RAPID REHOUSING TRANSITION PLANS: A SCOTTISH OVERVIEW

With practice examples and ideas to share

Lucie Dunn 2 Rapid Rehousing Transition Plans (RRTPs): a Scottish overview 3 About Crisis Contents Crisis is the national charity for homeless people. We help people directly out of homelessness, and campaign for the social changes needed to solve it altogether. We know that together we can end homelessness.

In Scotland, we work with the Scottish Government, Scottish Parliament, local authorities and organisations across the nation to make sure that ending homelessness is high on the agenda and offer strategic and practical solutions Foreword 4 to tackle it. Introduction 6 In Edinburgh, we provide education, training, coaching and housing access RRTPs in a nutshell 6 support for people who are homeless, empowering them to move on from About this document 7 homelessness through our Skylight services. Main themes reviewed 7 Finding RRTP documentation 8

RRTPs step by step Chapter 1. Partnership approach to RRTP development 9

Acknowledgements Chapter 2. Settled housing: supply and access 14

We would like to thank the individuals who gave of their time to offer comments, Chapter 3. Transforming temporary accommodation 58 analysis and insights on draft findings: Tony Cain and John Mills (Association of Local Authority Chief Housing Officers); Maggie Brünjes (Homelessness Network Chapter 4. Preventing homelessness 90 Scotland); Ashley Campbell (Chartered Institute of Housing in Scotland); Yvette Burgess (Housing Support Enabling Unit); and Catriona McKean, Graham Thomson Chapter 5. Service and culture change 108 and Marion Gibbs, of the Scottish Government’s Homelessness Team. Particular thanks go to Marion for her detailed, constructive feedback and suggestions. Chapter 6. Resources 122

Concluding remarks 129

Appendices 130 Appendix I: links to RRTPs consulted 130 Author Appendix II: list of acronyms 133

Lucie Dunn works in the Best Practice Team at Crisis.

Crisis Scotland Crichton House 4 Crichton's Close Edinburgh EH8 8DT www.crisis.org.uk © Crisis 2020

Crisis UK (trading as Crisis). Registered Charity Numbers: E&W1082947, SC040094. Company Number: 4024938 4 Rapid Rehousing Transition Plans (RRTPs): a Scottish overview Foreword 5 Foreword

Scotland is one of the only nations in the world with a Government Action Plan to End Homelessness.

The Scottish Government has taken a bold position on We hope a detailed overview of RRTPs, taken at this particular point in time in ending homelessness. In November 2018, it published Scotland, will be of use, interest and inspiration to the homelessness sector its action plan, ‘Ending Homelessness Together’. As and beyond. Chair of the Scottish Government’s Homelessness and Rough Sleeping Action Group (HARSAG) from It’s important to note that this report represents a desktop review which was October 2017 to May 2018, I was delighted to see that completed by reading publicly available RRTPs and associated documentation. the action plan translated all of our recommendations This wasn’t cross-referenced with current services or good practice not into concrete steps for change. I was filled with a real mentioned in RRTPs, though we know that much exists. sense of optimism about what can be achieved in Scotland. Though the overview reflects the moment when a version of each RRTP was consulted, it must be highlighted that RRTPs are dynamic, regularly undergoing The Scottish Government’s action plan committed to a significant shift towards review and new iterations. We know some of the drafts of plans we reviewed rapid rehousing by default. This means that when people find themselves have already moved on, and that they will continue to do so. homeless, they will be rapidly re-housed and not put through the damaging experiences of staying in unsuitable temporary accommodation, such as B&Bs. Lastly, this report is primarily focused on the plans. Delivery is a distinct and much larger subject. But we look forward to seeing, and where we can, As part of this shift, each local authority in Scotland was asked to submit a draft supporting, the work needed to convert plans into reality. Rapid Rehousing Transition Plan (RRTP) to the Scottish Government in spring 2019. These plans lay out how each local authority intends to move away from Looking ahead, it is our intention to work with local authorities to promote the the current homelessness system to one with rapid rehousing at its centre. excellent work which RRTPs represent in Scotland and beyond, and to share learnings with a much wider audience. This inaugural set of RRTPs is a growing source of interest within Scotland and further afield. Rapid rehousing as a concept is attracting increasing attention, Homelessness can be ended – and we’ll have the most impact if we work both nationally and internationally, and there is a keenness to understand what together and all play our part to help make this vision a reality. it looks like in practice. This is why Crisis has put together a pan-Scotland RRTP overview, laying out key patterns, trends and differences in how local authorities have understood, and intend to implement, their rapid rehousing vision.

In this report, we’ve picked out examples, both current and planned, to help air, share and promote the rich content of RRTPs. We’ve also highlighted some of the main tensions and questions we’ll need to grapple with in order to ensure rapid rehousing is successfully and sustainably implemented in each local area.

Jon Sparkes Chief Executive, Crisis 6 Rapid Rehousing Transition Plans (RRTPs): a Scottish overview Introduction 7

commissioned Indigo House to and tensions which may arise when provide a housing market analysis for implementing rapid rehousing across each area3 and an RRTP toolkit, with Scotland. Tensions are identified with Introduction practical guidance for authorities.4 the symbol ( ). Within RRTPs, the toolkit suggested We’ve also presented examples of that authorities set out current or planned services, projects or approaches which we think are • the local housing market and worth sharing. homelessness context

Rapid Rehousing • Housing First is the first response • the baseline position of temporary Main themes reviewed Transition Plans (RRTPs) • highly specialist provision within accommodation supply small, shared, supported and The six areas reviewed in this in a nutshell trauma informed environments is • an assessment of the support needs document are: available, if mainstream housing, of homeless households Scotland’s Homelessness and Rough including Housing First, is not 1. Partnership approach to RRTP Sleeping Action Group (HARSAG), possible or preferable • the authority and partners’ five-year development which Crisis chaired from autumn vision for settled housing options, 2017 to summer 2018, put the concept For local authorities and their partners, temporary accommodation and 2. Settled housing: supply of ‘rapid rehousing by default’ at this means stepping up activities to prevention and access the centre of its recommendations prevent homelessness, maximising a. approach on ending homelessness supply of and access to a wide • the resources required to deliver the b. social housing and transforming temporary range of settled housing options, plan including any funding requests c. Mid-Market Rent (MMR) accommodation and support. reducing the time people spend as made of the Scottish Government’s d. Private Rented Sector (PRS) homeless, especially in temporary Ending Homelessness Together fund e. owner occupation A substantial body of evidence, from accommodation, and ensuring tailored f. shared housing options academic research1 and stakeholder support is available as and when RRTPs tend to follow the above order. g. Housing First engagement, including people with people need it. lived experience of homelessness,2 led 3. Transforming temporary HARSAG to support rapid rehousing, HARSAG recognised the work needed About this document accommodation which is a housing-led approach for to bring about a transition to rapid a. approach people experiencing homelessness. rehousing in each area of Scotland This document gives an overview of all b. Bed and Breakfast (B&B) would be significant, and much more 32 Scottish Rapid Rehousing Transition c. Private Sector Leasing (PSL) The HARSAG definition of rapid challenging in some local authorities Plans (RRTPs), which we’ve reviewed d. self-contained temporary rehousing is than in others. As such, a five-year in detail. properties transition period was set, and each e. supported accommodation • a settled, mainstream housing of Scotland’s 32 local authorities was We look at what was expected of local f. alternative forms of temporary outcome, as quickly as possible, with asked to submit a first RRTP draft to authorities within the RRTP guidance/ accommodation time spent in any form of temporary Government by end of December 2018. toolkit, and more generally through g. temporary accommodation accommodation reduced to a HARSAG recommendations made on charges minimum, with the fewer transitions The RRTP’s core purpose is to provide that area. the better a five-year route map, laying out 4. Preventing homelessness how the authority intends to move We also consider details and • when temporary accommodation away from reliance on temporary information not expected of authorities 5. Service and culture change is needed, the optimum type is accommodation, by improving through the guidance/toolkit, but a. local authority homelessness mainstream, furnished and within a prevention and expanding settled which some have set out in their services community housing and support options for RRTPs. b. pathways for particular groups homeless households. • for people with multiple needs We give a factual overview of RRTPs, 6. Resources beyond housing On behalf of HARSAG, Social Bite highlighting trends and approaches, as well as some of the key questions 1 Chapter 7 of our 2018 Plan to End Homelessness pulls together the evidence on housing-led approaches, https://www.crisis.org.uk/media/239951/everybody_in_how_to_end_homelessness_in_great_ britain_2018.pdf See also https://endhomelessness.org/rapid-re-housing-works-evidence-says/ 3 https://social-bite.co.uk/wp-content/uploads/2018/06/RRTP-Analysis-and-Review-JUNE-2018-pubv1.pdf 2 https://homelessnetwork.scot/wp-content/uploads/2019/12/Aye-Report-August-2018.pdf 4 https://social-bite.co.uk/wp-content/uploads/2018/07/Rapid_Rehousing_Guidance1.1.pdf 8 Rapid Rehousing Transition Plans (RRTPs): a Scottish overview Chapter 1. Partnership approach to RRTP development 9

Finding RRTP A smaller number of RRTPs only documentation convey statistics and vision within the appendices, meaning this detail cannot Chapter 1 The process by which RRTPs were be found where appendices have not produced and approved by authorities been made publicly available. It has was a matter for local decision. As not been possible to locate each piece such, RRTPs were made publicly of supplementary information for Partnership available through different routes, at every authority. Toolkit submissions different times, in different drafts and and funding bids have been most with differing levels of supporting challenging to find. information attached (funding bids, action plans, toolkit submissions and The context above makes this review a approach Equality Impact Assessments (EIAs)). necessarily imperfect exercise.

31 authorities submitted a first RRTP For clarity and transparency, a list of draft to Scottish Government by 31 links to the RRTP document reviewed to RRTP December 2018, with the last (Orkney) for each local authority is attached at submitting in mid-January 2019. These Appendix I. initial drafts are readily available: a minority have been published on local development authority websites; the remainder can be located by searching Committee or Cabinet minutes. Association of Local Authority Chief Housing Officers (ALACHO)’s website brings together a small number of RRTPs.5 What was expected of local a proactive role within RRTP authorities in the toolkit? development, such that local systems Following Scottish Government Authorities were asked to develop for vulnerable people were effectively feedback (by end of March 2019), all RRTPs in collaboration with Registered “re-wired”, with a particular focus on authorities were invited to submit a Social Landlords (RSLs), Health and the interaction between homelessness second RRTP draft, or to respond to Social Care Partnerships (H&SCPs) and Health and Social Care (H&SC). areas for development identified in the and the wider public and third sectors, The letter included examples of good feedback. We have been able to find seen as strategic partners, as well practice in collaborative working a second RRTP draft for more than a as potential service providers. It was from a number of RRTPs.6 third of authorities. Where that draft also expected that in developing a was published before autumn 2019, collaborative plan, other organisations Not mentioned in RRTP toolkit the updated draft is the one reviewed would pledge their contributions to guidance, but our view … here. implementing and resourcing it. The Whilst HARSAG placed a strong RRTP guidance asked local authorities emphasis on people with lived It should be noted that, regardless of to describe within their RRTP how experience of homelessness having whether they have published further partners had worked together to a role in informing and indeed co- drafts, all authorities will have modified develop it. producing plans and services within and improved their initial plans. the transition to rapid rehousing, there In March 2019, the Minister for Local was no specific expectation in the Most RRTPs include the majority of Government, Housing and Planning RRTP toolkit for people with current or statistics requested in the separate and the Convention of Scottish Local previous experience of homelessness toolkit submission within the main Authorities (COSLA) Convenor for or temporary accommodation services body of the RRTP. Most convey Community Wellbeing wrote to chief to be involved in RRTP development. their vision and future approach in a executive officers in local authority narrative form, as well as providing an Health Boards, Integrated Joint action plan. Boards (IJBs) and housing convenors/ chief officers to heavily encourage

6 The letter is helpfully appended to East Renfrewshire’s RRTP at: https://www.eastrenfrewshire.gov.uk/ 5 http://alacho.org/current-priorities/homelessness/rrtp/ CHttpHandler.ashx?id=24301&p=0 10 Rapid Rehousing Transition Plans (RRTPs): a Scottish overview Chapter 1. Partnership approach to RRTP development 11

RRTPs which do so, or plan to do so Around a third of authorities to engagement has facilitated this. work authorities undertook when for future iterations, offer, in our view, engaged with former and/or current A small number of RRTPs could be developing their RRTP. Edinburgh examples of good practice. homelessness and/or temporary said to have been co-produced as only recorded discussion with accommodation service users in the opposed to simply consulted on. North RSLs, stating “officers are required Overview development of their RRTP. Most and South Lanarkshire, whose RRTPs to engage with partners to fully 91% of RRTPs explicitly report some RRTPs do not say the format this took. both contain Partner Contribution develop a further version of the RRTP level of collaboration with partners in Dundee and Glasgow held consultation Statements (PCS) as well as accounts for late 2019”. Argyll and Bute only the development of their plans, but events for service users. From what is of extensive and diverse forms of explicitly references engagement there are substantial differences in the reported in plans, North Lanarkshire engagement and joint planning, stand with the H&SCP when developing its extent of engagement undertaken and Renfrewshire appear strongest out in this respect. RRTP, though this appears to have across Scotland. Whilst collaboration in this respect. The former consulted engendered a particularly strong joint was limited to discussion with RSLs with current and former service Aberdeen, Perth and Kinross and Fife’s commitment for delivery of holistic and/or H&SCPs in some areas, others users through their Homelessness plans are strongly collaborative in tone support services which transcend consulted and engaged much more Service User Forum, the latter and approach, but do not spell out current service boundaries. broadly with internal services, frontline undertook questionnaires and focus specific engagement or consultation teams, third sector agencies, service groups with residents of supported users, tenants and elected members. accommodation and formerly homeless Council tenants. Both RRTPs A number of authorities identified that show how areas of strength and areas Practice examples and ideas worth sharing “rapid rehousing”, as a relatively new for improvement identified by service concept, was not widely understood users have shaped their plans. within their areas. Falkirk held a Other RRTPs, such as Aberdeen, West Lothian Council started its consultation and engagement with stakeholder event to “introduce Dumfries and Galloway and North partners on RRTP development promptly after HARSAG made its final the theory and ethos of the RRTP” Ayrshire, make good use of recent recommendations. Noting that rapid rehousing was a relatively new whilst East Dunbartonshire issued findings from consultation with concept and to ensure meaningful consultation, the Council arranged a a survey to partners to gauge level service users undertaken for reviews series of briefing and feedback sessions on its principles for stakeholders, of understanding and gather ideas. of temporary accommodation or including services users, tenants and internal staff from a wide range of West Lothian and Renfrewshire homelessness services. Though not departments, including education and finance. provided a broad range of briefing undertaken for the RRTP, they show and feedback sessions to internal and how service user views were used to They established interim working groups to collate and analyse RRTP data external partners, using key themes inform their rapid rehousing vision. and set up sessions to feed this back to agencies for further refinement and emerging to inform the next stage of discussion, culminating in a wider event which in turn informed the plan. consultation. Some authorities which have not The Council set up individual sessions with larger RSLs to work towards engaged with service users during agreed local lettings targets and formed an RRTP Board, which includes Around two thirds of authorities held the RRTP process make clear plans RSLs, to monitor implementation. rapid rehousing events, workshops to do so as the plan is implemented. or briefings. In Dundee, East Lothian South Ayrshire intends to establish a and the three Ayrshires, this took rapid rehousing service users working the form of a one-off stakeholder group to inform the delivery of new South Lanarkshire Council reports a strongly collaborative approach to consultation event, whilst Stirling, West approaches, whilst Highland plans for RRTP development, describing its plan as “co-produced through intense Dunbartonshire and Angus ran a series its Tenant and Customer Engagement engagement with key partners”. This engagement took the form of of engagement sessions over a period Team to run a full programme of awareness-raising briefings, workshop sessions with elected members, of time. Scottish Borders and Dumfries engagement with homeless RTOs and senior managers from the H&SCP, and a large stakeholder and Galloway ran workshops for service users. planning event comprising over 20 organisations. This generated five high frontline staff, whilst Aberdeenshire and level RRTP objectives which were shaped together. West Dunbartonshire involved elected The strongest RRTPs on partnership members in feedback and engagement working demonstrate how the The Council also sought PCS, in which partners set out their specific sessions. South Lanarkshire and authority has ensured all parties have contributions to prevention, support, supply and rehousing. These Renfrewshire consulted with Registered a shared vision of rapid rehousing, a statements not only formalise commitments but also point to key Tenant Organisations (RTOs) and common understanding of objectives concerns/barriers in implementing rapid rehousing from the perspective various authorities, such as Orkney, and clarity on their respective of other parts of the sector. This shines a light on what each respective included articles on rapid rehousing in contribution to delivering change. organisation needs to implement the shared vision in practice, and starts to tenant newsletters. Inverclyde, West Lothian, West get behind generic statements of support. Dunbartonshire and North Ayrshire clearly show how their approach 12 Rapid Rehousing Transition Plans (RRTPs): a Scottish overview Chapter 1. Partnership approach to RRTP development 13

Renfrewshire Council refers to a long record of partnership working on North Lanarkshire Council’s RRTP is a good example of a co-produced homelessness in its area. The Council started RRTP briefings with a wide plan. The Council set up a multi-agency RRTP working group to develop range of partners from July 2018, including non-housing services, such as its plan, with representation from H&SCP, local RSLs, third sector and Fire the Alcohol and Drug Partnership (ADP) and Community Justice Steering and Rescue Service, as well as Council homelessness services. The group Group, frontline staff, RTOs and all Council tenants. Internal analysis of met four times during RRTP development, focusing on scoping, vision and homelessness statistics and performance lead to key themes emerging, objectives and culminating in a Strengths, Weakness, Opportunities, Threats which were explored further in early discussions with partners. The Council (SWOT) analysis. Alongside, the Council undertook broader engagement sent an RRTP consultation paper to over 40 partners in October 2018 with stakeholders and homeless service users. seeking feedback on the “emerging priorities list”. Responses informed and are reflected in the final draft. The RRTP working group has strong links to the authority’s existing Health and Homelessness Steering Group, a positive foundation on which to The Council also wanted to hear representative views from current or build a strong H&SC input to rapid rehousing. The contribution from the former service users and used a range of methods to capture different H&SCP outlined in the plan contains a range of specific actions to which opinions, including a questionnaire for residents in staffed accommodation H&SC have committed. For example, appointment of dedicated Health and focus groups for users of supported accommodation and current and Homelessness leads in each locality, to develop a care management tenants who had been homeless within the last year, some of whom model to support Housing First tenants, an increase in health improvement had used housing support services. This allowed the Council to detect capacity to lead on delivery of preventative health and homelessness common themes and priorities, which clearly informed the development of actions, and enhancement to Community Prescribing Services. their RRTP actions.

Argyll and Bute Council developed proposals on the delivery of holistic North Ayrshire Council set up a multi-agency Homelessness Taskforce support to households in partnership with the H&SCP. These proposals in 2018 comprising senior representatives from the H&SCP, Mental aim to transform the working relationship between support commissioners Health Services, Police Scotland and third sector to develop an integrated and contractors across the Council and H&SCP. The proposals focus on approach to preventing and alleviating homelessness. This is especially closer integration of support for housing, mental health and addictions, in key in North Ayrshire, which has higher levels of severe and multiple which one agency takes the lead responsibility, seeking to co-ordinate and disadvantage and higher proportion of homeless people with complex minimise the number of professionals working with each individual. The support needs than Scotland as a whole. lead agency for complex cases will be the H&SCP.

The Homelessness Taskforce led RRTP development, which included consulting RSLs, a range of third sector organisations and homeless service users. The Council and H&SCP hosted a multi-agency, pan- Ayrshire consultation and planning event in December 2018, focused on the transition to rapid rehousing. This approach ensured a shared set of objectives and joint commitment to service redesign and resource planning. The RRTP is presented as a “whole system” approach for public services in North Ayrshire.

