the provision in a case study area. Stage two involved a pluralistic evaluation of four very different case study hostels. The latter comprised qualitative in-depth interviews with a mixture of residents, ex-residents, workers, managers, management committee members, referral agency representatives, volunteers, and others. The thesis concludes that, for some individuals at some times in their lives, and for others more permanently, supported hostels can be an appropriate and very valuable form of housing. Indeed, it would be wholly inappropriate to residualise them in terms of quality or of standards or of their worth in general. Significant improvements to existing provision are, nevertheless, possible and desirable. Moreover, a sociologically and theoretically informed analysis can make an important contribution to highlighting how such changes might be effected. 2 CONTENTS Page LIST OF TABLES 11 ACKNOWLEDGEMENTS 12 DECLARATION 13 GLOSSARY 14 ABBREVIATIONS 17 CHAPTER 1: INTRODUCTION 18 Introduction 18 Part 1: Aims, objectives, and reasons for the thesis 18 Part 2: Understanding the concepts 18 Homelessness 19 Supported hostel accommodation 21 Needs 23 Housing needs 24 Support and care needs 25 Part 3: The context 28 Trends in homelessness 28 Social and demographic factors 29 Economic factors 30 Political factors 31 Part 4: The structure of the thesis 32 3 CHAPTER 2: A HISTORY OF PROVISION AND POLICY 34 Introduction 34 Part 1: Trends in provision and policy 34 Part 2: A history of related policies 43 Housing policy 43 Community care policy 45 Social security policy 47 Hostel funding policies 49 Conclusion 53 CHAPTER 3: LITERATURE REVIEW OF PREVIOUS RESEARCH 54 Introduction 54 Part 1: An introduction to research on hostels 55 Part 2: The characteristics of homeless people and hostel users 61 'Priority' and 'non-priority' homeless people 62 Gender 63 Ethnic origin 64 Age 66 Employment/ benefit circumstances 68 Sexual orientation 69 Physical and mental health 70 Social problems and support needs 72 Previous housing histories 74 Reasons for homelessness 74 Housing aspirations and preferences 76 The heterogeneity of homelessness 78 Part 3: Evaluating aspects of supported hostel accommodation 79 Funding 79 Standards: physical conditions, location and design 82 Support services 86 Rehousing and move-on 89 Management and staffing 91 Management 91 Staffing 93 Policies and procedures 93 Daily routines 93 Referrals and acceptance policies 94 Length of stay 96 Residents' rights 96 Rules and regulations 98 Planning, monitoring, and evaluating hostel aims and objectives 99 Service co-ordination 101 Hostel relationships 102 4 Users' views of hostel facilities 104 Part 4: The implications of existing research for the study to be undertaken 107 The summary so far 107 Issues still to be addressed 108 The community care debate 109 The total institution debate 111 Implications for the present research 113 CHAPTER 4: A THEORETICAL PERSPECTIVE 115 Introduction 115 Part 1: Existing theories of homelessness and welfare 115 Existing theories of homelessness 115 Existing theories of welfare 117 The influence of theories on provision 118 Summary 121 Part 2: Critiques of existing theories 122 A critique of welfare consensus 122 Feminist critiques of social and housing policy 125 The limitations of existing critiques 127 Feminist theory reconsidered 130 Summary 131 Part 3: New perspectives on homelessness and welfare 132 Post-modernism and post-structuralism 132 Foucault (1979) 133 Weedon (1987) 135 Language and the deconstruction of meaning 137 Supported accommodation 137 Home 139 Needs 140 Some critical weaknesses 141 Meanings and power structures reconsidered 143 Weedon (1987) 143 Giddens (1979; 1984) 144 Doyal and Gough (1984; 1991) 146 Habermas (1970; 1991) 147 Conclusion 149 Eight emerging propositions 149 From theory to politics and practice 149 Summary 152 5 CHAPTER 5: RESEARCH METHODS 154 Introduction 154 Part 1: The research topic 154 The main research aims and areas of interest 154 The research questions 155 The ambiguity of working definitions 156 A working definition of