Dumfries and Galloway Council was clear that implementing rapid rehousing requires culture change, and a deep sense of buy-in from all partners, especially in a stock transfer authority. The Council set up a Homelessness Forum with key partners to ensure ongoing commitment, visited service providers, met with service users, ran staff engagement sessions and held larger engagement events with Scottish Housing Network (SHN). The Council also provided rapid rehousing seminars with the IJB, local Poverty Group and elected members. 14 Rapid Rehousing Transition Plans (RRTPs): a Scottish overview Chapter 2. Settled housing: supplyand access 15

Not mentioned in RRTP toolkit Overview guidance, but our view … Chapter 2 Whilst the toolkit asked authorities to “Flow” through the system state average length of case for cases Though not asked to provide an closed during the financial year and average rehousing timescale for average length of stay in temporary statutory homeless households, 81% Settled accommodation in their RRTP, they of authorities do provide a figure. This were not asked to provide average is especially useful for gaining a true case length for cases closed with picture of “flow” through the statutory a settled rehousing outcome. This homelessness system at local authority can skew the picture of how long it level. Average rehousing timescales housing: actually takes applicants to get housed, range from 105 weeks in Midlothian to as cases closed for other reasons (such 11 weeks in Perth and Kinross. as loss of contact), or in and out of temporary accommodation, are part of Only a third of RRTPs provide a supply and these statistical averages. rehousing target timescale for the end of the five-year plan, with (in Whilst authorities could subtract cases descending order), Aberdeen, Stirling, closed due to lost contact or refusal of Glasgow, Angus, Argyll and Bute and access offers from their annual demand figure Midlothian ambitiously aiming to cut in the toolkit, they were not asked to average timescales by between 72% set actions for reducing the proportion and 50%. A 72% reduction in Aberdeen of lost contacts or refusals in future. would see the average rehousing HL1 statistics record loss of contact as timescale as the shortest nationally What was expected of local households from the annual demand ranging from 0% to 27%8 of cases with (from areas providing a figure), at authorities in the toolkit? figure above, gives the authority a a statutory duty nationally, a level of seven weeks. The toolkit suggested local authorities sense of its annual “gap”. divergence worthy of further analysis. analyse annual homelessness (HL1) “Flow” can also be considered by and Social Housing Charter data7 Authorities were then asked to provide RRTP guidance did not ask authorities comparing the total number of to determine total housing supply a locally agreed annual rehousing to quantify, reflect on or plan for households assessed with a full duty requirements in the next five years target for their areas, made up of households who are homeless but to current open caseload with a full for homeless households. This means additional settled housing supply from not owed a full rehousing duty, such duty, which all RRTPs were asked to the total number of settled tenancies social, private and other sectors. This as intentionally homeless or ineligible provide.9 A figure of 20% for example required to meet annual demand. includes plans to introduce or expand households, entitled households that would indicate that only a fifth of Housing First provision. lose contact with the homelessness presentations received over a year Annual demand is worked out in the service before rehousing, or those for were “live” cases at any one time, toolkit by the authority taking an The guidance suggested the housing whom duties are discharged (due to suggesting rapid flow through the average of the total annual duty to options available for homeless refusing offers), and who may remain system. A figure of 200% on the other rehouse cases over the past three households should be equal to those homeless. hand would indicate a serious backlog, years, subtracting households who available to any other households showing new cases coming in twice as lose contact or refuse offers, and seeking housing in the area, implying Despite not being asked to comment fast as the authority can rehouse them. adding the “backlog” of open cases social housing should not necessarily on the above areas in the toolkit, some to whom a statutory homeless duty be the default pathway for all, a point RRTPs do so. In our view such RRTPs Such analysis shows Midlothian’s applies. RRTPs aim to address this also clearly made by the HARSAG. bring us closer to a complete, inclusive “flow”, at 206%, is the slowest in “backlog” over five years, so the future vision for rapid rehousing. Scotland by far, and almost double number is divided by five to give an Authorities were also encouraged to that of neighbouring Edinburgh, with annual figure. consider service redesign aspects, the sixth slowest flow (106%). East such as tailored assistance for people Dunbartonshire and Shetland have the Annual supply, worked out by navigating the homelessness system. second and third slowest flows, with subtracting the average number figures of 141% and 132% respectively. of annual social and private rented tenancies secured for homeless

8 https://www2.gov.scot/Topics/Statistics/Browse/Housing-Regeneration/RefTables/ 7 As RRTPs were prepared for December 2018, annual HL1 statistics authorities used were for 2017-2018. homelessness1819tablescharts This document also refers to statistics from that year only. Social Housing Charter data is referred to as 9 We were able to find this statistic in 90% of RRTPs Annual Return on the Charter (ARC). Chart 1

250%

200%

150%

100%

50% System flow, expressed as % System flow,

0%

Fife Falkirk Moray Stirling Dundee Orkney Shetland Highland Glasgow Aberdeen Midlothian Eilean SiarEdinburgh Inverclyde SCOTLAND East Lothian West Lothian Renfrewshire Argyll & Bute East Ayrshire AberdeenshireNorth Ayrshire South AyrshirePerth & Kinross North Lanarkshire Clackmannanshire South Lanarkshire East Renfrewshire East Dunbartonshire Dumfries & GallowayWest Dunbartonshire

16 Rapid Rehousing Transition Plans (RRTPs): a Scottish overview Chapter 2. Settled housing: supplyand access 17 Chart 1

Chart 2 Chart 1. Flow through homelessness system, by local authority Chart 2. Supply “gap” figure, as proportion of annual demand, by local authority

250% 100%

200% 76%

150% 52%

100% 28% Percentages

50% 4% System flow, expressed as % System flow,

0% -20% Fife Fife Stirling Moray AngusFalkirk Falkirk Moray Dundee Stirling Dundee Orkney Glasgow Aberdeen Shetland Shetland Highland Glasgow Aberdeen EileanMidlothian Siar Edinburgh Midlothian Eilean SiarEdinburgh Inverclyde East AyrshireEast Lothian SCOTLAND East Lothian SCOTLAND West Lothian Renfrewshire West Lothian Renfrewshire Argyll & Bute East Ayrshire Aberdeenshire North Ayrshire South Ayrshire Perth & Kinross AberdeenshireNorth Ayrshire South AyrshirePerth & Kinross South Lanarkshire East Renfrewshire South Lanarkshire East Renfrewshire North Lanarkshire Clackmannanshire East Dunbartonshire West DunbartonshireDumfries & Galloway East Dunbartonshire Dumfries & GallowayWest Dunbartonshire

Other authorities with a flow over records a zero gap, suggesting lets Additional supply target South Lanarkshire and East Ayrshire 100% are Eilean Siar (115%) and are at the correct level (though not Only a third of RRTPs provide a clear set specific supply targets by Housing Highland (110%). necessarily of the right size, type or target figure for additional annual Market Area (HMA) rather than pan- Chart 2 location) to match demand. Indigo supply of lets. The remainder make authority, having high and low housing Perth and Kinross has the quickest House analysis confirms a very more general statements around pressure points locally. Three of “flow” by far (16%). Moray (31%), South small gap in Perth and Kinross, but increasing local authority allocations, the authorities using modelling by 100% Ayrshire (38%), Orkney and West suggests a greater one in Dumfries agreeing increases with RSLs, and, consultants (Glasgow, Stirling and Dunbartonshire (both 39%) are also and Galloway, however years used for less frequently, increasing offers in the South Ayrshire) also produce clear notably more rapid than average. statistical reporting are not the same.11 private sector, without providing set targets for additional supply, those in 76% The large variations here often figures. The four Lothian authorities the cities focusing strongly on social reflect particular geographies and As expected, the largest annual gaps are strong in aiming to pin down housing. This modelling, also used markets, discussed below, and give a by number are Edinburgh (1625 lets figures, showing which sectors in North Lanarkshire, North Ayrshire 52% crude indication of the extent of the short annually) and Glasgow (1329 additional supply will come from, and West Dunbartonshire’s RRTPs, challenge in some areas. lets short). Taken as a proportion of and in what number. East Lothian is calculated what it would take (in terms annual duty to house cases however, especially detailed in this regard. of lets) to halve average rehousing 28% Gap figure East Dunbartonshire is the authority timescales in each area. Percentages Just over three quarters of authorities with the most gaping gap in supply Three of the Lothian authorities used 4% provide their annual “gap” figure within (the gap figure represents 74% of new modelling to test various scenarios, “Maximal” housing options the RRTP.10 East Lothian triangulated demand), followed by Eilean Siar (63%), offering useful additional analysis on Some authorities setting an additional the RRTP toolkit approach with other Midlothian (57%) and Edinburgh (54%). what would impact most on rapid supply target only include social -20% data to ensure accuracy, concluding At the other end of the spectrum, West rehousing. Edinburgh and partner housing in their figures. In some

the toolkit did produce an accurate DunbartonshireFife (3%), East Renfrewshire RSLs modelled 11 different supply cases, that reflects a lack of attention Moray Angus figure. StirlingOnly one authority, Perth and (9%) and DundeeFalkirk Dundee (14%) are much and demand scenarios, concluding on alternative housing options to Glasgow Aberdeen Shetland EileanMidlothian Siar Edinburgh Kinross, produced a gap in negativeSCOTLAND closer to being able to close the gap. that the most significant impact on achieve rapid rehousing. Many RRTPs West LothianEast AyrshireEast Lothian Renfrewshire figures.Aberdeenshire This reflects an equalisingNorth in Ayrshire South Ayrshire Perth & Kinross the authority’s ability to deliver rapid which do consider other options South Lanarkshire East Renfrewshire East Dunbartonshire demand and supply. One additional West DunbartonshireDumfries & Galloway rehousing is an assertive prevention still don’t add private, mid-market or authority, Dumfries and Galloway, strategy, without which additional new shared tenancies to their additional supply and new build stock still won’t supply target, possibly implying a 10 All authorities will have supplied this in their toolkit return, but for reasons explained above, these allow rapid rehousing to be achieved lack in confidence in the potential for documents were not always accessible in ten years. accessing additional supply from other 11 https://social-bite.co.uk/wp-content/uploads/2018/06/RRTP-Analysis-and-Review-JUNE-2018-pubv1.pdf 18 Rapid Rehousing Transition Plans (RRTPs): a Scottish overview Chapter 2. Settled housing: supplyand access 19

tenures. RRTPs which do include lets in Perverse incentives and is likely to reflect how flexible the importantly considers how to reduce other tenures within their supply target the limits of choice current policy is, and this will differ the proportion of cases closed due to are East Lothian and South Ayrshire. Regardless of a strong focus on a by area. loss of contact, or discharged due to These authorities also clearly break range of housing options in many refusing an offer, both situations which down additional lets by tenure. RRTPs, social housing is and will Homeless people without leave people homeless. Glasgow, continue to be the destination for the a housing outcome North and South Ayrshire, Stirling An approach towards “maximal” great majority of statutory homeless A handful of RRTPs shine a light on and North Lanarkshire consider this. housing options is evident within the households in Scotland. As such, and a sizeable group the toolkit doesn’t Argyll and Bute also places a positive RRTPs of around 60% of authorities. as proposed within the Indigo House enquire about, which is people who do focus on increasing the proportion of Others, such as Glasgow, Inverclyde, market analysis, most but by no means not have (or have lost) a full rehousing offers of social housing accepted by Moray, Clackmannanshire and West all stock-holding authorities aim to duty from the local authority. Their homeless applicants. Lothian, make little reference to settled increase their lets to this group. Even housing options are almost always housing coming from anywhere more aim to agree (or have already more limited than those with a full Though the RRTP toolkit did not other than social rented stock, with agreed) increased lettings quotas with duty and they would remain homeless ask authorities to consider housing the latter heavily reliant on achieving their RSL partners. regardless of rapid rehousing plans. outcomes for groups of homeless rapid rehousing through an enhanced This undermines Scotland’s ambition people who aren’t housed through the proportion of social lets and new In areas where the proportion to end homelessness. Aberdeen, statutory system, it is our view that builds from the Affordable Housing of social lets allocated to Orkney and Falkirk’s RRTPs are strong those which do so are suggestive of Supply Programme (AHSP). statutory homeless households is in this respect. positive practice. already high, proposals to increase this 82% of authorities set out plans to further generates inevitable tensions. The consultancy model mentioned convert a proportion of temporary A number of RRTPs, for example above, and used by various authorities self-contained accommodation to South Ayrshire and West Lothian, in developing the RRTP, also permanent Scottish Secure Tenancies raise concerns that this approach (SSTs), where this suits the needs of may generate a “perverse incentive” the household. to present as homeless. Others, such as Moray, highlight in their Equality Practice examples and ideas worth sharing Around half of RRTPs place dedicated, Impact Assessment (EIA) that this could as opposed to fleeting, focus on disadvantage other valid housing need reviewing and improving access to the groups. Some authorities therefore Orkney Islands Council has particular pressures given its size, with reduced Private Rented Sector (PRS) in their plan to maintain or indeed decrease ability to continue a new build programme, its geographical spread, which areas. 40% refer to shared housing statutory homeless lets. reduces potential to ask applicants to live outwith particular communities, options. Only four RRTPs consider and its island setting, where housing approaches taken in one sector/ pathways into Mid-Market Rent (MMR), A broad reading of RRTPs tenure can impact detrimentally on other tenures in a way which would not and three into owner occupation, as also reveals tensions between be true on the mainland. potential settled housing destinations housing households quickly and for homeless households. All RRTPs, as housing households where they Despite these challenges, Orkney’s RRTP cites a wide range of actions to suggested within the toolkit guidance, most wish to live. This tension is improve the range of housing options available to homeless households have plans to implement or expand understandably most pronounced from the perspective of both access and supply. The Council intends to Housing First in their areas. in authorities with a mix of lower expand choice for single households to opt for two bedroom homes, given demand and “hotspot” areas within the lack of one bedroom stock, and pilot choice-based lettings (CBL) in Highland is the only Council whose their boundaries and/or which cover order to improve efficiency, whilst ensuring homeless households are not RRTP considers tailored assistance for large and/or diverse geographical disadvantaged by this approach. households navigating homelessness areas, such as Highland. RRTPs address and housing systems, through means this question in different ways; some The Council aims to progress its empty homes work, which has brought 23 of introducing Rapid Rehousing set plans to increase expectations on properties back into use in 18 months. It plans to explore additional supply Officers and a Housing Coach role, homeless households of where they in the PRS through enhancing its positive relationship with a partner letting both of whom will offer person- will accept housing, whilst others aim agency, as well as exploring with its one RSL whether the subsidiary could centred advice and support to explore to keep things as they are so as not to take on a letting agency role for the PRS. The Council already provides an and pursue a range of suitable move- undermine sustainability. online advertising system for private landlords, and a landlord forum, work it on options. intends to expand, and is looking into a house-share scheme for sharers. Comparisons should be made with care however, as the extent of change to the level of choice homeless households receive within allocations 20 Rapid Rehousing Transition Plans (RRTPs): a Scottish overview Chapter 2. Settled housing: supplyand access 21

Aberdeen City Council has set out a wide range of actions to increase A small number of RRTPs include households with homelessness status housing supply and access, considering not only number of lets but other than full duties as part of their rapid rehousing vision. improving processes, systems and the future speed and composition of new build, and how that reflects the demand demonstrated by urgent Aberdeen City, Orkney Islands and Falkirk Council highlight intentionally housing needs (which in many cases shows a pressure on one-bed homeless households, who are also part of their “live” caseload, and often properties). The Council wants to improve its voids and allocations in temporary accommodation. 13% of Aberdeen’s households in temporary processes, convert temporary self-contained properties to SSTs and agree accommodation have this decision. In Orkney’s case, such households protocols for a minimum proportion of lets through its Common Housing are accommodated with no set time limit, allowing them time to source Register (CHR). alternative options.

The Council also has an Empty Homes Officer, a buy-back scheme Falkirk’s RRTP aims to ensure intentionally homeless households have a and plans to engage PRS landlords in a range of ways to form better personal housing plan and support needs assessment. It sets a target for relationships, thereby widening access to the sector. This includes halving the proportion of those for whom a housing outcome is unknown. setting up an online self-serve portal with all housing options from all Falkirk also has plans to amend its appeals process for those who receive a providers and private landlords operating across the city and beyond. negative decision, to ensure a housing outcome is still being considered for Aberdeen’s RRTP also has a strong focus on meeting the housing needs all homeless people, regardless of status. of disadvantaged or at risk groups, such as people leaving institutions including care, people experiencing domestic abuse and migrants. Falkirk, Aberdeen City, Renfrewshire and Dumfries and Galloway Councils also importantly highlight migrant homeless households without entitlement. This is discussed further in Chapter 5.

East Lothian Council’s RRTP lays out a broad range of routes and approaches for increasing, as well as diversifying, housing supply. There is specific focus on increasing access to, and creating pathways for, statutory homeless people to access different tenures and models of housing, including social, PRS, MMR, shared housing and Housing First. The RRTP Social housing households in their own stock and/or considers service and systemic changes which could free up additional by working in partnership with RSLs supply, such as reviewing allocations and void processes, as well as diverse What was expected of local to increase nominations or Section and innovative methods to finance and acquire additional units, such authorities in the toolkit? Five referrals, where necessary. They as open market purchase, empty homes initiative and a PRS investment RRTP guidance asked authorities to were also asked to consider ways of model. Thought has also been given to accommodation models for refer to the Indigo House analysis optimising/simplifying the rehousing particular groups, including care leavers, veterans and women with when forming plans for social housing, process, in relation to both application complex needs leaving abusive relationships. in particular, authority-level data and allocation, including conversion of on current levels of social housing temporary accommodation to SSTs. allocations to homeless households by local authorities and RSLs, and the Where additional supply still does Highland Council plans to employ three new Rapid Rehousing Officers extent of increase required if social not meet demand, authorities were whose role would be to provide person-centred, but housing-focused, housing were to meet all expected to refer to their Local advice and support to assist applicants to move onto permanent housing demand locally. Housing Strategy (LHS) and Strategic as quickly as possible. These officers are tasked with achieving a reduction Housing Investment Plan (SHIP) to in the average stay in temporary accommodation in Highland of 10%. The They were asked to calculate the increase their supply target. Council also aims to employ a Housing Coach, whose role would be to housing supply required such that any assist applicants interested in other housing tenures to access PRS, MMR, “backlog” of households plus newly shared housing options and owner occupation schemes. arising annual presentations could be Overview rapidly rehoused by the end of year five of the RRTP, with the hope that Local authority lets to statutory lets could then be decreased again. homeless households Over half of stock-holding authorities Authorities were asked to include already allocate at least 50% of current plans to increase the proportion of available lets to statutory homeless social housing allocations to homeless people (excluding transfers),12 the

12 Figures used are from ARC data 2016-17, as reported in the Indigo House market analysis and Heriot Watt’s interim report on temporary accommodation, both 2018 and referenced above. 22 Rapid Rehousing Transition Plans (RRTPs): a Scottish overview Chapter 2. Settled housing: supplyand access 23

highest being Edinburgh (81%), Perth Other RRTPs highlight a tension Table 1. Clackmannanshire Council’s breakdown of lets, and Kinross, and West Lothian (both around striking an effective by household status 75%). At the other end of the spectrum balance between preventing and are East Ayrshire (17%), Shetland (27%) alleviating homelessness in social Category Band Number Note and Renfrewshire (29%). housing allocations. South Ayrshire, Edinburgh and West Lothian register Homeless 2 216 In implementing rapid rehousing, concerns over portraying to local Insecurity 3 85 Applicant has no right to almost all authorities plan to communities that presenting as accommodation and has been increase Council lets to homeless homeless is “the only route to a asked to leave households. Some can comfortably Council house”. The latter highlights do so, as indicated above, because this as a key risk of its approach to let Medical 3 72 Current accommodation is unsuitable they currently allocate fairly low 75% of its stock to statutory homeless because of medical requirement – proportions. Others, such as Dundee households, with requests for local unreasonable to continue to occupy (52%), plan to increase then decrease RSLs to do the same. Overcrowding 3 32 Current accommodation is lets to homeless households once overcrowded – unreasonable to backlogs are cleared, allowing other Clackmannanshire analysed the continue to occupy housing needs groups to feature housing status of all households Syrian VPR scheme 1 8 Direct let to meet housing obligations more prominently. housed by the authority in the past towards refugee families under year for the RRTP process. They resettlement program Some authorities in pressured areas concluded “the circumstances of Direct let 1 7 Approved to promote release of seek to increase lets further, or virtually all households were such that larger accommodation maintain them at already very high they would have been considered levels (such as Edinburgh, West and statutorily homeless, if they had so Throughcare 1 2 Provided under corporate parenting East Lothians, East Dunbartonshire). presented”. The current allocations responsibilities and to avoid young Edinburgh has set a minimum target policy replaced the previous person needing to apply as homeless of 50% and maximum of 70% (which “unresponsive” policy, which effectively Armed Forces 1 1 Allocated in fulfilment of our the Council currently exceeds) for required households to lodge a obligations under the Armed Forces itself and RSLs. West Lothian aims to homelessness application to have any Covenant go further still, aiming for a target of chance of being housed. The authority No need 4 1 Technically no need – however 75% lets to homeless groups for the is therefore reluctant to move back potential overcrowding acting as authority and its RSL partners, in order in this direction. The RRTP provides a a barrier to the family adopting a to achieve rapid rehousing in five years. table, copied overleaf, illustrating second child these tensions. Midlothian, with the highest homelessness pressure and longest The 424 Council allocations made in rehousing timescales in Scotland, 2017/18 break down as follows: is somewhat out of step with other Whilst Clackmannanshire, South at an earlier stage, and offers the authorities in pressured markets, by Ayrshire and Moray all refer to service more proactively. It notes this current proportion of Council lets previous experience of increased has aided prevention work, leading (43%). It does not set a clear target in lets to homeless households to more applications being closed as its RRTP, committing only to a more bringing increases in homelessness “not homeless” and “resolved”, but general allocations review. presentations, Perth and Kinross finds no evidence to support the view takes a different view. This authority that Home First has encouraged more “Perverse incentives” increased lets to statutory homeless households to present as homeless. Some RRTPs, such as East Lothian, people through its “Home First” undertake to increase lets to homeless approach, and did subsequently record Equality impacts on other households without raising concerns, a notable upturn in homelessness housing needs groups whilst others, such as Dundee, view applications. A number of authorities, such increases as a temporary measure as North Lanarkshire, East to address backlog (resembling the In its RRTP, the Council responds Dunbartonshire and Moray, raise the approach taken by Perth and Kinross). head on to the concern that one is potentially inegalitarian impact of the unavoidable consequence of the increasing lets to statutory homeless other. It states presentations have on other groups in EIAs. Moray increased because the options service considers an increase in its (already accepts a homelessness application high, at 65%) proportion of lets to 24 Rapid Rehousing Transition Plans (RRTPs): a Scottish overview Chapter 2. Settled housing: supplyand access 25

impact unacceptably on the “housing Various authorities, such as Eilean of social housing available in different to homeless household profile. In needs of other households prevalent Siar and East Ayrshire, aim to set parts of the authority. The Council general, an acute shortage of one on the Council’s housing list and different letting targets for over- does not plan to reduce choice by bedroom homes, and in many areas, covered by the Equalities Act 2010, subscribed towns, with lower quotas prioritising rapidity. Clackmannanshire four+ bedroom homes for large namely disabled people, old people in other areas. South Lanarkshire takes a similar position. families, pose undeniable challenges. and children (especially overcrowded works with local RSLs to set tailored households)”. It sets a “more modest allocation targets for each of its four In contrast, East Dunbartonshire, a In other areas, a large amount of target”, acknowledging whilst this will (very different) HMAs, which are very pressured area with the lowest sheltered/specialist social housing slow rapid rehousing down, it will strike incorporated in local lettings plans. proportion of social housing stock in skews projections, as whilst this type a more “proportionate and equitable Argyll and Bute, with 23 inhabited Scotland, will move to an expectation of housing turns over frequently it balance between all needs groups […] islands exhibiting both high housing that homeless households queue rarely meets homelessness need. and better promote equality”. pressure and low demand, aims to for housing in all locations unless South Lanarkshire removed sheltered/ carry out analysis of homelessness the household’s safety would be at specialist social housing from all of The limitations of local authority- needs by HMA profiles for its next LHS. risk in an area. This approach was its analysis, which helps provide more level supply and demand figures suggested various times within partner clarity in this area. Indigo House’s 2018 market review feedback sought by the Council when analysed homelessness demand and Authorities using or moving to developing the RRTP. To address issues on size and area, social supply at the level of Scotland’s local lettings plans/targets Orkney, Aberdeen and Aberdeenshire five housing options hubs and its This is not the only step the authority are reviewing allocation policies to 32 individual local authorities. Many Angus, East Ayrshire, Eilean Siar, has taken to address rehousing allow flexibility in property size offered RRTPs suggest the local authority is Fife, Glasgow, Highland, North pressures. Its RRTP also highlights that (generally allowing single people to too large an area through which to Ayrshire, North Lanarkshire, it has a 15% nominations agreement be housed in two-bedroom homes), understand housing demand and Shetland, South Lanarkshire, with an RSL in a neighbouring local though this may generate additional supply, and that this needs to be Stirling, West Lothian authority area, for households affordability and welfare reform issues. supplemented by sub-market analysis. with connections in that part of the authority. This represents a Low proportions of lets to homeless Location, choice and rapidity better option for them than moving Authorities highlighting a households at local authority level in rehousing elsewhere within East Dunbartonshire, shortage of one-bedroom may in some cases reflect variations Resolving these challenges and is reported as a great success for social stock in demand across HMAs. This means exposes a tension between all parties. This approach may not be increasing average proportions of lets choice over housing location, and possible in all areas, depending on Aberdeen, Aberdeenshire, Argyll to homeless people at local authority- rapidity in rehousing. Authorities pressures in the host authority’s area. and Bute, Clackmannanshire, level is no simple solution to rapid respond to this in different ways. Dundee, Eilean Siar, Fife, rehousing. This is raised in RRTPs Highland has the most challenging It is worth noting that Perth and Highland, Inverclyde, Moray, covering large or diverse geographies situation, as the largest local authority Kinross, a mixed urban/rural authority Orkney, Renfrewshire, Shetland, which have areas of lower demand in the UK by land mass, and very reports in its RRTP that by enhancing Stirling social housing alongside cities/towns long rehousing timescales for Inner settled lets and addressing backlog of high housing pressure (for example, Moray Firth area. Its allocations review (from a rehousing timescale of 441 94% of all homeless applicants in seeks to find a balance on what a days in 2015 to 77 days in 2018), the Other changes to local Shetland wish to live in Lerwick, “reasonable” offer of housing is. For Council is now in a much stronger authority allocations and 62% of those in temporary example, whilst it is unreasonable to position to be able to respond more A number of RRTPs record other accommodation in Highland are make an offer of housing in Caithness, flexibly to both fluctuations in demand changes to local authority allocations waiting for housing in Inverness). around 100 miles North of Inverness, and applicant choice.13 which aim to support rapid rehousing. to a household seeking a home in West Lothian’s review will consider North Ayrshire makes clear its Inverness, it may be reasonable, under The impact of social stock the introduction of a “strategic needs” modelling of future lettings scenarios the new procedure, to make an offer size pressures category for households threatened with focused on the number of lets needed, to the same household in Nairn, 15 A heavy focus on increasing the total homelessness, to bolster prevention. but not on size and location of supply. miles away. number of lets not only obscures Highland’s allocations review has The authority has therefore set a key factors of social stock location, but focused heavily on the pointing of action for the Homelessness Task East Renfrewshire, which has shorter also factors of stock type and size. awards for homeless households to Force to assess the extent to which rehousing timescales, concludes that The great majority of RRTPs refer ensure both fairness and alignment rapid rehousing can be achieved at increasing homeless lets within its own to a serious mismatch of stock size with rapid rehousing principles. housing sub-market level, also using stock would undermine choice, forcing local lettings plans. people to live in areas they don’t want to go, due to the unequal proportions 13 This good practice example is highlighted in Chapter 7 of Crisis’ Plan to End Homelessness 2018, https:// www.crisis.org.uk/media/239951/everybody_in_how_to_end_homelessness_in_great_britain_2018.pdf 26 Rapid Rehousing Transition Plans (RRTPs): a Scottish overview Chapter 2. Settled housing: supplyand access 27

Aberdeenshire and East Dunbartonshire the picture is reversed: Midlothian, as Falkirk). In some pressured areas, and Dumfries and Galloway make are keen to explore what could be Shetland and Angus, where RSLs where RSLs already contribute above some mention of this, mainly around termed “vacancy chain” approaches. allocate proportionally more than the 50%, authorities have nevertheless set applicant difficulties using online These aim to make best use of respective Council. actions to agree further increases with systems. Most authorities will monitor stock by facilitating transfers of them (such as East and Midlothian). the impact of CBL on RSLs' ability to existing tenants whilst also housing This disparity received sharp focus in meet homelessness targets. new tenants. East Dunbartonshire the Indigo House market analysis of It’s also worth noting that local underlines “the total number of lets 2018, from which the above figures authority data on the proportion of Aberdeenshire reports that whilst it is more important than a target, as are taken. Local authorities interviewed RSL lets made to statutory homeless aims for partnership working, it will lets to transfer applicants address for the report detailed various people in RRTPs at times does not bear increase Section Five referrals where two housing need requirements, as challenges housing statutory homeless resemblance to that provided in the necessary, if CBL doesn’t produce the always release another let”. Fife also households with RSLs, often described Indigo House study.15 Aberdeenshire’s outcomes required for rapid rehousing. plans to proactively use the Council’s as “risk averse”. This was regarded by RRTP makes the useful point that Shetland reports a pilot scheme to Transfer Incentive Scheme to free up local authorities as playing out through current statistics don’t make it easy nominate applicants who have been larger housing. Moray will also use specific barriers to RSL offers, such to understand the extent or nature of longest in temporary accommodation its allocations review to encourage as strict requirements for “tenancy the RSL contribution, as some RSLs to RSLs, as they often have higher downsizing in Council and RSL stock. readiness”, a first month’s rent up front will contribute far more than others. vulnerabilities and may struggle or former arrears payment plans.14 It is worth bearing in mind that RSL online.18 Other changes to allocations policies sector averages do not provide a full or are also planned in RRTPs, to enable RRTPs tend not to discuss disparities fair picture in the same way that local Simplifying allocations systems quicker rehousing. Falkirk will reduce between Council and RSL lets, authority averages do. A smaller number of RRTPs focus not the number of offers made to statutory even if they record them. Almost only on increasing lets to statutorily homeless households, to decrease the all authorities met RSL partners Barriers to RSL housing homeless people, but also on potential for longer stays in temporary during RRTP development to discuss As above, barriers to accessing RSL improving or simplifying allocations accommodation or sofa-surfing. Whilst and secure their commitment and stock strongly emphasised within the systems. Not all authorities have a this may speed up rehousing, it does contribution to rapid rehousing. A Indigo House review (such as practices Common Housing Register (CHR) so by lessening the extent of trend of positive partnership working of demanding the first month rent up encompassing all or most mainstream applicant choice. between authorities and RSLs, as front, bypassing applicants, former social stock. Where a CHR is in opposed to an ambience of conflict, arrears policies) are not referred to in operation a unified approach to rapid Argyll and Bute, a stock transfer area, therefore permeates most RRTPs, with any RRTP. This includes Glasgow’s, rehousing appears more simple to approaches the question of social few of the challenges expressed in the where the Scottish Housing Regulator take. For instance, Argyll and Bute has housing offers from the opposite Indigo House report repeated. This (SHR) highlighted such practices quite set an action to add oversight of rapid direction, aiming to increase the positivity is equally evident in areas openly in its critical 2018 report.16 It is rehousing to the responsibilities of the proportion of offers accepted. The where RSLs historically contribute possible authorities assess a spirit of CHR steering group, which represents Council has plans to better screen fewer lets, those where lettings partnership around rapid rehousing, all large mainstream landlords locally. applicant areas of choice, offer are more equal, and stock transfer particularly in the form of increased more transparency around what is authorities. lets from all social landlords, will also There is no local authority-based considered a reasonable offer, and bring change to these less statistically CHR in 30% of areas of Scotland,19 issue decoration grants to improve RSL lets to statutory homeless quantifiable practices. though in some of these, one or more take-up of unfurnished homes. In almost all areas, a heightened RSLs is part of a national CHR, such contribution of lets for rapid rehousing The only area relating to RSL practices as HomeHunt or the specialist CHR, The role of RSLs in RRTPs from RSLs has either been agreed, or which does receive attention in a Homes for You. In a quarter of areas, a Proportional contribution to features in the RRTP action plan as minority of RRTPs is concern that CHR encompassing the local authority homelessness allocations between an item for discussion. A new target choice-based letting (CBL), used by (or stock-transfer landlord) and some authorities and RSLs in Scotland varies has been agreed in some areas (from many RSLs,17 might disadvantage some of the main RSLs operates, whilst greatly, with the former letting at 25% upwards, generally around 50%) homeless applicants. Aberdeenshire, other RSLs with sizeable proportions least 10% more stock proportionally whereas in others, a nomination North Lanarkshire, Orkney, Shetland of mainstream stock locally run one for this group than RSL partners or Section Five review is planned.

in 70% of stock-holding authority Where current contribution is low, 15 Perth and Kinross, East Renfrewshire, East Ayrshire, Angus and Midlothian are examples. areas. The disparity is most stark in increases have generally been set at a 16 https://www.scottishhousingregulator.gov.uk/landlord-performance/national-reports/thematic-work/ Edinburgh and South Ayrshire, where modest level, such as South Ayrshire housing-people-who-are-homeless-in-glasgow the gap between authority and RSL and North Lanarkshire (both 25%), 17 Whilst some Scottish local authorities use CBL, notably Edinburgh and Falkirk, it is much more common in the RSL sector. lets is 50%. In three areas of Scotland or not specified in the RRTP (such 18 There is useful discussion on current concerns around CBL and vulnerable applicants, how models can be adapted to ensure benefits are available to all, in CIH England’s recent report: http://www.cih.org/ resources/Rethinking%20allocations.pdf 14 See pages 25-26, 43-46 and 75 of the 2018 report. 19 Eilean Siar is removed from the total, as the only authority area in Scotland with just one social landlord 28 Rapid Rehousing Transition Plans (RRTPs): a Scottish overview Chapter 2. Settled housing: supplyand access 29

or more of their own application Stirling's and Glasgow’s RRTPs A number of authorities have also set First, allowing the tenancy to be made processes alongside. highlight most strongly the challenges actions to improve their lettings and permanent if this is in keeping with for discharging homelessness duties allocations processes and systems to household wishes. Just under 40% of local authorities when common application, allocation maximise efficiency and, in particular, have a CHR which includes all large, and lettings processes are not in place. reduce void times. East Renfrewshire, By far the largest reduction of RSL- local, mainstream social landlords. Stirling, which has no CHR or common Falkirk, Aberdeenshire, Aberdeen, owned temporary properties projected In most areas, therefore, applicants allocations policy, and providers using Stirling and West Lothian commit is in Glasgow, which aims to hand back seeking to maximise housing diverse lettings methods, reports to this. almost two thirds to RSLs. However in options must make multiple housing “allocations policy and practice is this case it is not clear if the household applications. recognised as a major barrier to speed Converting temporary self- would stay put, or the property would of rehousing for homeless people”. contained properties to SSTs be converted once the temporary Its RRTP has an action to work with 80% of stock owning authorities household moved out. Authorities with a CHR RSLs to develop a CHR and harmonise set out plans, some with numbers encompassing all large, allocations. attached and others more general, to New supply mainstream social landlords convert a proportion of local authority Most RRTPs refer to new affordable Glasgow also recognises blockages owned temporary properties to housing supply, though for some this Argyll and Bute, Clackmannanshire, in the Section Five process. Its RRTP permanent SSTs where this fits with takes a much more central role than East Ayrshire, East Dunbartonshire, sets an allocations target for each RSL the applicant’s needs and wishes. for others. In pressured markets, there Edinburgh, Dundee, Fife, Highland, and a weekly Section Five target for is heavy emphasis on the difficulty North Ayrshire, Orkney, Perth and Council staff. It commits to improving Fife, East Lothian and West of achieving rapid rehousing without Kinross, Shetland communication with RSLs and to Dunbartonshire have gone furthest in increased levels of funding from the better understand systemic blockages terms of the proportion of temporary AHSP beyond 2021. Councils in the and inefficiencies, as does West Lothian. properties they wish to convert (500, Lothians and South Lanarkshire have Even where a CHR exists, housing 300 and 100 over 5 years), though only inserted additional lets to statutory need assessments often diverge Some authorities seek to introduce East Lothian appears to be reducing homeless people in their supply targets by landlord. A number of CHRs in CBL to provide a more efficient and overall temporary self-contained and are dependent on unconfirmed, Scotland have a common allocations transparent way of letting Council stock through this approach. Other aspirational levels of grant to achieve policy, or common assessment of homes. Falkirk, which already uses authorities, such as South Lanarkshire, this. In Edinburgh, such funding would need, as well as a CHR. This may be CBL to allocate Council homes, sets Fife, Orkney and Midlothian, intend provide over 400 affordable lets a year, agreed by all CHR partner landlords, an action to provide more detail within to “flip and replace”, i.e. convert the assuming 50% were let to homeless such as in Fife, South Lanarkshire, its CBL adverts to allow applicants to temporary tenancy to permanent households. Argyll and Bute, Dumfries and make more informed choices. East and replace the temporary property Galloway and East Ayrshire, or just Renfrewshire’s RRTP also contains with a different one, generally seeking Various authorities plan to reflect some of the landlords, such as North an action to work with specialist significant RRTP funding to do so. homelessness need in future SHIPs; Lanarkshire. social housing providers using CBL Argyll and Bute refer to this as to maximise access to housing for All stock transfer authorities aim to ensuring the SHIP pays its “homeless Methods for allocating homes (which people requiring age-restricted and/ hand back RSL owned stock used dividend”. RRTPs make particular generally means CBL or points or adapted housing; this is not an issue for temporary accommodation to reference to increasing the proportion on a waiting list), differ again; the picked up within most RRTPs, so is allow the same outcome. Eilean Siar, of one bedroom properties, as in presence of a CHR does not indicate worthy of note Dumfries and Galloway, Scottish Aberdeenshire, Moray and Angus, all landlords use the same method. Borders and Inverclyde have plans larger homes, as in Dundee, and In almost every area of Scotland, to work with RSLs to identify where homes in areas of particular housing applicants (homeless or not) seeking Authorities using CBL to allocate a temporary tenancy is going well, pressure, such as Highland. The to maximise housing options need all homes and allow conversion without the difficulties of ensuring new supply to understand CBL (often through Edinburgh, Falkirk household having to move. meets homelessness need in terms different websites and providers), as of stock size are acutely emphasised well as the potential to be offered a Authorities looking into CBL to Argyll and Bute uses a much lower in Stirling’s RRTP, which provides the home through a waiting list. Areas allocate homes proportion of RSL owned temporary outlook below. with a unified method of allocating East Renfrewshire, Orkney, stock than other stock transfer areas, homes, such as Highland, Dundee Midlothian making much higher use of the PRS. and Perth and Kinross, where all large It therefore has less opportunity mainstream landlords use a waiting list, to consider converting temporary or Edinburgh, where all use CBL, tenancies to SSTs. The Council are rare. does have plans to use RSL owned temporary properties for Housing 30 Rapid Rehousing Transition Plans (RRTPs): a Scottish overview Chapter 2. Settled housing: supplyand access 31

Table 2. Stirling: new build supply compared to homeless demand, Practice examples and ideas worth sharing by stock size

Size of property/ SHIP (Current Homeless household Size mismatch Perth and Kinross Council was the first authority in Scotland to establish household size proile) size profile a CHR (1995), linking applications for housing with the Council and the 1 bed 30% 75% -45% two largest RSLs (who between them own 90% of social stock in the area). Unusually, within a CHR, not only has a common assessment and 2 bed 46% 9% +55% allocation policy been in place since 2010, but allocations are entirely 3 bed 16% 7% +9% administered by Council officers. They assess and point applications as 4 bed+ 7% 5% +2% well as matching voids to applicants (removing the need for Section Five referrals and nominations, which increases efficiency).

This strong partnership approach not only brings together resources for meeting need, but also lends clarity and consistency to the application Stirling is dependent on private and allocation process, lessening complexity for applicants to navigate. developers and Section 75 agreements Perth and Kinross has a loss of contact rate half the Scottish average and for two thirds of its new build the second highest rate of settled outcomes for homeless applicants in the programme. But it faces developer country, after Orkney. Whilst this may be due to many factors, including reluctance to build one bedroom speed of rehousing, it is an instructive example of organisations laying homes, which 75% of its homeless aside individual procedures to provide a simple process which works households require. Its RRTP lists for applicants. actions to address this mismatch, such as making changes to the operation of the Section 75 process and reviewing Council procurement policy towards Whilst Aberdeenshire Council has not increased the target proportion of more direct land ownership. Though lets to statutory homeless people beyond its current level of 50%, it has laid none of these provide rapid solutions, out a number of measures to improve processes by which Council housing the fact they are being put forward is allocated. It recognises its current voids process is wasteful and could be demonstrates the extent to which improved, so intends to complete an end to end review. homelessness need is starting to influence what is developed in future. It has identified that Council stock which is currently void awaiting energy enhancements, and thus not in the system, could be earmarked for Around half of authorities refer to homelessness allocations once upgraded. It is amending its allocations subsided schemes to purchase, or fund policy around size criteria to take a pragmatic approach to stock RSLs to purchase, homes on the open mismatches, and exploring what a “vacancy chain model” might look like. market which meet local housing need Such a model, often associated with new build properties, aims to meet (for instance, four+ bedroom homes housing needs of multiple households. Transferring tenants free up their in Glasgow). This may be a “buyback” own properties, creating further vacancies. scheme aimed as former Council housing, such as in Falkirk, where there is a target to acquire 95 former Council homes annually. East Lothian City of Edinburgh Council met with all RSL partners on its Edindex (the is aiming to identify alternative funding local CHR) Board in the RRTP development process and agreed that both models not dependent on subsidy for the Council and all RSL partners will commit to allocating a minimum this similar work. Some RRTPs include of 50% and a maximum of 70% of stock to statutorily homeless people supply from these housing streams, throughout the term of the RRTP. whilst most do not. East Lothian and South Lanarkshire commit properties projected for purchase on the open market to meeting homelessness need and seek RRTP capital funding for these.20

20 Although the RRTP toolkit asked authorities to discuss necessary new build supply in their RRTPs, capital funding is not covered by the Ending Homelessness Together fund. 32 Rapid Rehousing Transition Plans (RRTPs): a Scottish overview Chapter 2. Settled housing: supplyand access 33

Highland Council and RSL partners have undertaken a review of the Moray Council reviewed its allocation policy in light of HARSAG Highland Housing Register (the local CHR) allocations policy, considering recommendations and the Housing (Scotland) Act 2014. It has aimed ways in which current rules might disadvantage certain groups of to strike a balance between meeting the needs of statutory homeless homeless applicants. households and those who are not homeless, but who are covered by the Equalities Act 2010, namely disabled people, old people and children They have determined that awards of “homeless at home” and “time in (especially those living in overcrowded households). It has identified the temporary accommodation” points means certain statutory homeless potential for the housing needs of these groups to be unfairly impacted by households are likely to be “overtaken” in points by other applicants increases in statutory homeless lets. and wait longer, or indefinitely for an offer. Whilst “time in temporary accommodation” points are intended to reflect the damage which can To address this, the Council will introduce new priority categories for be done by long stays, an unintended consequence could be that use of “underuse of specialist housing” and under-occupying social tenants. These temporary accommodation is incentivised. The new allocation policy aims changes are intended to facilitate increased supply of specialist housing to remove such disadvantages and support rapid rehousing. and increased downsizing which will in turn mitigate any negative effects of increased quotas of homeless allocations on disabled people, older people and families with children.

West Lothian Council modelled four lettings scenarios for social landlords in order to determine what could be achieved under rapid rehousing by altering the proportion of lets to homeless applicants. This is helpful in laying out what could be possible if all social landlords work together. Mid-Market Rent (MMR) as it is unlikely such landlords will seek This clearly shows continuing to allocate the current proportion of lets possession for some of the reasons (59%) will generate a rise in Bed and Breakfast (B&B) use and an increase What was expected of local PRS landlords do (i.e. house sale, in the backlog of households awaiting an offer. It shows that increasing authorities in the toolkit? moving in family member, change lets to 65% will allow this to reduce from current levels, whilst lets at 70% RRTP guidance asked authorities to of use). will facilitate B&B use being eliminated by year three of the RRTP. Letting consider “other housing options” along 75% of stock to homeless households would additionally allow significant with the social and private rented But the current picture of where reductions of all temporary accommodation, elimination of backlog and sectors when thinking about what their MMR is available, who receives it, and achievement of rapid rehousing. annual rehousing target should entail. whether their homelessness status This, along with the statement that is recorded, is not readily obtainable. options for statutory homeless persons It is also impossible to quantify the should be “equal to the housing proportion of statutory homeless South Lanarkshire Council has a CHR, a common needs assessment choices and options available to all people for whom MMR would framework and works with RSLs to set local targets for homeless applicants locally” suggests MMR, as represent an affordable or accessible allocations which are then incorporated into Local Lettings Plans. For the an affordable and subsidised tenure, option, as homeless household RRTP, all CHR partners agreed to set targets for a higher proportion of lets should count as one of the housing income and employment status are to meet needs identified in each lettings area, with a 50-60% target for all options local authorities are supposed not part of HL1 statistics. partners in pressured areas, such as East Kilbride. to be thinking about. The toolkit guidance asked authorities Most usefully, within PCS from RSLs published as appendices to the RRTP, Not mentioned in RRTP guidance, to record data on local private rents it is possible to view the commitments made (for example, some state but our view is... and their correlation with Local clearly they are willing to allocate more than 50% of lets) and activities MMR is not explicitly mentioned in the Housing Allowance (LHA) rates in RSLs are taking responsibility for in respect of communicating with their RRTP toolkit, nor was it by HARSAG. order to inform the extent to which the own staff and reviewing their own policies in light of rapid rehousing MMR is an expanding tenure in many PRS may be affordable for homeless and Housing First. It’s also useful to see in black and white some of the authorities,21 provided as a type of households claiming benefits. But barriers and concerns RSLs foresee (for example, around support and affordable housing by subsidiaries of they were not asked to offer income information-sharing) which could undermine rapid rehousing if not heard social rented landlords or housing or employment data for homeless and understood. trusts, rather than private individuals. applicants. This data is especially As such, it can be said to offer not pertinent for MMR housing, as an only a greater level of affordability to option for working people on lower employed homeless applicants than (though sometimes not the much of the PRS, but also of security, lowest) incomes.