homelessness 157 A working definition of needs 157 A working definition of supported hostel accommodation 157 Part 2: The research methods 159 Lessons from the past 159 Designing the fieldwork 161 The location 162 Stage one of the fieldwork 162 Stage two of the fieldwork 163 Part 3: Methodological complexities and ethical considerations 165 Selection 165 Access 166 The interviews 167 Conclusion 168 CHAPTER 6: THE HOSTEL MIX IN A LOCAL AREA 170 Introduction 170 Part 1: The case study area 170 Economic characteristics 170 Population 171 Housing tenure 171 Housing need 172 Part 2: A national overview of hostel provision 175 The 1991 Census 176 The Housing Corporation's Annual Statistical Survey, 1994 181 Part 3: Hostel provision in the case study area 182 Other research 183 Monitoring statistics 184 The local guide to emergency accommodation 185 Summary 190 6 CHAPTER 7: FOUR CASE STUDY HOSTELS 191 Introduction 191 The four case study hostels 191 Hostel A: a profile 191 Hostel A: a subjective account 194 Hostel B: a profile 196 Hostel B: a subjective account 199 Hostel C: a profile 202 Hostel C: a subjective account 205 Hostel ]J: a profile 207 Hostel D: a subjective account 211 Summary 212 CHAPTER 8: RESIDENTS' CHARACTERISTICS 214 Introduction 214 Part 1: Personal characteristics 214 'Priority' and 'non-priority' homeless people 214 Gender 215 Ethnic origin 215 Age 217 Marital/ family status 218 Employment/ benefit circumstances 218 Class/ socio-economic group 219 Sexual orientation 219 Physical and mental health 220 Social problems and support needs 221 Part 2: Housing circumstances 226 Previous housing histories 226 Reasons for homelessness 229 Present housing circumstances 231 Likely future housing circumstances 236 Housing aspirations and preferences 239 Part 3: Supported hostel accommodation - generic or specialist provision? 244 Groups of hostel residents 244 Separating versus mixing groups of hostel residents 246 Summary 250 CHAPTER 9: HOSTEL CHARACTERISTICS 253 Introduction 253 Funding 253 Standards 257 7 Support services 263 Availability 264 Satisfaction 266 Improvements 267 Provision for rehousing and move-on 269 Management and staffing 272 Management 272 Staffing 277 Policies and procedures 280 Daily routines 280 Referrals and admissions 285 Length of stay 288 Residents' rights 289 Rules and regulations 291 Planning, monitoring, and evaluating hostel aims and objectives 296 Service co-ordination 300 Summary 303 CHAPTER 10: HOSTELS - THE INSIDE STORY 308 Introduction 308 Hostel relationships 308 Relationships and their significance 308 Resident/ resident relationships 309 Resident! worker relationships 312 Staff relationships 313 Worker/ management relationships 314 Relationships with other professionals 315 Relationships with volunteers 315 Relationships with family and friends 316 Hostel! local community relations 317 Hostel philosophies and ethos 317 Motivations 318 Staff attitudes 320 Working practices 321 Hostel atmosphere 321 Summary 322 Stigma 322 Do hostel residents feel stigma? 322 Why do hostel residents feel stigma? 324 How important an issue is stigma? 325 How might stigma be challenged? 326 Dependence and independence 327 8 Feelings and emotions 330 The experience of hostel living 330 Happiness 332 At home or homeless? 333 Summary 336 Resident control, participation, and choice 337 The extent of resident involvement in hostel management 338 Factors inhibiting resident involvement in hostel management 339 The scope for increasing resident involvement in hostel management 340 Evaluating resident involvement in hostel management 341 The extent of resident control and choice over their day-to-day lives 344 Factors inhibiting resident choice over day-to- day issues 346 The scope for increasing resident choice over day-to-day issues 346 Evaluating resident choice over day-to-day issues 347 Summary 348 CHAPTER 11: SUMMARY 353 Introduction 353 The value of provision 353 The important features 357 The positive and negative features 360 The positive features 361 The negative features 362 Comparing positive
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