21 See www.gov.scot/publications/rent-affordability-affordable-housing-sector-literature-review 34 Rapid Rehousing Transition Plans (RRTPs): a Scottish overview Chapter 2. Settled housing: supplyand access 35

Understanding the proportion of Highland makes brief reference to Practice examples and ideas worth sharing statutory homeless people in work, MMR, as one of the options a Housing their income levels, local MMR Coach might assist applicants to better availability including new build, and understand and access. However City of Edinburgh Council (CEC) provides the statistic that around a third how this differs by authority, would be Highland does not focus on MMR of its homeless households are in employment. The MMR programme in key in assessing the suitability of MMR more generally. This may seem Edinburgh is also significant in scale, with over 6000 new builds planned in as an additional option to facilitate something of a missed opportunity, the RRTP timeframe, following previous healthy investment in the tenure. rapid rehousing. as it appears to be one of the only This means there will be some level of annual turnover of existing stock. areas of Scotland where the MMR Overview application and allocations process The Council has assessed that MMR should therefore be a key part of A lack of discussion on MMR within is closely linked to the social housing options and advice provided by Housing Officers to applicants, and the toolkit may explain why most one (see box overleaf). has also negotiated with all RSLs with an MMR subsidiary to develop a authorities do not comment on this prioritised pathway for working homeless people. It has also been agreed tenure at all in RRTPs, especially if MMR could have a larger role to play that 50% of lets in the first MMR development from Scottish Futures it provides a very small number of in rapid rehousing in more areas Trust and CEC (“Edinburgh Living”) will be offered by priority to statutory lets annually in their area (or none at of Scotland. This may be worthy of homeless applicants. Between them, these options potentially add over all). Some authorities mention MMR further scrutiny in Glasgow, especially 200 homes a year to Edinburgh’s additional supply target. within the context of new build, but in view of concerns expressed in only five provide statistics on annual its RRTP around PRS affordability, planned supply of intermediate tenures conditions and management. In South through the AHSP. Of those, only in Lanarkshire’s RRTP, no attention is Highland’s CHR facilitates applications not only to all main social housing Edinburgh is MMR the dominant new given to MMR by the Council, though landlords, but also to MMR developed by four RSLs and Highland Housing build tenure (ratio 2:1 MMR:social), with it is mentioned within one of the PCS, Alliance. Priority for MMR housing is determined by housing need, which the opposite ratio in Glasgow, and less from East Kilbride Housing Association. means statutory homeless applicants, who have a high amount of points than 20% everywhere else. This RSL states that it is commissioning on the Highland Housing Register, tend to be considered as a matter research on the tenure as recognises a of course. 91% of authorities don’t reference the limit to social housing meeting all need tenure in relation to meeting the needs in pressured East Kilbride. Whilst homeless applicants still need to meet MMR criteria in terms of of employed homeless households, income and affordability, the single application system ensures that if they or refer to it only fleetingly (such as A further area of enquiry could be the want and qualify for MMR, the urgency of their housing situation increases West Lothian). Edinburgh and East role to be played by rent deposit or their chances of an offer. The unified application also assists applicants to Lothian are the only RRTPs which similar services in assisting employed understand and explore alternative tenures without having to proactively really engage with MMR as a tenure households who struggle with a look into and apply for them on their own initiative. This approach for this group, considering pathways deposit to find out about and access heightens the likelihood that MMR is allocated to those most in need of it, for improving awareness and access. MMR,22 as well as PRS. as long as this is affordable and sustainable for the household. However despite including potential additional PRS and shared housing supply in its additional supply target, East Lothian doesn’t include its anticipated 25% of MMR lets. Private Rented Sector including benefits, coming through (PRS) the homelessness system. The PRS also received a focus in HARSAG recommendations. What was expected of local Specifically, authorities were asked authorities in the toolkit? to make more use of the sector as Unlike MMR, settled housing options an option for rehousing homeless in the PRS were highlighted in RRTP households, by developing a variety guidance. Authorities were asked to of solutions, including rent deposit provide data on local private rents services, social letting agencies, Help in relation to LHA rates, to give an to Rent schemes and conditional 22 A Crisis survey of local authorities and PRS access schemes in 2018 found that though 76% of services impression of the extent to which empty homes grants. agreed that MMR was available in their area, and 62% assessed the tenure offered a potentially affordable option to some of the households referred to their schemes, only 26% offered advice on MMR to the tenure may be affordable for applicants and 19% believed there was an established pathway into MMR locally. Over half did not know households on lower incomes, whether MMR providers would accept a bond instead of a cash deposit. See https://www.crisis.org.uk/ media/240362/prs-access-schemes-the-landscape-in-scotland.pdf 36 Rapid Rehousing Transition Plans (RRTPs): a Scottish overview Chapter 2. Settled housing: supplyand access 37

Not mentioned in RRTP guidance, Current PRS access services below average rents may point to link with the Council’s Private Landlord but our view is... Over a third of RRTPs make generic questionable standards in some areas, Support Officer (PLSO), much in the As above, authorities were not asked to statements about reviewing rent this is best assessed through local way Dundee’s PLSO links in with provide income or employment data deposit schemes and exploring research, rather than assumed. the Council’s rent deposit service, for homeless applicants. This detail has other PRS opportunities, but give no Homefinder. bearing on how feasible the PRS is as detail on their current service (East RRTPs may also benefit from more an affordable option, as well as MMR. Renfrewshire, Eilean Siar, Falkirk, focus on the income and employment The role the PRS should play Stirling, Fife, Inverclyde, Dumfries and status of homeless households. in rapid rehousing in areas Authorities were not expected to Galloway). Others, such as Glasgow, Not all are dependent on benefits, where sufficient social supply exists provide any detail on whether they West Lothian and Argyll and Bute don’t but employment will have different (numerically at least), is a further currently provide or commission a PRS mention that they have a scheme. impacts on PRS affordability tension in RRTPs. North Ayrshire has access service, and if so,23 its features, depending on local rent levels. traditionally made strong use of the outcomes and any challenges. Though many of these authorities Determining what is and what is not PRS for homeless households, but engaged widely with partners in affordable for households in work, and reports welfare reform affecting its In our view, this makes it harder to preparing RRTPs, there is little from when the social/private differential suitability as an option for many of assess whether PRS actions planned the perspective of providers of PRS kicks in, is challenging. However it these today. Locally, it is possible to for the future are based on analysis of scheme services (if commisioned) is key in clarifying the extent of the substantially increase social (both existing service data, new research or of from Council staff (if in-house). A feasibility of the PRS as a reasonable authority and RSL) lets to this group. ideas alone. It also makes it difficult to small number of RRTPs do consider discharge option in each area. The Council has therefore decided to know whether current PRS outcomes the experiences and impact of current “run down” the PRS access service in are linked to access schemes or simply PRS access services. These are East The role the PRS should play terms of staffing, in order to release reflect individuals accessing the PRS and South Ayrshire, which commission in rapid rehousing given funds for other rapid rehousing work. without any Council-based assistance. services, and North Ayrshire, affordability (and, to a lesser extent, Renfrewshire and Perth and Kinross, quality) concerns is a tension in Whilst North Ayrshire’s is the only RRTP RRTPs which provide some detail and which provide services in-house. RRTPs. Statements on concerns over which reports a planned decline for its analysis in this regard, offer, in our affordability in RRTPs often appear PRS access service, as indicated above, view, examples of good practice. LHA and rents alongside actions to increase the other authorities place little focus on The majority of RRTPs, when proportion of homeless households this area. Some of these resemble comparing average private rents discharged to the PRS, with little North Ayrshire in being able to achieve Overview to LHA rates, conclude the PRS is explanation. Somewhat ironically, rapid rehousing (numerically, at least) unaffordable for most homeless authorities in areas of less housing through social stock alone (Glasgow PRS as part of additional supply households. Exceptions to this are pressure often foreclose PRS as is one) whereas others (such as West Two thirds of RRTPs do not include East Ayrshire, Clackmannanshire and an option based on affordability, Lothian) already allocate very high increased PRS outcomes in their future Renfrewshire, where rents and LHA whereas those in areas of lower proportions of social lets to this group. projections, even where they have are more aligned. Some RRTPs also PRS affordability are more likely to The question of whether a tailored planned actions to improve access make reference to local incomes, consider the tenure for additional PRS homeless pathway should exist in to PRS in their areas. For instance, for instance using CACI Paycheck supply. Finding a means of assessing every local authority area is raised but though a rent deposit service has been income data, usually again concluding the feasibility of the PRS for the full not answered by RRTPs. recently commissioned in Edinburgh households on lower incomes cannot range of homeless households locally, for three years, with an annual target afford the sector. and models which can help improve Increased discharge of duty into PRS of 40 properties, these statistics are affordability, would appear to be of The lack of focus on the PRS in not added to the supply total, though It’s our view that, in many areas, benefit to RRTPs. some RRTPs may be explained by aspirational additional supply from new more research may be needed on the the tenure’s longstanding status in build social, MMR and increased RSL amount of PRS property available at For example, despite stating an aim to Scotland as short-term and insecure. allocations are. In relation to the PRS LHA, and its suitability. Average rents increase use of the PRS as a discharge Some RRTPs suggest the PRS has providing solutions for households collected nationally at Broad Rental option, Glasgow’s RRTP quotes Arneil been historically positioned as a who are homeless, this may suggest Market Area (BRMA) level24 don’t Johnston’s 2016 research study,25 which homelessness prevention rather a lack of confidence or a lack of necessarily offer an accurate guide registered concerns over affordability in than alleviation measure, due to consideration, or both. as to whether affordable properties the PRS for lower income households difficulties and complexity associated are available locally, as BRMAs can in the city. The RRTP doesn’t mention with discharging duties to the PRS include large market variations. Whilst that the same study was strongly via Section 32a. Since the advent of supportive of further development of the Private Residential Tenancy (PRT), 23 Ensuring access to a rent deposit, or similar, service is an expectation for every local authority in the existing rent deposit service and/ which gives more security to tenants, statutory guidance. See 2.91. https://www.gov.scot/publications/code-guidance-homelessness/pages/3/ or other PRS access models, such as a some authorities intend to place more 24 RRTPs generally refer to average PRS rents by BRMA collected nationally, as reported at: https://www. gov.scot/publications/private-sector-rent-statistics-2010-2018/ 25 https://www.glasgow.gov.uk/CHttpHandler.ashx?id=36365&p=0 38 Rapid Rehousing Transition Plans (RRTPs): a Scottish overview Chapter 2. Settled housing: supplyand access 39

emphasis on the PRS as a settled and Bute). The use (or re-instatement) on a letting agency role for the PRS, back into use. It is not always clear in destination for homeless households of local PRS landlord forums and the which seems to suggest a similar plans whether actions relate to social into which duties can be discharged. useful links this provides to further approach. landlords acquiring homes for their housing opportunities is mentioned own stock, or providing support (in in around a quarter of RRTPs. In some cases, PRS has no or very the form of advice, grants and loans) Authorities seeking to increase little discussion in the main RRTP and on the condition they are rented discharge of duty into PRS A small number also contain actions simply appears in the Action Plan to households in housing need at Aberdeen, Aberdeenshire, Angus, to raise staff and tenant awareness of (usually in its later years), in a bullet affordable rent levels for a set period Argyll and Bute, Dumfries and the new private tenancy regime and pointed list of “rent deposit services, of time. In some cases, both actions Galloway, East Dunbartonshire, tribunal system. East Dunbartonshire social letting agencies, Help to Rent may be on the table. East Lothian, Perth and Kinross, and Highland set out plans to schemes”. This list seems to have been South Lanarkshire develop more structured support for simply “lifted” from the toolkit. In other Perth and Kinross has, for some years, households entering the PRS. RRTPs, more thought appears to have had an active link between the empty been given to PRS access, for which homes service and the PRS initiatives Ways of enhancing PRS access an SLA is one route the authority is team (see box overleaf). East Ayrshire Roughly two thirds of RRTPs give Authorities setting up a new PRS exploring, such as East Ayrshire. South has had a successful Empty Homes consideration to developing the PRS access service Ayrshire is the only authority to submit service (37 properties brought back to as a positive rehousing option. A Angus, Edinburgh, Midlothian, a fully-developed proposal for an SLA use since appointment of an Empty number of authorities with no current South Ayrshire, Stirling, West in its RRTP. Homes Officer in 2017), but its RRTP PRS access service have proposals to Dunbartonshire sets plans to make more targeted links implement one, whilst the majority of between this work and expanding PRS those with some sort of PRS access Authorities enhancing or Authorities exploring a Social options for homeless households in service at present have plans to diversifying existing PRS access Lettings Agency (SLA) Kilmarnock. This is simultaneously a enhance it. Many PRS access schemes services Aberdeenshire, Dumfries and town with a high homeless demand currently have no dedicated member Aberdeen, Aberdeenshire, Galloway, East Ayrshire, North and the largest number of empty of staff.26 This is recognised as a Dumfries and Galloway, Ayrshire, North Lanarkshire, properties in the authority. barrier to creating and maintaining Dundee, East Ayrshire, East Orkney, Scottish Borders, South relationships with landlords and letting Dunbartonshire, East Lothian, Ayrshire, South Lanarkshire, Stirling agencies; a quarter of RRTPs set plans Falkirk, Fife, Highland, North Authorities linking empty homes to recruit a dedicated staff member for Lanarkshire, Orkney, Perth and work to PRS access this purpose. Kinross, Renfrewshire, Scottish Midlothian’s RRTP mentions ongoing Aberdeen, Angus, Dumfries and Borders, South Lanarkshire work with the Scottish Government, Galloway, East Ayrshire, Perth RRTPs contain a range of other Cyrenians and the National and Kinross, Stirling ideas for increasing access to the Authorities focusing on Homelessness Property Fund to PRS, such as offering cash deposits improving relationships with purchase open market homes to where bonds aren’t accepted PRS landlords rent to people who are homeless (Highland), a “recyclable fund” for Aberdeen, Aberdeenshire, at LHA rates, with tenancy support deposits (Midlothian), rent in advance Dumfries and Galloway, Dundee, from Cyrenians. This is an interesting payments (Aberdeenshire) and using East Lothian, Edinburgh, Fife, approach, though it is not clear in tenant insurance to improve access Highland, Orkney, Renfrewshire, the RRTP whether accommodation (Highland). Scottish Borders, South would be offered as a PRT, or a form Lanarkshire, West Dunbartonshire of temporary accommodation. Some of those place an emphasis on building up partnerships with landlords PRS access and empty homes and lettings agencies through Social Lettings Agencies (SLA) A third of RRTPs link empty homes different methods to improve trust There is only one Council-run SLA work to rapid rehousing. In some, this and engagement, such as landlord in Scotland at present, in Perth and takes the form of an action to target education (East Lothian), online Kinross. Within RRTPs, almost a third of empty homes locally which could advertising platforms (Aberdeen; authorities mention the potential role meet homelessness need, if brought Angus - suggests using CBL for this of an SLA in their area. Orkney does purpose); and increased preventative not use the term “SLA” but discusses work (Edinburgh; Midlothian; Argyll the possibility of its one RSL taking

26 See results of 2018 survey in https://www.crisis.org.uk/media/240362/prs-access-schemes-the- landscape-in-scotland.pdf 40 Rapid Rehousing Transition Plans (RRTPs): a Scottish overview Chapter 2. Settled housing: supplyand access 41

Practice examples and ideas worth sharing Aberdeen City Council sees an opportunity in a declining local PRS market which is becoming more affordable. The Council already helps households South Ayrshire Council’s RRTP sets out an innovative proposal to launch into the PRS by providing cash deposits and/or rent in advance from their a Council-run SLA, and seeks RRTP funding for start-up costs. The RRTP Homelessness Prevention Fund, but would like to move to a bond scheme recognises the Council could make better use of the PRS as settled which is more cost effective. accommodation in light of the new tenancy regime, the fairly large PRS locally and the potential the sector has to broaden housing options (for Their plans to engage further with PRS landlords are based on a wide instance, there is PRS stock in areas of low social housing). However, landlord and tenant education programme to raise standards and skills in following consultation with staff and service users, the Council recognises the sector, with the possibility of greater access to some Council facilities concerns over quality of PRS property management, affordability and as an incentive for landlords assisting in the rehousing of homeless access to support. households. To embed this work as an integral part of housing options, landlord registration and PSL teams will be co-located and integrated with The Council has noted broad satisfaction from tenants and landlords with allocations, housing options and homelessness. The Council also plans to the Private Sector Leasing (PSL) service, and aims to use PSL landlords as a launch an online self-serve portal with housing options from all providers starting point for the SLA, keeping what’s positive about the service (such and private landlords operating across the City, and potentially beyond. as guaranteed rent and property management) but moving away from its status as temporary accommodation. They have consulted with PSL The Council is also funding 50% of an Empty Homes Officer (match funded landlords and received favourable responses. The SLA aims to attract mixed by the Scottish Empty Homes Partnership) alongside £50,000 “test of portfolios and tenant groups, allowing flexible rent top-ups for those on change” empty homes loan fund which has a specific remit to bring empty benefits, with an aim to become self-sufficient within five years. The SLA properties back into use, targeted towards properties (in relation to size, has been fully costed and the Council has included targets for the new type and area) which could address unmet housing needs on the Council’s service within its expected PRS outcomes for next five years. waiting list.

Perth and Kinross Council describes its private sector access initiatives, Scottish Borders Council acknowledge that the role of the PRS is which include its SLA, PKC Lets, as key to the success of its successful important in providing additional options to households in a rural area. rapid rehousing programme, Home First. The Council is keen to enhance The RRTP notes a lack of dedicated PRS resource is a barrier to developing the role played by the PRS as a settled outcome for some homeless relationships with landlords. They aim to widen access criteria for their rent households in future, including discharging duties which it did not do under deposit scheme; explore ways in which the Council can support and offer the previous tenancy regime. services to PRS landlords; consider a PRS landlord and tenant matching service; develop a communications plan for improving awareness of the PKC Lets manages 130 properties, with the Council running a rent deposit new tenancy regime for PRS landlords, tenants and a full range of frontline service alongside. Landlords can use both services or just the rent deposit staff, including promotion of Mortgage to Rent schemes; link the Empty service. Last year, 180 households were housed through these two Homes scheme more clearly with the rent deposit service; and consider services, with 10% of homes coming through the linked Empty Homes the feasibility of an SLA. Initiative. 18 grants were allocated to owners of empty properties on the condition they were subsequently rented out through the Council’s bond scheme, for a period of at least five years. The Empty Homes Initiative is funded internally from the Council Tax levy on second homes.

The Council is clear that this level of service requires adequate staffing capacity, especially in a harsher climate under welfare reform in relation to enhanced prevention work, and seeks continuation funding for this through the RRTP. 42 Rapid Rehousing Transition Plans (RRTPs): a Scottish overview Chapter 2. Settled housing: supplyand access 43

Owner occupation share housing for a number of years East Ayrshire Council includes information on the nature and performance if shown that the ability to save could of its rent deposit service (“DIGS”), and also includes additional PRS housing What was expected of local allow them to access a first-time buyer supply achieved through DIGS as part of its overall supply totals. East authorities in the toolkit? scheme in future, which might be Ayrshire has a relatively large social housing sector and could achieve rapid RRTP guidance asked authorities to more affordable to them than long- rehousing within social stock more easily than many other authorities, consider “other housing options” along term renting. however it recognises that the PRS can also provide a valuable alternative with the social and private rented housing option for some households. sectors when thinking about what Overview their annual rehousing target should Highland is the only RRTP which DIGS has been run by the Community Housing Advocacy Project (CHAP) entail. This, along with the statement mentions pathways for homeless for 15 years, offering online benefits and housing costs checks, help with that options for statutory homeless people into owner occupation, when utility and other bills, income maximisation and budgeting skills; mediation; persons should be “equal to the discussing a future Housing Coach signposting and referral to other agencies. Also, unusually in Scotland, as housing choices and options available role. This role will assist applicants to most PRS access services note a decline in settled tenancy outcomes,27 to all applicants locally” suggest home understand, navigate and pursue to CHAP housed more households last year than ever before. ownership options, as the majority access to the whole range of housing tenure in Scotland, could have a role to options, which includes “Low Cost The Council includes plans in the RRTP to review scheme criteria in order play, albeit a smaller role than rented Home Ownership (LCHO), through to increase access, as has noted that a high number of applicants are options in view of the likely higher access to Help to Buy ISAs or the refused a service due to unsatisfactory references from previous landlords. barriers many homeless households Scottish Government’s shared equity By year two, the Council wishes to complete a feasibility study for an SLA may face in accessing mortgage scheme etc”. and implement this the year after, if feasible. finance. North Ayrshire refers more generally Not mentioned in RRTP guidance, to its affordable housing model but our view is... “HOME” (Home Ownership Made Easy) East Dunbartonshire Council has a number of actions planned around Ownership options are not mentioned and Orkney to LCHO new build, but PRS access, given its extremely limited social housing supply and very in the RRTP toolkit, nor was this without specific reference to homeless long rehousing timescales. The Council already employs a member of a theme considered by HARSAG. housing options. staff focused on PRS access and has a proposal in its RRTP for funding However Scottish Government for an additional officer to provide a “Housing Plus” approach. This role Housing Options Guidance (2016) is The fact owner occupation is not will provide more support around tenancy sustainment for this sector clear that housing options services mentioned in any other RRTP doesn’t particularly. The current rent deposit service already offers assistance with and advice should not be constrained mean it is not discussed by housing first month’s rent. by tenure. Whilst the finances of options services, such as in this guide28 many homeless households limit their from East Renfrewshire. The Council aims to create a pathway into the PRS for young people which options, for others, options may only enhances affordability of the sector. Young people over 25 subject to the be limited by their knowledge of what Though owning a property isn’t Shared Accommodation Rate (SAR) who need temporary accommodation is available and accessible to them. discussed as a destination for will be prioritised for the Council’s “First Stop” supported accommodation. homeless households in RRTPs, After three months young people will qualify for the SAR exemption, There are a range of routes to home Angus, Argyll and Bute, Scottish widening their options in the PRS. Young people interested in this sector ownership in Scotland, some financed Borders, Highland, Falkirk, North will be interviewed/reviewed every four weeks by a dedicated officer and through the AHSP, which are not Lanarkshire and East Lothian mention supported through the “Housing Plus” service. necessarily perennially out of reach for owner occupation when discussing every homeless household. Ensuring prevention activities. Some of those East Dunbartonshire is also exploring ways to assist households who wish households are aware of how to authorities have noted increased to move out of the area, by establishing partnerships with letting agencies access ownership and what they presentations from owners in in neighbouring towns. This mirrors the partnership the Council already has would need to be able to do so should mortgage difficulties and reference with an RSL in West Dunbartonshire for households content to move just therefore be a key part of a housing mortgage advice provided by staff over the authority’s boundary. options service. and referrals to Mortgage-to-Rent schemes. This may also entail showing households different pathways for their future, allowing them to make informed choices. For example, a young person in work may choose to

27 See results of 2018 survey in https://www.crisis.org.uk/media/240362/prs-access-schemes-the- landscape-in-scotland.pdf 28 https://www.eastrenfrewshire.gov.uk/CHttpHandler.ashx?id=14258&p=0 44 Rapid Rehousing Transition Plans (RRTPs): a Scottish overview Chapter 2. Settled housing: supplyand access 45

Shared housing options some emphasis on developing commissioned partner, but does set Temporary shared options shared housing options. But apart actions to develop the scheme with Two authorities which don’t mention What was expected of local from Edinburgh, Aberdeen is the only the aims of providing benefits to those shared housing as a settled option, authorities in the toolkit? other city RRTP which mentions it. at risk of social isolation, exclusion or Aberdeenshire and Highland, have The RRTP toolkit expected authorities It is interesting that neither Glasgow exploitation whilst identifying more made extensive use of shared to consider “other housing options” nor Stirling, both of which have innovative ways to address mismatches dispersed temporary accommodation. along with social and private rented long rehousing timescales, complex in supply and demand. Both highlight just how successful housing, when thinking about what homelessness systems and cultures this has been in the RRTP and have their annual rehousing target should of shared housing, have considered Three Lothian authorities request RRTP plans to expand it, though not into entail. This, along with the statement this as an additional option, given funding for a feasibility study on shared the settled accommodation arena. that options for statutory homeless the potential affordability and temporary and permanent options, Temporary shared options are persons should be “equal to the companionship benefits shared with particular focus on approaches to discussed further in the next chapter. housing choices and options available housing could offer a diverse matching, sustainability and resources to all applicants locally” suggest shared applicant base. (Edinburgh), dedicated staff to take It is possible that Glasgow, housing, as an affordable and routine forward a shared multi-tenure project along with other authorities with form of housing in many areas of The remaining seven authorities with (Midlothian), or both (East Lothian). sufficient social stock (in numbers, Scotland (especially cities), could have plans, at the very least, to explore the The latter two Councils have included at least) to be able to achieve rapid a role to play. potential for sharing options, are in a shared housing outcomes in their rehousing, sees no reason to consider range of geographies and markets as supply targets for the next five years. shared tenancies. As with the PRS, Shared housing is only mentioned in diverse as Scottish Borders, Angus and sharing as an option can be perceived the RRTP toolkit in relation to specialist Renfrewshire. The question of tenure is not as hard to manage, unpopular and supported housing for those unable to specifically discussed in these RRTPs, “second best”. As such it is not a live independently in the community, though the legal context for sharing housing option which garners support as opposed to settled housing for Authorities with plans to does vary by tenure. Individual PRTs in all quarters. Whether shared models people with lower support needs, explore, or which already offer, within a shared house are possible with of settled housing should form part or none. shared housing options MMR and the PRS, whilst a joint SST is of the options offered to homeless Aberdeen, Angus, East Lothian, currently the only route to implement households is therefore another Unlike MMR housing however, shared East Renfrewshire, Edinburgh, sharing within social rented housing.29 question raised, but not resolved, mainstream housing was considered Fife, North Lanarkshire, Renfrewshire has successfully made by RRTPs. by HARSAG, which recommended Midlothian, Renfrewshire, use of the joint tenancy option that the tenancy and Council Tax Scottish Borders through its shared housing pilot for arrangements for shared tenancies young people (see example overleaf). should be clarified, so that shared housing options could be used as Permanent shared options settled mainstream accommodation Ten authorities have plans for exploring in Scotland within the social rented or expanding schemes for mainstream Practice examples and ideas worth sharing sector, as well as the PRS. shared housing within their RRTPs. North Lanarkshire, East Renfrewshire, Overview Scottish Borders and Aberdeen simply East Lothian Council has developed an innovative shared housing scheme, Given the lack of discussion on sharing include a sharing project as an option Home and Belonging, for care-experienced young people using the in the RRTP toolkit, it is possibly to explore, whilst Angus wants to supportive peer flatmate model successfully deployed by Rock Trust in unsurprising that sharing as a settled examine the need and demand for Edinburgh for over 20 years. They have partnered with Queen Margaret accommodation option is not referred a sharing project to assist owners University to source student flatmates in the role of a live-in mentor, who to in over two thirds of RRTPs. It renting a room (also mentioned in receives free accommodation in return for their support to the flatmates. might be expected that authorities Orkney’s homelessness prevention The Council has already received some funding for this project, which considering shared housing are more guide). Angus is also trialling shared is also supported by Who Cares? Scotland, in order to purchase three- likely to be located in pressured temporary properties, and will shortly bedroomed homes. The Rock Trust will provide support for the project. housing markets, in which there is be evaluating this project. more impetus to consider a full range of housing options, and/or in cities, Fife and Renfrewshire already have given a greater existing sharing culture. house-sharing schemes for young people. Their RRTPs make clear that This holds true to an extent for both authorities aim to enhance these pressured markets, with three of schemes. Fife gives little detail on its the four Lothian authorities placing shared tenancy service, provided by a 29 One of HARSAG’s recommendations on promoting the widest range of move-on options included clarifying tenancy and Council Tax arrangements for sharing in the social sector. 46 Rapid Rehousing Transition Plans (RRTPs): a Scottish overview Chapter 2. Settled housing: supplyand access 47

on whether or how far the concept of operational since 2013); East Renfrewshire Council has been piloting an in-house social housing sharing “tenancy readiness” pertains in their Dunbartonshire (Big Lottery and local programme for 16-24 year olds since 2017. The Council assesses that areas, though some do so. authority funded, from 2013); South sharing offers young people more choice, more affordability, easier access Lanarkshire (two commissioned to work and alleviation from feelings of isolation. In addition, it is a practical Not all authorities have a high stock projects, with Shelter providing means of addressing the severe lack of one bedroom homes. of supported accommodation or long Housing First for families and YPeople stays in temporary accommodation, Housing First for single people, from So far, six pairs of young people have moved into two-bedroom Council suggesting that in some areas, 2016), Aberdeenshire (local authority stock, with structured support whereby a mediator works proactively with households with complex needs run rural Housing First, now also a each pair to produce a house-sharing agreement. There is a named contact are being housed but possibly not Pathfinder area, from 2018), West should relationships fray. The Council has also designed a house-sharing App sustaining, instead of being “held” in Lothian (RSL/Rock Trust Housing for individuals interested in sharing who don’t have a flatmate. Renfrewshire the homelessness system. First for youth, from 2017), and North is keen to expand this project, in partnership with a third sector agency. Ayrshire (in-house pilot focused on In our view, this detail is useful to repeat offenders, from 2016). see in the RRTPs which provided it, as it has not been established how prevalent the “tenancy readiness” Authorities with Housing First concept is across Scotland (as services, pre-RRTP Housing First option. The last group was people with opposed to an absence or insufficiency Aberdeen, Aberdeenshire, needs so complex that “independent of flexible, personalised support Dundee, East Dunbartonshire, What was expected of local living within the community is not services which enable more complex Edinburgh, Glasgow, North authorities in the toolkit? possible or preferable for whatever households to sustain tenancies). Ayrshire, Renfrewshire, South RRTP guidance is clear that Housing reason (safety, risk to self or others, Lanarkshire, Stirling, West Lothian First should be the first and “default” choice), and for whom shared, housing option for homeless supported accommodation is the Overview households with multiple and complex preferred housing option”. Quantifying support needs needs who traditionally “may not Existing Housing First provision RRTPs suggest that authorities consider (or be considered for) Authorities were advised in the toolkit in Scotland assessed support needs using different mainstream housing as an option”. that Housing First tenancy sustainment All authorities include plans for methods and to different levels of Authorities were asked to note any outcomes at the two-year mark were exploration, implementation or rigour. Over a third do not say which current Housing First projects and around 80-90%, but also that it was expansion of Housing First within data they used. Some authorities, such their capacity in RRTPs, and to make generally not possible to know in their RRTPs. Eleven had Housing First as Renfrewshire, North Lanarkshire and plans for how they would mainstream/ advance who would make up the 10- projects underway in their areas at South Ayrshire, triangulated data from upscale such options, or how they 20% for whom Housing First may fail. time of RRTP submission, with South various sources including Health and would implement Housing First, if this This leads to the statement that the Ayrshire about to start a pilot shortly Homelessness research and data sets did not already exist in the area. “best approach is Housing First, first, after the RRTP was published. Four from hostel and support providers. for people with multiple needs”. of five cities with Housing First had Others, such as Stirling, used the Hard In order to plan provision, authorities only recently started to implement Edges methodology, complementing were asked to assess and quantify the This clearly encourages authorities it through Scotland’s Housing First this with input from frontline staff. level of support needs of the current to err on the side of placing more Pathfinder.30 Glasgow has a much Glasgow referred to HL1, local research (and future) homeless cohort and households in the complex needs than more established relationship with on SMD and survey returns on the display this in the format of number the specialist accommodation group, Housing First. Turning Point pioneered Glasgow housing options model. of households within each of four giving everyone a chance of their own its use there from 2010. This was categories, the first two of which tenancy unless they opt against this, complemented by Homes for Good/ West Lothian completed a thorough were low/no support needs and “even after strong encouragement”. Glasgow City Mission’s Housing First analysis of all live homeless cases medium needs which could be met in the PRS project from 2016, and the along with their corresponding by mainstream support services in Not mentioned in RRTP Pathfinder from 2018.31 accommodation situation, which the community. guidance, but our view is... is especially useful. East Lothian Authorities were not asked to describe There are established Housing and Perth and Kinross focused The third group were people with how households with complex needs First projects in Renfrewshire (local on households in temporary complex needs, also described as are currently dealt with by their authority commissioned service, accommodation, alongside HL1 data. people with Severe and Multiple homelessness services or where the Disadvantage (SMD), for whom cohort they think will benefit from 30 The Pathfinder is a three year programme, funded by Social Bite (£3million), Scottish Government Housing First, with its intensive wrap Housing First tends to reside currently. (£6.5million) and Merchant’s House Glasgow (£200,000) around support, would be the best They were also not asked to comment 31 Despite distinct origins, the latter two share stock pledges and discussions are underway to merge the projects. Chart 3

60% 26% 11% 3%

Low/no Medium/high Complex (Housing First) Specialist

48 Rapid Rehousing Transition Plans (RRTPs): a Scottish overview Chapter 2. Settled housing: supplyand access 49

East Ayrshire assumed all households of how authorities assess and Chart Chart4. Distribution 4 of support needs across RRTPs from 29 authorities33 not in temporary accommodation, record vulnerability. unless under Multiagency Public Aberdeenshire Protection Arrangements (MAPPA), Distribution of support needs North Lanarkshire Specialist had no or low needs, and case by authority West Lothian reviewed all other households. It was possible to find complete figures East Renfrewshire East Lothian Inverclyde and West Dunbartonshire on support needs distribution for 26 Dundee had recently completed modelling authorities, with five more providing Midlothian Complex (Housing First) on future temporary accommodation statistics for just one or two of the Fife 32 South Lanarkshire requirements, so had a good grasp of four groups. The general pattern, as Edinburgh the support needs of households. expected, is the majority of homeless Dumfries & Galloway Medium/high households in Scotland have no or low Glasgow Perth & Kinross Various RRTPs observe that this support needs. Orkney exercise often turned up levels Inverclyde Low/no of support needs which do not However, the red section in Chart 4, Scottish Borders Eilean Siar necessarily correlate with HL statistics. overleaf, shows the extent of variation South Ayrshire A number of authorities, including East across the country. This group ranges East Dunbartonshire Dunbartonshire, Edinburgh and Fife from 35% to 88% (average: 60%) Aberdeen West Dunbartonshire also imply that difficulties experienced Medium needs is less consistent, from Highland completing this exercise has caused 8% to 45% (average: 26%) possibly Angus them to identify areas for future suggestive of a lack of clarity as to Argyll & Bute Moray service improvements. whom the category refers. But all North Ayrshire authorities bar one (Renfrewshire) East Ayrshire For example, East Dunbartonshire assess this group as smaller than the Stirling Renfrewshire resolves to record the level as well as first group, and all but Inverclyde the type of support need in future, assess this group as larger than the 0% 10% 20% 30% 40% 50% 60% 70% 80% 90% 100% whilst Fife spots an “intelligence gap” Housing First cohort. it aims to address urgently. Whilst the Council has “a wealth of evidence The “complex” cohort ranges from Low/no Complex (Housing First) to underpin the nature, profile and 2% to 28% (average: 11%), again Medium/high Specialist scope of homelessness […] this level showing diversity in need but likely of understanding does not extend also in assessment approach. In every to the support needs of households authority apart Renfrewshire there are experiencing homelessness”. This is more people in this group than in the Comparison with SMD and SIMD We also compared the RRTP support likely to be the case in other areas, and specialist supported accommodation Applying the proportion of “complex” needs data to authority-level statistics Charta useful 3 illustration of the way in which group, which range from 0% to 20% cases in each authority to their current from the Scottish Index of Multiple rapid rehousing may shift the focus (average: 3%). open homeless caseloads produces Deprivation (SIMD), to test any a figure of around 1500 individuals correlation between these two data across Scotland. This indicates the sets. The yellow block in the chart Chart 3. Distribution of support needs of homeless households: number of Housing First tenancies overleaf records the % of households Scotland averages required to meet needs of people in each authority within the 20% most who are currently homeless and who deprived communities in Scotland, have a live homelessness application against the proportion of homeless 60% 26% 11% 3% with their local authority. This is households with complex needs (grey) extremely crude, and only includes 26 and residential care needs (teal). or 32 authorities.34 But it is useful to It suggests no clear correlation. compare this to the Scottish Housing First target of 5,000 households per “Tenancy ready” culture year, 35 formulated from data gathered As a key area for change identified by Herriot Watt University on SMD by the HARSAG, it is interesting that in Scotland. the concept or practice of “tenancy Low/no Medium/high Complex (Housing First) Specialist

33 Falkirk, Clackmannanshire and Shetland are not included. 32 Argyll and Bute, Moray, Falkirk, Clackmannanshire and Edinburgh. In the former case, a different 34 As above, we could not find a % for the complex group in 4 RRTPs, or a figure for live cases in 2 RRTPs. classification system was used. In the latter case, being unable to quantify medium, complex and 35 The SMD figure reflects the number of people experiencing homelessness, substance use and offending residential groups was attributed to poor recording by staff. No figures could be found for Shetland. in any one year. This data, presented by local authority, is provided in Appendix I of the RRTP toolkit.

Chart 4

Aberdeenshire North Lanarkshire Specialist West Lothian East Renfrewshire East Lothian Dundee Midlothian Complex (Housing First) Fife South Lanarkshire Edinburgh Dumfries & Galloway Medium/high Glasgow Perth & Kinross Orkney Inverclyde Low/no Scottish Borders Eilean Siar South Ayrshire East Dunbartonshire Aberdeen West Dunbartonshire Highland Angus Argyll & Bute Moray North Ayrshire East Ayrshire Stirling Renfrewshire 0% 10% 20% 30% 40% 50% 60% 70% 80% 90% 100%

Low/no Complex (Housing First) Medium/high Specialist 50 Rapid Rehousing Transition Plans (RRTPs): a Scottish overview Chapter 2. Settled housing: supplyand access 51 Chart 5

Chart 5. Comparison between complex support needs in RRTPs and areas in SIMD Five referral, as outlined in the SHR’s beneficial, but are clear this doesn’t 2018 report,36 is a fairly recent example stop individuals being housed in their of systemic tenancy readiness culture. current system, albeit not always 45% sustainably. 40% West Dunbartonshire highlights that some accommodation options are Argyll and Bute interestingly reports 35% used for households with complex that, some years ago, the Council needs assessed as “not tenancy ready”, adopted a principle that “with the 30% and set out plans to remodel these right level of support the vast majority 25% options. North Ayrshire provides data of people can sustain a mainstream on the proportion of hostel residents tenancy”, making a simultaneous 20% assessed as “not tenancy ready”, effort to avoid tenancy readiness alongside compelling evidence of why terminology. The RRTP underlines that Percentages 15% some hostel provision is not improving this hasn’t always been successful, as 10% this. Inverclyde acknowledges that the extent and complexity of tenants’ rejection of tenancy ready practice will support needs (often outwith the 5% be challenging, given high levels of “housing” domain) are not always well support needs and repeated tenancy addressed by current support providers 0% breakdown of a high proportion of and/or current partnership working Fife their formerly homeless customers.37 between agencies. Falkirk Angus Dundee Stirling Orkney Glasgow Aberdeen Inverclyde Highland Midlothian Eilean Siar RenfrewshireEast Ayrshire SCOTLAND West Lothian East Lothian North Ayrshire, Stirling and Glasgow Their future focus will therefore be North Ayrshire South Ayrshire Perth & Kinross Aberdeenshire Scottish Borders North LanarkshireSouth Lanarkshire East Renfrewshire set out plans to introduce equality in more on ensuring ensure support West Dunbartonshire Dumfries & Galloway East Dunbartonshire rehousing timescales for households provision, in the widest sense, is of all support need groups, showing enabling of tenancy sustainment, Complex (Housing First) Specialist Areas in SIMD 20% most deprived each Council committing to move and less on challenging tenancy away from a system that sets tenancy readiness culture. East Kilbride Housing readiness as a prerequisite for Association articulates this dual focus obtaining settled housing. within its PCS appended to South readiness” is not mentioned at all in Again, very roughly, this group tend Lanarkshire’s RRTP. The Association is Chart 6 44% of RRTPs; very crudely, many of to be found in more rural areas. keen to reframe the question around these fall within the East of Scotland RRTPs owning tenancy “the concept of tenancy sustainment or islands. readiness culture in their areas and what support can make that 80% RRTPs with a fleeting mention Glasgow, Inverclyde, North happen”. Our broad reading of of tenancy readiness culture Ayrshire, Stirling, West Lothian, RRTPs suggests that an emphasis on 70% RRTPs which don’t mention Aberdeenshire, Angus, West Dunbartonshire reconfiguring support services may 60% tenancy readiness culture Dumfries and Galloway, East be more relevant in some areas than Aberdeen, Dundee, East Ayrshire, Dunbartonshire, Eilean Siar, outlawing tenancy readiness. 50% East Lothian, Edinburgh, Falkirk, Highland, North Lanarkshire, Three authorities, in contrast, 40% Fife, Midlothian, Moray, Orkney, Renfrewshire, Scottish Borders specifically state that they do 30% Perth and Kinross, Shetland, not recognise tenancy readiness RRTPs which refute tenancy South Lanarkshire, South Ayrshire culture as operating in their readiness culture in their areas 20% Only six authorities appear to “own” areas. East Renfrewshire and Argyll and Bute, 10% the use of tenancy readiness practice Clackmannanshire, neither which have Clackmannanshire, East 28% of RRTPs contain a general within their current homelessness extensive supported or congregate Renfrewshire Percentage reduction 0% statement, often appearing as a line systems. This small group tends to accommodation, suggest complexity -10% within the Action Plan, around “the cluster in areas of multiple deprivation of need does not prevent rehousing, -20% need to shift away from the language in and around greater Glasgow. the latter stating “there are no tenancy Identifying the Housing First and culture of tenancy readiness”. Though not mentioned in Glasgow’s readiness barriers or tests operated by “cohort”

ThatAngus it is includedMoray at all suggests, to RRTP,Falkirk the practice of requiring any social landlord within the area”. Some authorities are further on than Stirling Dundee Glasgow some extent, authorities recognise households Midlothianto have a resettlementInverclydeEdinburgh Both acknowledge that reframing others in identifying who would SCOTLAND West Lothian East Lothian Argyll & Bute Renfrewshire East Ayrshire the existence of suchNorth SouthAyrshire a culture Ayrshire in their plan agreed by their case officer before how support is delivered would be benefit from Housing First, and Scottish Borders Perth & Kinross areas, though it is not dwelled upon. Norththey Lanarkshire can be putSouth forward Lanarkshire for a Section Dumfries & Galloway West Dunbartonshire 36 See https://www.scottishhousingregulator.gov.uk/publications/housing-people-who-are-homeless- glasgow (SHR report on Glasgow City Council’s homelessness service 2018) 37 At 13.3%, repeat homelessness rate in Inverclyde was the highest in Scotland. 52 Rapid Rehousing Transition Plans (RRTPs): a Scottish overview Chapter 2. Settled housing: supplyand access 53

where those people are in (or out of) Lanarkshire also aims to explore use Housing First service inception their current system. Some suggest Authorities with Housing First of PRS for Housing First. In terms of and scale they provide Housing First in “all but for Youth tenancy type, South Lanarkshire’s two Many authorities without current name”, or have pilots which are very West Lothian, Edinburgh distinct services for families and single Housing First provision set out plans close to the model. For instance, households differ from most by using to introduce this within the first year of Moray suggests its scatter properties Authorities with plans to short SSTs or Occupancy Agreements, their RRTP. This is the case for Scottish initiative for care leavers “with some introduce Housing First for Youth with a commitment to review at six Borders, Fife, West Dunbartonshire, minor changes, is nearly identical to Aberdeenshire, Dundee, Eilean months, rather than a full SST. Many North Lanarkshire and Midlothian, outcomes that Housing First seeks to Siar, Fife, North Lanarkshire, English and European versions of for example. achieve”.38 Clackmannanshire has a Orkney, Renfrewshire, South Housing First operate using what similar view, whilst Aberdeenshire’s Ayrshire could be regarded as “probationary” Others plan to implement Housing Pitstop project with Turning Point or “trial” tenancies, but this is unusual First in future years. East Ayrshire, blends supported accommodation in Scotland. Argyll and Bute and Moray plan to start for people with substance use with Eilean Siar has identified people with in year two of the RRTP, and Eilean Siar onward tenancy support from the substance issues as the other primary Argyll and Bute identifies temporary and Dumfries and Galloway in year same provider, offered on Housing group for the service; this is also the RSL owned properties which can three (when funding has been able First principles. cohort targeted by Falkirk, Highland be converted to SSTs specifically for to be diverted from other temporary and Moray. Dundee aims to provide Housing First tenants. Aberdeenshire’s accommodation and support For authorities without provision, five Housing First tenancies per year Council-run service uses temporary contracts). Some authorities are less some, such as East Lothian, East specifically for women with complex self-contained properties as a starting clear when their services are expected Ayrshire, East Renfrewshire and Perth needs fleeing domestic abuse. Fife point for Housing First, offering to to start, such as East Lothian, Falkirk and Kinross (which despite using will focus on Housing First for prison convert the tenancy to an SST, or allow and Clackmannanshire. “Home First”, a housing-led approach leavers, to support Sustainable the person to move, based on their for over two years, has no Housing Housing on Release for Everyone preferences. This is due to permanent There is diversity across Scotland as to First) are at the stage of conducting (SHORE) standards. West Lothian accommodation not always being the extent to which planned Housing feasibility studies and research to intends to develop modifications of immediately available in the area First projects will meet identified need. identify the potential Housing First Housing First for a range of specific of people’s choice, as well as some In some areas, the amount of Housing client group. In Edinburgh’s case, groups with complex needs who are clients enjoying the option of trying First tenancies planned appears to despite being a Pathfinder authority, at risk of homelessness. out a tenancy, but not being stuck with roughly match need. This is the case there is no detail on the size of the it if they are unsure. in East Lothian, Falkirk, South Ayrshire potential Housing First cohort.39 One RRTP (South Lanarkshire) and South Lanarkshire. In others, the discusses a Housing First service The Pitstop project referenced above proportion of Housing First planned Other authorities (with or without for families. The Council has also offers a way of mixing Housing exceeds the proportion of current existing provision) have honed in commissioned a service from Shelter First support with prior stays in households with complex needs. The on specific client groups. Around Scotland since 2017, with positive specialist supported accommodation. extent to which it does so however a quarter of RRTPs set out plans to results, and aims to expand this. The differs greatly, most obviously in Fife, install some provision for Housing First extent to which Housing First might be In our view, this is a potentially valuable with a current caseload of just under for young people, based on positive relevant for families is not discussed in model, as long as this is not the only 100 complex persons in the cohort, experiences of the RSL/Rock Trust care any other RRTP. way complex people with substance but with plans for 375 tenancies over leaver initiative in West Lothian. West issues can access Housing First locally five years. Lothian Council is keen to expand the Housing First tenure and (which, in Aberdeenshire, it isn’t). project beyond care leavers, to other building type In other areas, the planned provision young people with complex needs Most Housing First plans are for East Renfrewshire’s plans for a barely touches the current complex indicators. Eilean Siar also aims to offer mainstream dispersed tenancies and block of flats used for temporary caseload. Midlothian assesses that Housing First to young people with social housing SSTs, though Pathfinder accommodation to be re-designated 112 Housing First tenancies are complex needs, regardless of whether areas also include the PRS as an as Housing First are suggestive of a required for its current caseload, yet they have been in care. option. This tenure has already been congregate model. Dundee also has has only planned for 45 during the used for Housing First in Aberdeen, plans to reconfigure current hostels course of the RRTP. This disparity isn’t Glasgow and Dundee. North into self-contained blocks for Housing explained. Stirling determines that a First tenancies, with on-site support. high proportion of its caseload would This model is one of those used in require Housing First (28% - over 100 38 Neither Moray or Clackmannanshire lay out the principles (as opposed to the outcomes) of existing Finland, for those whose needs are people), but has only planned 66 models so it is not possible to assess the extent to which these fit with a Housing First approach. 40 39 Pathfinder tenancy targets were not set in relation to local figures for the potential Housing First deemed too high for dispersed living. tenancies over the next five years. East “cohort”. Targets were initially informed by pledges of stock from social landlords, then subsequently increased as additional funding was received (from Scottish Government and Merchant’s House Glasgow) for support staff. 40 https://ysaatio.fi/assets/files/2018/01/A_Home_of_Your_Own_lowres_spreads.pdf 54 Rapid Rehousing Transition Plans (RRTPs): a Scottish overview Chapter 2. Settled housing: supplyand access 55

Dunbartonshire wants to extend its and two mental health specialists, with voluntary sector partners on the In East Dunbartonshire’s case, most successful Housing First project, but Highland’s team two nurses and issue of furniture, and do not cost it. of the funding comes from the Big the extent by which it aims to do so North Lanarkshire two qualified H&SC Lottery, though unusually, there is barely reaches half the caseload of professionals. Housing First projects Projects modelled by consultants have an £11,000 contribution from the complex individuals. developed jointly with H&SC/NHS been costed in a transparent manner Alcohol and Drug Partnership (ADP). appear more likely to feature these and are fairly similar, albeit with some Highland is the only other authority Housing First staffing structures roles.43 Only Argyll and Bute’s plans see differences in staffing. Many authorities which, on this reading, has secured A minority of authorities set out their H&SC professionals as lead workers don’t lay out their staffing models (or ADP monies for Housing First. This Housing First staffing structures in within Housing First. salaries) which makes their costings investment represents half of the total RRTPs. These differ by ratio of client challenging to understand. Regardless, sought. West Lothian moots the use to workers, and in terms of which staff there appears to be a great difference of ADP funding for this purpose, whilst will form part of the Housing First Authorities with plans to build in how projects have been costed. North Lanarkshire cites in its resource team. Aberdeenshire’s rural Housing peer support into Housing First plan that business cases will be First (as opposed to the Pathfinder) has services For example, neither Midlothian nor submitted for ADP and H&SC monies the highest caseload, with 15 clients Argyll and Bute, Falkirk, East Lothian have current provision. to match fund resources which may be listed as being supported (successfully) Midlothian, North Ayrshire, North Both aim for 50 tenancies over five forthcoming from RRTP funding. by one worker. One additional worker Lanarkshire, Renfrewshire, South years. The former costs this nearly has been funded, but with a waiting Ayrshire, Stirling, West Lothian three times higher than the latter Future funding of Housing First list of 12 clients, both may still have (£1.1million/£375,000) despite tends to be referenced in terms a high caseload, based on UK and presupposing 15 hours per client of “mainstreaming” through the international guidelines.41 This model, Housing First costing and funding weekly, in contrast to nine. Glasgow, commissioning process during years as a rural rendition of Housing First, As with all other aspects of Housing Edinburgh and Dundee have funded four and five of the RRTP. In a small does however make more use of direct First plans, there are great differences Pathfinders. Glasgow requests £8.6 number of cases, authorities have support from other agencies than may in costings and funding requests million additional RRTP funding calculated that savings made from be typical of other Scottish services. across Scotland. Highland, Fife and for Housing First, in contrast to other rapid rehousing actions, such as Scottish Borders estimate the costs of Edinburgh’s £1million and Dundee’s closure of hostels and eradication of Renfrewshire’s existing (successful) Housing First per client up front in their £600,000. B&B, will allow them to fund Housing model has a ratio of seven clients to RRTPs. These sit fairly consistently at First in the future without reliance on one worker. This is also the maximum £6,000-£7,500 per annum mark. This Pathfinder apart, it’s rare to find external sources. This is the case in caseload for Pathfinders. A smaller corresponds to Pathfinder costings of Housing First services receiving Highland, North Ayrshire and Angus for ratio of six to one is planned in £7,500 per client in year one, which commitments for funding from example. Argyll and Bute has costed West Dunbartonshire, and five to includes £1,500 for furniture, and sources other than local authorities two transitional “health liaison” roles to one in Stirling and North Ayrshire. £6000 per annum thereafter. themselves. This places a heavy weight build the foundations of an integrated Moray’s plans to recruit five workers on funding requests made for this model of support between housing, for 15 tenants provides the smallest RRTPs from North Ayrshire, Stirling, aspect in RRTPs. Renfrewshire was health and Social Work. By year five caseloads, though these will rise as Glasgow, South Ayrshire and West the first local authority in Scotland to of the RRTP they hope integration years go on. Dunbartonshire, which all use similar commission Housing First, followed by between services will be such that modelling, estimate higher costs for Glasgow, East Dunbartonshire, South these roles are no longer required. A minority of Housing First projects Housing First. Part of this may relate to Lanarkshire and Aberdeenshire. South plan for other staff, as well as support lower maximum caseloads, therefore Ayrshire and Aberdeenshire are using workers, to be embedded in the team. more staff required to provide Housing homelessness prevention funds to pilot Nine RRTPs include a peer support First support, as well as inclusion of Housing First for one year, but do not role.42 Five projects also include other job roles. Another part reflects have this option in future. health or addictions specialists from the costs allocated for décor and NHS or H&SC. South Ayrshire adds a furniture, of £5000 per tenancy in public health nurse, East Ayrshire a these examples44 (in contrast, the mental health nurse, North Ayrshire’s Pathfinder costs furniture at £1,500 per model contains two addictions tenancy). Other models seek to work

41 Scotland’s Housing First Pathfinder plans for a maximum caseload of 7 clients, Housing First England guidance is 5-7 clients, and Housing First Europe reports caseloads between 5-10 across various European projects. 42 Peer support/mentoring roles are planned in other RRTPs, such as South Lanarkshire and East Ayrshire, though not specifically referenced in relation to Housing First. 43 Though this does not usually translate to a funding contribution from H&SC. 44 West Dunbartonshire’s second RRTP draft reduces furniture costs by half, presumably after Government feedback 56 Rapid Rehousing Transition Plans (RRTPs): a Scottish overview Chapter 2. Settled housing: supplyand access 57

Practice examples and ideas worth sharing Renfrewshire Council has had an operational Housing First service in place for five years. It was the first Scottish authority to commission a Glasgow City Council has made plans to set up a dedicated Housing First Housing First service, which is delivered in partnership with Turning Point assessment team within each community homelessness team to assess, Scotland. It has a tenancy sustainment rate of 90%, which is higher than coordinate support and manage the process for homeless households with the sustainment level for lets to all homeless applicants in Renfrewshire in complex needs. The team will work with the broader Housing First network 2017/18. No Housing First tenant has had to present to the homelessness in Glasgow. Homeless households presenting to the Council will therefore, team since joining the service. The service has been running for long within 28 days of presenting as homeless, be referred to an RSL through a enough to be able to show clear outcomes in terms of recovery and the Section Five referral, or referred to the Housing First service. journeys service users have made.

This approach facilitates Housing First being positioned as the default This experience gives Renfrewshire an excellent basis on which to cost the option for households with complex needs, rather than relying on Housing development of its Housing First service. It plans, through RRTP funding, to Officers with generic caseloads or other services used by vulnerable add to the peer-support role, implement digital inclusion, target younger people to refer them. It wires a Housing First pathway into the bricks of the homeless applicants, and pilot Housing First in a shared tenancy setting. homelessness system.

North Lanarkshire Council does not have Housing First provision at North Ayrshire Council completed a review in 2016, concluding that present but has made extensive progress in securing the multi-agency homelessness service provision for people with multiple and complex foundations on which to build a service in future. The Health and needs required further scrutiny and improvement. It took an inter-agency Homelessness Steering Group has made a strong H&SC contribution to approach to improve outcomes for this group and acknowledged the need the RRTP, following actions identified by health and homelessness research to try a new type of service model, in the shape of a Housing First pilot. completed in the Lanarkshire area in 2016. The Council consulted widely with partners and homeless service users on the design and intended outcomes of the Housing First service. The H&SCP commits to developing a care management model to support localities to coordinate care for Housing First tenants, aligning a dedicated In 2017, they set up a small pilot targeted at six individuals with a Health and Homelessness lead professional and support worker to each background of repeat homelessness and offending. A multi-agency locality to work closely with locality H&SC colleagues. The H&SCP also steering group was set up, a Housing First support worker appointed, commits to trialling extension of SDS to Housing First tenants who are and a peer support worker with a history of homelessness and offending eligible for packages of care. A business case is being put forward to the recruited. All six tenants remain in their tenancies at the 12-month review ADP and H&SC commissioning for additional capacity. period and all reported positive experiences with Housing First, with notable outcomes in the area of addiction recovery.

The Council was also able to identify savings in temporary accommodation costs when compared to the traditional journey. This small pilot provides excellent local learning and evidenced outcomes on which to build, as Housing First becomes a larger part of the service offer in North Ayrshire.

West Lothian Council aims to set up a Housing First co-ordinating team which takes inspiration from their successful Syrian Refugee Service model. The team (for which the Council requests Scottish Government funding) will identify support packages, develop peer mentoring, procure Self Directed Support (SDS) and reconfigure services (including ADP-funded support in temporary accommodation) using the principles of Housing First. 58 Rapid Rehousing Transition Plans (RRTPs): a Scottish overview Chapter 3. Transforming temporary accommodation 59

were not asked to provide current In our view, RRTPs that critically data on longer or the longest stays, analyse who gets what, how well Chapter 3 nor total time spent in temporary needs are matched and the degree accommodation before rehousing of choice for customers, if any, within currently. This doesn’t allow a clear an authority’s current temporary picture of what customer journeys accommodation system, are suggestive Transforming look like now, and which households of good practice. This is also the get “stuck” in the system. case for RRTPs which reflect on the nature and extent of households that This is especially important when may currently be in need of, but not temporary considering the role played by accessing, temporary accommodation unsuitable temporary accommodation. in their areas (due to overall shortages For instance, in some areas B&B or refusal of the sort or location of use is routine, but not protracted. In accommodation on offer). accommodation other areas there is little option but B&B for the whole homelessness period. As B&B accommodates so Overview many households on a short-term basis and has many comings and Plans for future quantity of goings, average stays occlude often temporary accommodation What was expected of local is not too distant a reality for some particularly harmful45 long-term stays. Three quarters of all authorities aim authorities in the toolkit? authorities in Scotland, whilst very far Some RRTPs choose to provide this for a reduced stock of temporary HARSAG and ensuing RRTP guidance from it in others. detail, but many don’t. accommodation by 2024. Of the 70% are clear that authorities should of authorities for which figures were “redress the balance of temporary Authorities were asked to provide Authorities were also not asked to obtainable, the extent of reduction accommodation”, which generally details on the capacity, nature, comment on their ability (or otherwise) of units runs from 3% in Midlothian means a reduction in both overall average stays and costs of temporary to consistently meet legal duties to to 69% in Scottish Borders. Five other provision and average lengths of stay. accommodation in their area, and provide temporary accommodation,46 authorities aim to more than halve This is to be achieved by increasing analyse trends in demand since 2003, including through out of hours their temporary accommodation settled housing options and decreasing suggesting whether this has peaked or services, or to describe night shelter units (Glasgow, Dundee, Stirling, West demand through prevention activities. continued to rise. provision within their areas. In areas Lothian, Angus). A further 20% plan where entitled people are sent away a “greatly reduced stock” without It also means a change in the sort They were then asked to set out a five- due to accommodation shortages specifying numbers. The average of accommodation used, with a year vision for transforming temporary and shelters are a routine part of reduction in temporary stock across move away from larger, congregate provision, factoring in the scaling up of accommodation provision, numbers Scotland, bearing in mind a handful of and unsupported premises (such Housing First and refining supported of households accommodated in HL authorities aim to increase it and some as larger hostels and Bed and accommodation capacity, and provide returns cannot tell the whole story in don’t offer figures, is 28%. Breakfasts (B&Bs)) in favour of a “locally agreed” target for the respect of overall need. dispersed, self-contained premises in maximum (as opposed to average) communities. Alternatively, and only time households should spend in Lastly, authorities weren’t expected where supported accommodation is temporary accommodation, of any to mention in RRTPs the options necessary in relation to a household’s sort, by the end of the five year available (or not) through their support needs, provision should be RRTP period. temporary accommodation services small in size, high in quality, and staff for households with pets, couples or and premises should operate within a One of the four areas for which for storage of belongings, including psychologically informed environment authorities could request funding is furniture, though HARSAG did make (PIE). for redesign of existing temporary recommendations that all of these accommodation supply. should be catered for. HARSAG also recommended accommodation should be affordable Not mentioned in RRTP to those in work or with no Housing guidance, but our view is... Benefit (HB) entitlement, and that Whilst authorities were asked to state 45 www.crisis.org.uk/media/239523/i_wont_last_long_in_here_experiences_of_unsuitable_temporary_ moves around different placements average length of stays by temporary accommodation_in_scotland_-pdf.pdf should be kept to a minimum. As RRTP accommodation type and provide 46 Table 29 shows 10 authorities completed HL3 returns last year in relation to being unable to guidance notes, the HARSAG vision a maximum stay by 2024, they meet duties https://www2.gov.scot/Topics/Statistics/Browse/Housing-Regeneration/RefTables/ homelessness1819tablescharts Chart 5

45% 40% 35% 30% 25% 20%

Percentages 15% 10% 5% 0%

Fife Falkirk Angus Dundee Stirling Orkney Glasgow Aberdeen Inverclyde Highland Midlothian Eilean Siar RenfrewshireEast Ayrshire SCOTLAND West Lothian East Lothian North Ayrshire South Ayrshire Perth & Kinross Aberdeenshire Scottish Borders North LanarkshireSouth Lanarkshire East Renfrewshire West Dunbartonshire Dumfries & Galloway East Dunbartonshire

60 Rapid RehousingComplex Transition (Housing First)Plans (RRTPs):Specialist a Scottish overviewAreas in SIMD 20% most deprived Chapter 3. Transforming temporary accommodation 61

Chart 6. Projected reduction in temporary accommodation units from 2019-2024, Edinburgh projects an increase of 18% But the consequences of reducing by localChart authority 6 in temporary stock, mainly in the form supply too quickly, dogmatically or of temporary flats and PSL. Inverclyde in the wrong order could be far- expects a small decrease in temporary reaching, as Heriot Watt’s 2018 report 80% self-contained properties and documents.48 Whilst closure of some hostels, but an increase in “core and supported accommodation meets 70% cluster” supported accommodation.47 Glasgow’s RRTP vision, doing so in 60% Clackmannanshire wants to grow the context of ongoing failures to supply to avoid sending households to meet temporary accommodation 50% B&Bs in Stirling, which the RRTP states duties has generated acute concern, 40% is an unpopular option, often refused. legal challenge and regulatory 30% intervention.49

20% RRTPs setting plans to increase Our view is that this underlines the 10% temporary accommodation need for extremely careful planning Clackmannanshire, Edinburgh, and monitoring as system change Percentage reduction 0% Inverclyde proceeds, ensuring people are never -10% faced with rough sleeping as a result. -20% No authority discusses an inability Plans for future duration of stays

Angus Moray Falkirk to meet temporary accommodation in temporary accommodation Stirling Dundee Glasgow Midlothian InverclydeEdinburgh SCOTLAND duty, nor attempts to estimate the A higher proportion of authorities West Lothian East Lothian Argyll & Bute Renfrewshire East Ayrshire North SouthAyrshire Ayrshire numbers of households who may be (84%) aim for reduced length of stay in Scottish Borders Perth & Kinross North Lanarkshire South Lanarkshire part of an entitled cohort but who use temporary accommodation by 2024, Dumfries & Galloway West Dunbartonshire night shelters or sleep rough due to than aim for reduction in capacity. accommodation shortages. Glasgow Figures were only obtainable for just makes a fleeting reference to some over half of all authorities. It should rough sleeping being attributable to be noted that a number of authorities The Council does not expect shortages, but this isn’t dwelled upon. report service objectives to reduce RRTPs setting plans to reduce to see this until 2021. temporary accommodation journey temporary accommodation Our view is that when estimating time which pre-existed the RRTP, and Aberdeen, Aberdeenshire, East Ayrshire predicts a rise in future temporary accommodation have already brought about positive Angus, Argyll and Bute, Dundee, temporary accommodation demand. demand, a key consideration change, for example, Aberdeen and Dumfries and Galloway, It refrains from normal practice of for pressured authorities is to Dumfries and Galloway. East Dunbartonshire, East procuring additional units, but also understand the extent of this partially Lothian, Eilean Siar, Falkirk, refrains from planning reductions. concealed group, and factor into For those, average reduction in stay Glasgow, Highland, Midlothian, Orkney does not plan decreases in future temporary accommodation is 42%. Reduction in average stays Moray, North Ayrshire, North temporary accommodation either, requirements the current extent of range from 6% in East Dunbartonshire Lanarkshire, Perth and Kinross, possibly due to having low amounts ability to meet duties. to 71% in West Lothian. As above, Renfrewshire, Scottish Borders, of future new build social supply, six other authorities (with some Shetland, South Ayrshire, Stirling, reducing the Council’s ability to move Balancing sufficient supply to overlap in relation to 50%+ reduction West Dunbartonshire, people on. meet legal duties with sufficient in temporary units) aim to reduce West Lothian ambition for system change is a average stays by more than half. key tension within the transition to These are Glasgow, Dundee, Angus, RRTPs not setting plans to rapid rehousing. Authorities planning North Ayrshire, Argyll and Bute and Eight RRTPs set no plans to reduce reduce or increase temporary “no change” or growing temporary Aberdeenshire. temporary accommodation. For accommodation stock could appear to defy the rapid five, no change is planned. East East Ayrshire, East Renfrewshire, rehousing ethos, or to lack ambition. Renfrewshire suggests it can only Fife, Orkney, South Lanarkshire reduce provision by requiring people to live in areas they don’t want to go 47 This is referred to as “interim” so is viewed as a type of temporary accommodation; this may be to. South Lanarkshire sets no targets Edinburgh, Inverclyde and a mis-reading. 48 https://pureapps2.hw.ac.uk/ws/portalfiles/portal/23430074/SB_TempAccommReport_FinalReport.pdf to reduce stock, as “any reduction in Clackmannanshire are the only Chapters 4 and 5 supply of temporary accommodation authorities expecting to increase 49 https://www.scottishhousingnews.com/article/shelter-scotland-begins-court-action-against-glasgow- will be linked to a reduction in need”. rather than decrease temporary units. city-council and https://www.scottishhousingnews.com/article/regulator-launches-inquiry-into- glasgow-city-council-s-homelessness-services 62 Rapid Rehousing Transition Plans (RRTPs): a Scottish overview Chapter 3. Transforming temporary accommodation 63

Only three authorities do not plan East Dunbartonshire, East Lothian and Just under three quarters of authorities Regardless, almost all authorities plan to reduce average stays, these are Edinburgh are the only authorities aim to reduce dispersed temporary to review and remodel their supported Edinburgh, East Renfrewshire and using B&B for extended periods stock. Of those providing figures provision. A small number understand Clackmannanshire. In the former case, currently that don’t commit to end or (65% of total), this ranges from a 76% some of their supported provision the aim is to halt a rise in average stays, reduce use to comply with a seven- reduction in Perth and Kinross to a as potentially breaching a future rather than setting targets to reduce day limit. By 2024, the former predicts 3% reduction in Falkirk. 80% of stock (extended) Unsuitable Accommodation them, in view of the city’s extremely a reduction from the current 60-day owning authorities will convert some Order (UAO) due to the shared nature difficult housing market. average, whilst East Lothian aims for temporary stock to permanent SSTs, of facilities. There is a thread in some a maximum B&B stay of 12 weeks. and all stock transfer authorities aim to RRTPs to focus actions on ensuring East Renfrewshire reports below Edinburgh does not set a timescale, hand back RSL owned stock to allow supported accommodation is well average stays currently, and that but aims for a 13% reduction in B&B the same outcome. But a majority of matched to applicant need, and decreasing these would undermine use, alongside elimination of traditional stock-owning authorities providing allocated “right first time”. household choice and tenancy B&B models (i.e. curfew, no cooking/ figures intend to replace temporary sustainability. Clackmannanshire laundry facilities). properties converted to SSTs, thus not Twelve authorities plan reductions, of makes a similar argument, but also reducing the total. which by far the biggest are the cities questions the usefulness of a “simple Private Sector Leasing (PSL) of Dundee, Glasgow and Stirling, with target that does not take account of Of 21 authorities mentioning PSL, As above, five authorities make decreases between 52%-57%. Ten the quality and effectiveness of the four have already phased it out; often no plans to reduce any temporary authorities aim instead to increase applicant’s final housing outcome”. because it wasn’t an affordable source accommodation, including temporary supported beds. The rest expect, or It suggests this “may encourage of temporary accommodation to the self-contained properties, preferring to describe, no change in capacity. practices effective at reducing time Council following various welfare evaluate the success of rapid rehousing spent, but less effective at ensuring reforms. Eight further authorities aim measures on reducing demand before Alternative forms of temporary long term sustainability and customer to greatly reduce or eliminate PSL setting plans to reduce capacity. Five accommodation wellbeing”. over the RRTP period. Whilst four do further authorities (Highland, Edinburgh, A handful of RRTPs explore not specifically talk about reductions Midlothian, Clackmannanshire and the use of alternative forms of No authority plans to increase average of PSL, they are significantly reducing East Dunbartonshire) plan to increase temporary accommodation, such as stays in temporary accommodation. self-contained temporary stock, dispersed stock, for reasons particular community hosting. Three authorities However it should be noted that some implying PSL will also be reduced. to each area, generally centred around (Aberdeenshire, Highland and Angus) authorities aiming to reduce average reducing or eradicating the need to already use shared temporary lengths of stay for households with Both Lanarkshires, East Renfrewshire use B&Bs. tenancies, with good results in the no/low or complex needs, expect and East Dunbartonshire don’t specify first two.50 There is interest from three average stays to increase for those reductions of PSL (of these, only North Supported temporary other authorities within RRTPs, all of with “medium” support needs. North Lanarkshire specifies reduction in any accommodation which are pressured areas using B&B Lanarkshire, West Dunbartonshire and temporary accommodation type). The vision for supported at present. Inverclyde fall into this group. Edinburgh bucks the trend, with plans accommodation in 2024 is less to significantly increase units of PSL by consistent across Scotland. Plans for improving quality B&B 2024, from 1420 to 1850+, an increase Current proportion of supported and move-on In relation to the sort of temporary linked to the B&B issue mentioned accommodation per applicant and per A number of authorities consider accommodation being decreased, 22 above. household assessed as having support resident satisfaction with temporary authorities use B&B currently with six needs, varies widely by authority, as accommodation, and use data on this of these doing so in exceptional cases, Temporary self-contained does the nature of accommodation to determine future RRTP actions. In five more often but for short stays, and properties classed as “supported”. Supported some cases, such as Renfrewshire, eleven with longer term use. Of the 16 All authorities use temporary self- accommodation ranges from self- feedback on the standard and quality authorities using B&B more routinely, contained stock, though there are contained, dispersed properties with of all types of accommodation has ten aim to eliminate it entirely by year great differences in proportional visiting support to larger, generic been positive, and improving. North five of the RRTP (the majority, by years use of their own stock and that of hostels with shared facilities. This Ayrshire and Argyll and Bute also two or three) whilst three commit to other social (RSL) and PRS landlords. makes comparisons less robust. report high levels of satisfaction. The minimising length of stays to seven Again for reasons of welfare latter does however set an early RRTP days or less. reform, many authorities, such as action to design a more detailed Highland, Renfrewshire and Angus, survey of residents to ensure their aim to minimise leased stock and experience is meaningfully analysed. use their own stock for temporary accommodation where possible. This is clearly not an option for stock transfer authorities. 50 Angus was about to evaluate its scheme as the RRTP was published. 64 Rapid Rehousing Transition Plans (RRTPs): a Scottish overview Chapter 3. Transforming temporary accommodation 65

Midlothian reports in contrast that levels of satisfaction with temporary RRTPs with a focus on resident Since 2016, Aberdeen City Council has had a focus on reducing total accommodation are significantly satisfaction in temporary homeless journey time and time spent in temporary accommodation. below Scottish averages. Though it accommodation Supported by a customer survey which told them most customers do suggests some dissatisfaction is likely Aberdeen, Argyll and Bute, not want to be placed in temporary accommodation, they introduced to relate to the length of stay rather Clackmannanshire, Edinburgh, a maximum target journey time and a number of actions to support than quality of the property, the Eilean Siar, Midlothian, North this including scrutinising each part of the homelessness and allocation Council has set an action to improve Ayrshire, Renfrewshire process. This showed up delays in getting support in place, offers being tenant experiences of both aspects. refused or withdrawn, properties not being ready to move into and getting Eilean Siar sets a similar action. properties furnished. Perth and Kinross, Aberdeen, Falkirk Edinburgh refers to service user and East Lothian also discuss To address this, in 2016, the Council set up a bi-weekly meeting of feedback as instrumental in informing actions to facilitate move-on from Officers tasked with looking at longstanding cases including those in its shift from traditional B&Bs to temporary accommodation. This temporary accommodation. This has been a successful tool in highlighting “shared houses”. It also aims to takes in examination of the voids and blockages and delays in the system and learning from the meeting has develop an easy access rating system offers process, fast tracking Scottish been applied to service wide changes. This has led to a reduction in total for residents to be used as part of Welfare Fund (SWF) referrals and journey time and related to that, a reduction in total capacity of temporary the contract monitoring system. reviewing longstanding temporary accommodation. Aberdeen and North Ayrshire highlight accommodation cases, with a view to well in their RRTPs how they have targeting actions which would facilitate used resident data and feedback, move-on. Most of these Councils have as well as statistics on refusals of already seen reductions in average temporary accommodation, when stays in temporary accommodation, determining the ongoing suitability of having implemented these approaches Bed and Breakfast (B&B) Overview options, including which should be pre-RRTP. discontinued. What was expected of local Prevalence and history of B&B use authorities in the toolkit? Ten authorities surveyed do not The RRTP toolkit did not comment use B&B at all, and six only use it specifically on B&B accommodation. occasionally, as an exceptional Practice examples and ideas worth sharing measure. Half of Scottish authorities HARSAG recommended the seven-day use B&B more routinely, though five restriction on unsuitable temporary of these are for relatively short stays, Perth and Kinross Council set up its Home First transformation project in accommodation (i.e. B&B) in the form with eleven using the tenure for longer 2016 to reduce time spent in temporary accommodation on the basis of of the UAO should be extended to all periods. It is worth noting that in the the stigma and uncertainty households experienced whilst there, as well as homeless people, as it currently applies past five years, around two thirds of the cost, to households and the Council. to families and pregnant women. This the total B&B spaces used per night recommendation was subsequently in Scotland have been within two Since 2015 the Council has reduced the average temporary accepted by the Scottish Government, authority areas – Edinburgh and accommodation stay from 258 days to 81 days, more than halved the consulted on, and an announcement Highland. number of households using temporary accommodation at any one made in September 2019 that the time, phased out PSL, eliminated B&B and reduced temporary supply by Government will legislate on this more than two thirds. In doing this it has reduced spend on temporary matter, with effect from May 2021. Authorities which have accommodation by more than £3 million. eradicated B&B use HARSAG did acknowledge that, in Argyll and Bute, Dumfries and The RRTP sets clear targets to further reduce temporary accommodation some cases, B&B provision has its Galloway, Dundee, East Ayrshire, supply (by 33%) as well as average stays. There is an onward drive to place as emergency accommodation, Falkirk, North Ayrshire, North continue to embed Home First, and no sense of complacency given what on particular occasions and particular Lanarkshire, Perth and Kinross, has already been achieved. areas (such as in parts of rural Scottish Borders, South Ayrshire Scotland). Therefore, the ambition is less to eliminate it altogether than to apply strict time limits and rigorous Looking at B&B use over time, only standard requirements. Edinburgh, Stirling and West Lothian have rising use: Edinburgh’s year-on- year, West Lothian having never used it until 2012, but reporting a 78% rise in 66 Rapid Rehousing Transition Plans (RRTPs): a Scottish overview Chapter 3. Transforming temporary accommodation 67

the past two years and Stirling seeing that it will be unable to reduce it to a Alternatives to B&B a decrease from 100 spaces a night Authorities using B&B routinely seven day maximum without additional In relation to how authorities using in 2010, to 10 in 2012, but this has Aberdeen, Aberdeenshire, resource. It points out that doing so B&B intend to eliminate or reduce trebled in the past few years. Glasgow, Angus, East Dunbartonshire, means keeping a significant number use, most are reducing their overall Aberdeen, Aberdeenshire and East East Lothian, East Renfrewshire, of vacant properties aside in case of temporary supply and increasing Dunbartonshire have reduced B&B use Edinburgh, Eilean Siar, Fife, emergency. This is a difficult call when settled housing options, rather than over time, though recent years show Glasgow, Highland, Midlothian, stock is in such short supply. East growing other types of temporary further decline has plateaued. East Moray, Orkney, Stirling, West Lothian’s RRTP aims for a maximum accommodation. Lothian and Highland’s use has been Lothian B&B stay of 12 weeks by 2024; its consistent, but they have been unable first draft RRTP set targets to reduce to meaningfully reduce it. stays to seven days; this was revised Authorities eradicating or Meeting current and future UAOs upwards following RRTP funding reducing B&B by increasing Of 16 authorities using B&B routinely, announcements in July 2019. settled housing options only Authorities using B&B ten aim to eliminate it through the Aberdeen, Aberdeenshire, Angus, occasionally, for RRTP process, generally by 2020/21, Edinburgh aims to reduce B&B by East Lothian, East Renfrewshire, emergencies only whilst three commit to minimising 13% by 2024. This still leaves 590 Eilean Siar, Fife, Glasgow, Moray, Clackmannanshire, Inverclyde, length of stays to seven days or less. households a night in B&B, often for Orkney, Stirling, West Lothian Renfrewshire, Shetland, South protracted periods. In recognition of Lanarkshire, West Dunbartonshire Aberdeenshire aims to reduce stays the ongoing role of the option, the city to seven days, though doesn’t set plans to remove all provision without In contrast, Edinburgh, Midlothian, targets to reduce capacity, making catering or laundry facilities, and stop East Dunbartonshire, Highland and It is worth noting that what authorities the point B&Bs are of high standards using non-contracted providers (i.e. Clackmannanshire aim to grow record as B&B in HL1 does not and can be the choice of households all B&Bs by 2024 will be on a “shared temporary supply, which means going always look the same from area who don’t want to move away from an house” model). A “shared house” may in the opposite direction to most to area. In addition, it appears that area. Orkney appears to already meet still breach the UAO, depending on the authorities. Edinburgh requested accommodation some authorities the forthcoming extended UAO, with final text of the Scottish Parliament’s RRTP funding to expand supported record as “other” would be classed as average stays of three to six nights. It definition. If it does, maximum lengths accommodation as a direct alternative B&B by other authorities. RRTPs are should be noted that the UAO does of stay in that accommodation type to B&B, at £1.3million annually; East useful in this regard as allow the style not apply where the applicant has for singles/couples in Edinburgh will be Dunbartonshire suggests a similar of provision behind the name to be been offered suitable accommodation very far from seven days, given current approach. Midlothian reports it described and compared. For example, but wishes to remain where they are.52 timescales can be in excess of a year. was able to halve its B&B use in Midlothian, Dumfries and Galloway and recent years by growing supported Moray51 discuss provision of a similar In respect of using B&B for families, accommodation. It intends to style to that which East Lothian and Authorities using B&B with plans not all RRTPs record whether this is eliminate remaining use through Highland class as B&B. Regardless of to eradicate, or reduce to seven- currently used as a short-term option additional supported and self- what they call it, all authorities identify day maximum, by 2024 or not. Four authorities discuss their contained temporary accommodation. the accommodation as unsuitable and Aberdeen, Aberdeenshire, breach of the current UAO, which Fife describes a similar (historical) set plans to eradicate it. Angus, East Renfrewshire, Eilean pertains to all households with journey. Argyll and Bute implemented Siar, Fife, Glasgow, Highland, children or a pregnant female, with a deliberate policy to eradicate B&B It’s our view that defining what Midlothian, Moray, Orkney, East Lothian and Highland stating they in 2013, increasing leased properties, “unsuitable accommodation” actually Stirling, West Lothian did so for the first time in 2016/17 and mainly PSL, so as not to decrease means will be a critical task for future 13 and 21 times respectively so far this permanent supply. monitoring of compliance to the year. Edinburgh reported 20 breaches extended UAO. Edinburgh, East Lothian and East last year, having not breached before Dunbartonshire are the exceptions in (though the Order was amended that Authorities eradicating or respect of being able to meet a seven- reporting year, reducing from 14 days reducing B&B by increasing day UAO for adult households by 2021, to seven). Other authorities don’t other temporary options or indeed, 2024. The latter’s average mention this aspect, though statistics Clackmannanshire, East stay is 60 days; whilst the Council show the above mentioned are not the Dunbartonshire, Edinburgh, aims to reduce this, its RRTP states only authorities which breached Highland, Midlothian the UAO.53

51 These authorities do not report B&B use in HL1. Whilst Moray and Dumfries and Galloway define the provision as HMO-style accommodation not B&B, Midlothian clearly refer to it as B&B in their RRTP 52 http://www.legislation.gov.uk/ssi/2014/243/made Article 6: article 5 does not apply where (b) the local authority has offered the applicant accommodation that meets the requirements of article 5, but the 53 In 2017-18 homelessness statistics (as this is the year generally used for preparing RRTPs), eight applicant wishes to be accommodated in other accommodation that does not meet those requirements authorities breached UAO. 68 Rapid Rehousing Transition Plans (RRTPs): a Scottish overview Chapter 3. Transforming temporary accommodation 69

Aberdeenshire has successfully Improving B&B standards implemented shared temporary Where length of B&B stays are not Aberdeenshire Council introduced shared temporary tenancies in 2016 tenancies as a direct alternative to B&B able to be meaningfully reduced in with assistance from Crisis, and now has 16 rooms in eight properties. In in recent years, and plans to expand the short or medium term (Edinburgh Aberdeenshire, it is common for households to choose to sofa surf or sleep these. The Council is also investigating only), the Council wants to introduce out if accommodation is offered in the next town or village rather than the feasibility of “community hosting” features which improve the experience the person’s own area. B&B is often used in this context, but is expensive, models as an alternative form of of those who live in them. Shared especially for the many households in employment who don’t qualify for accommodation, especially for young houses offer facilities lacking in B&B full HB. people. However, Aberdeenshire (kitchen, laundry) and an “easy access still predicts a reduction in overall rating system” will be introduced Shared tenancies were introduced to expand the temporary options temporary units by 2024. for residents to provide feedback. A available in particular rural areas, avoid B&B and produce more affordable manager will be commissioned to options for workers. Good sized homes were selected, and additional fire Highland, which has also made be based at each house with a remit and smoke alarms installed. A sharer’s charter is signed. Two-bed shares successful use of shared temporary to offer proactive rehousing advice do not require an HMO licence. Rents include Council Tax, heating and wifi tenancies, sets out ambitious plans and support, as opposed to the more and are set around the SAR, which brings more revenue to the Council. to both increase total local authority- narrow property/building manager owned temporary properties then remit of current B&B managers. Despite some scepticism from staff and no precedent for sharing in the convert these to shared properties on local area, the shared tenancies have had very few management problems, a large scale (150 units). These will be and feedback from residents has been positive. The Council has found the specifically targeted to areas with high model also works for client groups with higher support needs, including B&B/House in Multiple Occupation those leaving prison and rehab, for whom isolation and gate-keeping (or (HMO) use, such as Inner Moray Firth “cuckooing”, in which properties of vulnerable tenants can be “taken over” and Skye, though rely on a significant by others, usually for drug-related reasons) have been particular problems funding injection. Edinburgh also aims in the past. to explore both of these options.

Highland Council also worked with Crisis in 2016 to introduce shared Practice examples and ideas worth sharing temporary tenancies, for the same reasons as Aberdeenshire. Highland has the second highest B&B use in Scotland, with extreme housing pressures in Inverness and on Skye, an expensive PRS and rehousing timescales for West Lothian Council aims for a 63% reduction in temporary single person households double those of families. The sharing pilot was accommodation by 2024, the second highest of all reductions proposed implemented as a more affordable, “normal” option for single people with in RRTPs. This is against a trend of rising B&B use since 2017, due to lack of low or no support needs living in B&B in Inverness. Each property has two move-on options. The Council has identified significant overspend linked to bedrooms with locks, a prepayment meter and a sharer’s charter. Rents rising B&B use, including additional transport and storage costs, and wishes are half that of mainstream temporary properties. Feedback has been to divert this trend. It has set aims to decrease transitions, review models of positive from tenants, with minimal neighbour/antisocial behaviour (ASB) supported accommodation, eliminate B&B and significantly reduce self- complaints. contained stock. There is a clear desire to make a fundamental shift away from expensive crisis spending towards early intervention and prevention. The Council has a rolling programme to expand Council-owned self- contained temporary accommodation and simultaneously decrease more expensive, privately leased properties over the next five years. Its RRTP sets out a plan to expand the shared tenancies approach to 150 people in Fife Council implemented a B&B diversion policy during 2012. At that Inner Moray Firth and on Skye, which aims to eliminate routine use of B&B/ time, the Council was placing over 1200 households annually into B&B. HMO properties. The Council seeks RRTP funding for staffing (housing Faced with the prospect of rising demand due to increased legislative management and caretaker staff) to manage the shared tenancies for entitlements, Fife placed a focus on B&B diversion activity, along with the initial upscaling, with the intention this will self-fund by 2024 from commissioned partners in its Public Social Partnership (PSP). All partners reductions in spend on private HMO rooms. worked together to define and implement a range of temporary accommodation models, some supported, others dispersed, such as PSL, and nine specific B&B “diversion beds”. Last year, only one B&B provider was used by the Council, with 100 short placements for single people, just 8% of previous levels. The Council continues to adopt a B&B diversion policy, and now aims to eradicate B&B use entirely over the period of the RRTP. 70 Rapid Rehousing Transition Plans (RRTPs): a Scottish overview Chapter 3. Transforming temporary accommodation 71

Private Sector Leasing Experiences of PSL talks of “winding PSL down”, though Edinburgh already subsidises PSL (PSL) In many authorities, PSL was without figures or timescales. rents at 110% LHA in order to keep introduced as an alternative to B&B landlords in the scheme, and plans and a means of providing dispersed Five authorities do not specifically talk to significantly increase PSL by 2024, What was expected of local temporary accommodation without about ending use of PSL (indeed, East from 1420 units to 1850 (or as many as authorities in the toolkit? diminishing social housing supply. Lothian is retendering it). However all 2500 if they secure landlord uptake). PSL was not specifically discussed by The experience of authorities with of these have planned a significant This is partly to ensure sufficient self- HARSAG and isn’t mentioned in the PSL is mixed, with some viewing it as decrease in self-contained temporary contained temporary accommodation, RRTP toolkit guidance. PSL is not a an expensive and unsuccessful (such options, so it is implied that units of to avoid breach of the UAO and distinct category within temporary as Mid and West Lothian) and others PSL will decrease in coming years. end B&B use, in the context of very accommodation types reported in HL1 citing it as largely effective, such as East Lothian makes clear PSL has restricted social housing supply. returns to Scottish Government and South Ayrshire, Aberdeen, Argyll and to be subsidised by the prevention would tend to come under “Other” Bute and Falkirk. West Lothian plans to fund, so is a costly form of temporary Edinburgh’s RRTP does not types of temporary accommodation, review all leased models of temporary accommodation for the Council. explain why 1400+ units of PSL i.e. not hostels, B&B, or self-contained accommodation on grounds of cost, are not recorded as temporary housing owned by a social landlord. with an implication PSL will be phased accommodation within HL1 statistics. This category would also include out in the RRTP lifetime. Authorities using PSL, with plans The RRTP explains that households private properties used as temporary to reduce all dispersed provision are able to use the tenure as accommodation on a different basis Authorities reducing PSL Argyll and Bute, East Lothian, “interim” rather than temporary to PSL. Eight authorities plan to greatly reduce Glasgow, North Lanarkshire, accommodation, choosing to close or eliminate PSL. Fife, Falkirk, Stirling, West Lothian their homelessness case and stay PSL closely matches HARSAG’s Moray and Renfrewshire, with 82, in PSL as long as they wish, though definition of “optimum type” 44, 22, three and two PSL properties not for reasons of requiring support. temporary accommodation. However, respectively, aim to decommission Authorities retaining or This means accurate figures on welfare reform has rendered all leased PSL and have no stock left by 2024. expanding PSL the proportion of PSL households accommodation more expensive to This is generally due to welfare reform East Renfrewshire and East who are open homeless cases, provide than local authority owned rendering PSL financially unviable. Dunbartonshire, South Lanarkshire or total households in temporary temporary stock, causing a general South Ayrshire, Highland and Aberdeen and Edinburgh have different positions accommodation in Edinburgh, are shift away from PSL and other leased are taking a more gradual approach, to other authorities surveyed. The first lacking. The RRTP doesn’t say how models. where it is not clearly stated that PSL three don’t set targets to reduce any long-term residency in a form of will be entirely ended, but that it will be form of temporary accommodation temporary accommodation fits with phased out. in RRTPs, or mention plans for PSL the rapid rehousing vision, or consider Overview specifically. East Renfrewshire reports ways of converting these properties to a plan to increase PSL, whereby the permanent tenancies. Prevalence of PSL Authorities currently using Council approached private landlords 20 of 32 authorities reported use of PSL but aiming to reduce or offering 100% of LHA. This was “Other” temporary accommodation in eliminate unsuccessful, as landlords were able the last full reporting year, though this Aberdeen, Falkirk, Fife, Highland, to obtain higher rents on the does not mean that all of this provision Moray, Renfrewshire, South open market. is PSL. It may be possible to conclude Ayrshire, Stirling from this that at least 12 authorities don’t use PSL, though more seem to Authorities using PSL, with plans have done so in the past. Four RRTPs South Ayrshire intends to use PSL as to retain or increase provision state the authority moved away from the basis for a Council-run SLA (as East Dunbartonshire, East PSL as it became unaffordable under Perth and Kinross did some years Renfrewshire, Edinburgh, South welfare reform. ago), offering permanent rather than Lanarkshire temporary tenancies, but retaining Of 17 authorities surveyed which the features landlords like. Perth do use PSL, eight aim to reduce or and Kinross highlight moving away eliminate it during the RRTP period. from PSL in this manner saved the Four others are significantly reducing Council £300,000 a year. Highland temporary self-contained stock, has a broader plan to move towards implying PSL will also be reduced. maximal Council-owned temporary accommodation, so wants to reduce its dependency on leasing. Aberdeen 72 Rapid Rehousing Transition Plans (RRTPs): a Scottish overview Chapter 3. Transforming temporary accommodation 73

Practice examples and ideas worth sharing replace” i.e. procure new temporary Authorities maintaining properties. Whilst this meets the status quo for temporary self- aim of rotating temporary stock, it South Ayrshire Council’s plans for an in-house SLA reposition the contained stock assumes no reduction in the need PRS as a settled housing option, as opposed to a source of temporary East Ayrshire, East Renfrewshire, for temporary accommodation as accommodation. An SLA allows the Council to discharge homeless Fife, Orkney, South Lanarkshire rapid rehousing proceeds, as well duty but also improve standards and affordability for tenants. It offers an as bringing additional cost to the opportunity for private landlords who already work with the Council to exercise.54 stay engaged in the provision of homes for homeless households, thereby Five authorities plan to increase self- retaining those properties. The Council has consulted on their plans with contained temporary properties, in All stock transfer authorities aim to landlords, service users and wider services, and intends for a gradual move order to eliminate or reduce B&B use, hand back RSL owned stock to allow from PSL to SLA. whilst ensuring sufficient capacity. the same outcome, from 45% in Midlothian wishes to procure 35 Glasgow to 9% in Inverclyde. These new properties, Edinburgh 155 and authorities do not intend to replace Highland 150. East Dunbartonshire properties, on our reading. Eilean aims to expand its supply of properties Siar, Scottish Borders, Dumfries and in the early years of the RRTP, before Galloway and Inverclyde make plans Self-contained, Borders and South Ayrshire), though reducing them again, planning to have to work with RSLs to identify where dispersed temporary all aim to reduce stock. the same overall supply by the end of a temporary property is going well year five. and offer conversion, without the accommodation household having to move again. Authorities aiming to reduce What was expected of local temporary self-contained stock Authorities increasing Whilst Glasgow aims to hand back authorities in the toolkit? Aberdeen, Aberdeenshire, Angus, temporary self-contained stock almost two thirds of its dispersed Whilst self-contained accommodation Argyll and Bute, Dumfries and Clackmannanshire, East temporary properties to RSLs, it’s within a community is the optimum Galloway, Dundee, East Lothian, Dunbartonshire, Edinburgh, not clear in the RRTP whether the form of temporary accommodation Eilean Siar, Falkirk, Glasgow, Highland, Midlothian temporary household would be where homelessness is unavoidable, Inverclyde, Moray, North offered an SST, or the property would HARSAG nevertheless aims for a Ayrshire, North Lanarkshire, be converted to a mainstream let once reduction in capacity and length of Perth and Kinross, Renfrewshire, Conversion of temporary that household moved out. Argyll stay across all types of temporary Scottish Borders, Shetland, properties to SSTs and Bute has a very low proportion of accommodation. South Ayrshire, Stirling, West 80% of stock owning authorities plan, RSL-owned stock used for temporary Dunbartonshire, West Lothian some with numbers attached and accommodation, with most leased In particular, HARSAG made a others more general, to convert some from PRS landlords, as such has lower recommendation that households self-contained temporary occupancies potential for “flipping”. However the settled in temporary self-contained Five authorities make no plans to to SSTs, where this meets household Council does have plans to use RSL- housing owned by a social landlord reduce (or expand) capacity of self- wishes. The exceptions are East owned properties for Housing First should, where possible, be offered the contained, temporary properties. East Renfrewshire, Highland, East Ayrshire, and convert those to SSTs. opportunity to take on a full tenancy Renfrewshire suggests there’s little Falkirk and Edinburgh. without moving. room for change based on limitations Other plans for temporary self- in move-on; the rest intend to plan A small number of authorities commit contained properties reductions only when activities to figures in this area, such as Fife, West Other actions found in RRTPs in Overview increase supply have started to pay off, Dunbartonshire, East Lothian, South relation to self-contained stock include and demand has reduced accordingly. Lanarkshire, Dundee and Midlothian. increasing the number of shared Plans for future quantity of East Ayrshire and Clackmannanshire Respectively, they aim to convert 500, temporary tenancies (Aberdeenshire temporary self-contained in particular predict a rise in demand 300, 100, 100, 100 and 15 properties and Highland) and handing back properties for temporary accommodation in over five years. However, only East leased properties, as these are more Just under three quarters of authorities coming years, so are reluctant Lothian and West Dunbartonshire costly than Council-owned stock have plans to reduce their dispersed to plan reductions. (from year four onwards) describes (West Lothian, Highland, Renfrewshire, temporary accommodation stock this as a way of increasing settled Angus, Shetland). Perth and Kinross over the RRTP period, with reductions supply and reducing temporary stock. has a block of temporary flats which from 76% in Perth and Kinross to 3% in The majority aim instead to “flip and it recognises are often unpopular, Falkirk. Five authorities do not provide figures for reductions (Aberdeen and Aberdeenshire, Inverclyde, Scottish 54 Some authorities requested significant RRTP funding to for replacing “flipped” properties, especially in respect of furniture. 74 Rapid Rehousing Transition Plans (RRTPs): a Scottish overview Chapter 3. Transforming temporary accommodation 75

problematic and stigmatised. It For Edinburgh and Highland, a Practice examples and ideas worth sharing has made plans to return the block supplementary reason for recruiting to mainstream letting following additional dispersed properties is to a regeneration programme. This reduce nightly purchase of rooms East Lothian Council acknowledges that by increasing temporary accounts for most of its significant or “short-term lets” from the PRS. In accommodation by 45% since 2012 to meet statutory duties, a significant further reduction of temporary Highland this tends to be for single pool of permanent housing options has thereby been removed from the provision. people, whereas in Edinburgh this can system, contributing to backlog. The Council assesses that continuing be for all household types. Families to do this places them at risk of breaching the UAO. They have decided East Lothian has plans not only to were previously placed in more readily to complete a whole system review to refocus resources to deal with reduce stock, but also to focus on available nightly purchase flats to immediate flow and throughput. making voids and allocation processes avoid B&B, whilst awaiting a standard more efficient. Fife and Inverclyde have temporary flat. But stays in “short- This includes implementing a rolling programme to re-designate 100 identified that temporary properties term lets” can now be as long as stays temporary properties as permanent tenancies over five years, starting with are disproportionately located in in standard flats, as move-on has households who have been waiting the longest. It also takes in a review of certain parts of the authority, which slowed. The Council will commission void and furnishings processes with a focus on prioritising turnaround, with does not match the area of origin temporary properties from the PRS plans to recruit a Homelessness Voids Officer with a rapid rehousing remit. of homeless applicants. They aim to from 2020 to move away from nightly rebalance this so that households purchase, and merge this with the The Council also wants to respond to customer feedback that loneliness with education, health and support PSL contract. It isn’t clear from our and isolation is compounded in furnished temporary tenancies by networks in certain areas can avoid reading whether these two options will requirements to place a household’s own furniture in storage, and limit mandatory relocation if they continue to have distinct features. personal belongings in the home. The Council would like to provide become homeless. furniture only when needed, enabling families to be surrounded by their Both authorities conclude that own possessions, if they have these. Authorities increasing temporary increasing Council-owned temporary self-contained stock properties will be cheaper over five Edinburgh, Highland, Midlothian and years, with better outcomes for Clackmannanshire are the general households, than continuing to rely on exceptions in this section, with current options. Clackmannanshire’s different priorities to other areas given main aim in increasing self-contained Supported In general, the thrust of HARSAG their use, and in the first three cases, supply is to avoid having to send accommodation recommendations (supported by reliance on, B&B. Clackmannanshire, households out of area, to B&B-style Aye We Can feedback) on temporary Highland and Midlothian aim to options in Stirling. Its RRTP doesn’t accommodation is that the “focus and increase Council-owned temporary reflect on costs. What was expected of local default”55 should be self-contained, self-contained units and remove B&B. authorities in the toolkit? dispersed properties with floating Highland also wishes to reduce PSL. RRTP guidance asks authorities to support if needed, rather than describe and quantify their current congregate supported units. Edinburgh on the other hand seeks supported temporary provision, and to increase PSL and Council-owned to give details of any plans to refine However, HARSAG also made clear temporary flats, whilst reducing B&B its capacity (alongside a scaling-up of they were not recommending a “one by only 13%. The Council modelled Housing First). Descriptions are needed size fits all system of single household three scenarios in which mainstream in this case as what is understood by housing,” and judged temporary temporary flats are increased, “supported accommodation” across supported accommodation, including maintained or decreased. They Scotland can be inconsistent, and of congregate type, may continue to concluded that increasing is the only provision and models vary greatly. be appropriate “due to reason of need way to ensure demand can be met or choice”. whilst avoiding increased B&B use, Authorities were also asked to quantify especially increased breaches of the homeless households in their area who There is an overall move to widen current UAO. might require longer-term, specialist temporary (as well as permanent) supported accommodation, and, in options, in order to better meet need collaboration with H&SCPs, consider and choice and ensure that temporary under whose departmental jurisdiction accommodation is “a stepping stone, that accommodation should fall rather than a hindrance, to settled in future. mainstream accommodation in the future”.

55 https://www.gov.scot/publications/homelessness-and-rough-sleeping-action-group-interim-report/ 76 Rapid Rehousing Transition Plans (RRTPs): a Scottish overview Chapter 3. Transforming temporary accommodation 77 Chart 7

Congregate supported temporary Not mentioned in RRTP guidance, Chart 7. SupportedChart 7 temporary beds against total temporary supply, by local authority accommodation should be small- but our view is... 0.6 scale and trauma informed, with highly Authorities were not asked to describe trained staff, designed around meeting how supported accommodation is 0.6 specific needs. This means that currently allocated and what choice 0.5 large-scale, generic hostels have no households have, though some have 0.5 place in Scotland’s future landscape. helpfully done so. 0.4 But there is a place for options 0.4 “specifically designed and resourced Grasping how far supported 0.3 to provide crisis intervention, accommodation is being used only enhanced assessment and therapeutic for those with support needs, which 0.3 intervention”, including short-stay support needs residents have, and 0.2 emergency models. whether people with support needs 0.2 have choices around accommodation 0.1 The change from the current type or not, is harder to do without

Supported units : total ratio 0.1 landscape suggests that only this detail. 0.0 households with assessed support

Supported units : total ratio Fife needs should be placed in supported 0.0 Angus Moray Dundee Stirling Falkirk Orkney Glasgow Aberdeen Highland Shetland temporary accommodation, and Overview Eilean Siar InverclydeMidlothian Edinburgh Fife SCOTLAND Argyll & ButeEast Ayrshire West LothianEast Lothian FalkirkRenfrewshire Angus Moray that there should always be a clear PerthDundee & Kinross North AyrshireStirling South Ayrshire Orkney Aberdeenshire Glasgow Aberdeen ScottishHighland BordersShetland Eilean Siar InverclydeMidlothianSouth LanarkshireNorth LanarkshireEast RenfrewshireEdinburgh rationale for these placements. Proportion of supported SCOTLAND East LothianClackmannanshire Dumfries &Argyll Galloway & ButeEast Ayrshire RenfrewshireWest DunbartonshireEast Dunbartonshire West Lothian Perth & Kinross North Ayrshire South Ayrshire Aberdeenshire There is also a recommendation accommodation by authority Scottish Borders South LanarkshireNorth LanarkshireEast Renfrewshire Clackmannanshire that if support is required, it should The proportion of supported Dumfries & Galloway West DunbartonshireEast Dunbartonshire be in place from the very beginning accommodation by authority in of a household’s journey, reducing relation to total available temporary transitions and putting focus on good accommodation and/or total quality, detailed homelessness and households assessed as having support support assessments. needs varies significantly across Scotland. This ranges from more than HARSAG separated longer-term one supported space for every two Chart 8. SupportedChart 8 temporary beds against homeless households assessed supported accommodation from spaces in temporary accommodation with support needs, by local authority temporary supported provision, (Dundee, Perth and Kinross), to Chart 8 acknowledging that Housing First one supported space in every 14 in may not suit a small number of Scottish Borders, to no supported 1.2 people with complex needs. This spaces at all in Clackmannanshire and may refer to people whose needs Shetland. The Scottish average is one 1.2 1.0 are simply too high for Housing supported bed in every four temporary First, or those who don’t choose to accommodation beds as shown in 1.0 try it. But it considered that in cases Chart 7, overleaf. 0.8 where needs or choice for supported 0.8 accommodation persists, the In relation to homeless households 0.6 supported accommodation meeting assessed as having a need for support those requirements should not fall annually, Midlothian is the only authority 0.6 0.4 under the definition of “temporary with more supported beds than it has accommodation”. households assessed with support 0.4 needs. At the other end of the spectrum, 0.2 Scottish Borders has one supported total supported spaces ratio Households with support needs : 0.2

space for every 35 households assessed total supported spaces ratio 0.0

with a support need. The Scottish Households with support needs : Fife 0.0 Angus MorayFalkirk average is one supported bed for Orkney Stirling Dundee Glasgow AberdeenHighland Shetland every four households assessed with MidlothianEilean Siar Edinburgh Fife Inverclyde Argyll & Bute SCOTLAND West EastLothian Lothian East Ayrshire Renfrewshire Angus MorayFalkirk a support need, as shown in Chart 8. Perth & KinrossOrkney Stirling Dundee North Ayrshire AberdeenshireSouth Ayrshire Glasgow AberdeenHighland Scottish BordersShetland MidlothianEilean Siar Edinburgh South Lanarkshire North Lanarkshire Inverclyde East Renfrewshire SCOTLAND East Lothian Clackmannanshire Argyll & ButeEast Dunbartonshire Dumfries & Galloway West LothianWestRenfrewshire Dunbartonshire East Ayrshire Perth & Kinross North Ayrshire AberdeenshireSouth Ayrshire Scottish Borders South Lanarkshire North Lanarkshire East RenfrewshireClackmannanshire East Dunbartonshire Dumfries & Galloway West Dunbartonshire 78 Rapid Rehousing Transition Plans (RRTPs): a Scottish overview Chapter 3. Transforming temporary accommodation 79

Some authorities may therefore assess style, with shared facilities, and the needs are often living in B&B. Both Authorities reducing supported an over-provision and others an under- remainder self-contained resettlement authorities operate in pressured accommodation provision of supported temporary properties. housing markets, which may play a By far the largest proportional accommodation. Given the significant role in mismatches. Fife highlights planned reductions in supported variation found, approaches to reduce Some authorities already have awareness that its supported options accommodation are in the three and increase this accommodation supported provision which is largely do not necessarily meet the needs of cities of Stirling, Glasgow and Dundee type may both have their merits. specialist in nature, i.e. provided to its homeless applicants, and sets an (reductions of 57%-54% of supported meet the needs of specific groups action to undertake research to better stock). All of these currently have Definition of supported such as young people, people with understand these. generous proportion of supported accommodation substance issues or women fleeing spaces within their temporary stock Supported accommodation, and what abuse. West Lothian, Scottish Borders, West Dunbartonshire engaged compared to much of Scotland, and authorities understand by this, looks East Lothian, Orkney and East consultants in 2017 to assist them each RRTP provides some evidence very different across Scotland. South Renfrewshire for example have little to analyse this, acknowledging that of why hostels don’t work for all. Ayrshire describes three hostels, but or no generic supported provision for the number of transitions between Perth and Kinross, like Glasgow, still they are blocks of self-contained flats homeless people. Other authorities, accommodations could be high in has above average current levels with no communal facilities, with such as Perth and Kinross, Edinburgh, a traditional “tenancy ready” model. of supported beds, despite closing onsite support. Stirling has six units of Midlothian, North Ayrshire, West They set a clear aim in future to hostels in the past year. supported accommodation or hostels, Dunbartonshire, Inverclyde, Argyll and ensure households receive the option but only one of those (which has seven Bute and Eilean Siar appear to have a which is “right first time”. Dundee will rooms) is not self-contained. All of majority of provision classed largely ensure every occupant of temporary Authorities planning to Angus, Scottish Borders, Renfrewshire according to the level of support accommodation has a support reduce supported temporary and East Renfrewshire’s supported provided (i.e. high/medium/low). assessment which will determine the accommodation provision is in self-contained properties. level of support needed, and where Aberdeen, Aberdeenshire, Angus, Allocation of supported this should come from. Dumfries and Galloway, Dundee, South Lanarkshire reports the majority accommodation Falkirk, Glasgow, Moray, North of its supported accommodation is The way in which accommodation is Plans for future quantity and type Ayrshire, Perth and Kinross, self-contained properties in blocks accessed and “matched” to household of supported accommodation Renfrewshire, Stirling of four to eight, with on-site support need and/or choice is not explained In relation to future plans, all conforming to a PIE; something in most RRTPs. West Lothian helpfully authorities are reviewing supported which is only a future aim in many lays out their “assessment centre” provision in some way or another. Nine other authorities also plan areas. In other authorities, some model which provides emergency Two thirds make specific reference reductions, at smaller levels, aiming supported accommodation has ensuite accommodation with support for to ensuring future accommodation to close between 36% (Angus) to bathrooms, but kitchens and living families and single people where adheres to PIE. Others, such as 3% (Dumfries and Galloway) of spaces shared between five or six decisions can be made on the best West Lothian and Aberdeenshire, current supported stock. Angus residents (Aberdeenshire, Eilean Siar, option. South Lanarkshire provides are reviewing shared supported in notes its complex needs supported Argyll and Bute). “First Stop”, an emergency triage light of HARSAG recommendations accommodation has high refusal service in each of its four local areas, on unsuitable accommodation. The and void rates, despite a high Cities are more likely to have larger, to ensure appropriate placements former believes the shared aspects overall demand for temporary generic supported accommodation, according to identified needs, with a of their hostel model may breach an accommodation. It concludes that and a lower provision of ensuite clear intention to reduce number of extended UAO and cites the model’s concentrating households with facilities, though Aberdeen has moves in temporary accommodation. high costs in comparison to dispersed complex needs in one block may not less of this provision than other East Dunbartonshire describes a accommodation with intensive be the best way to address their needs. cities. Glasgow does not describe similar service. visiting support. its provision in detail. Edinburgh North Ayrshire, seeking a 26% has over 200 units of supported Whilst South Lanarkshire’s RRTP 40% of RRTPs set plans to reduce reduction in supported temporary accommodation within buildings with portrays confidence that, for the overall supply of temporary supported accommodation, triangulated shared facilities, either flats of three- most part, households receive the accommodation, with fairly large various data sets to determine the five people with shared bathroom, right accommodation type for their reductions planned in some areas. A effectiveness of its hostel provision, kitchen and living areas, or larger needs, West Lothian concludes further quarter of authorities make including consultation with residents, buildings with shared facilities on many inappropriate placements and no plans to either reduce or increase before deciding to decommission its each level. Perth and Kinross has mismatches, especially for those with their supply. Conversely a third of Green Street hostel. The chart below, two larger hostels of more generic higher needs. Edinburgh also finds that RRTPS set plans to increase supported detailing resident support needs, tells type, with shared facilities. Dundee whilst a significant number of residents accommodation, with a mix between a similar story to that of Angus. has a high proportion of supported of supported accommodation have minor and substantial increases. accommodation, with half being hostel no or low needs, people with complex 80 Rapid Rehousing Transition Plans (RRTPs): a Scottish overview Chapter 3. Transforming temporary accommodation 81

Table 3: Support needs of residents in North Ayrshire’s hostels A handful of RRTPs importantly Authorities planning to refer to client choice on the nature increase supported temporary of accommodation and the rapidity Complex needs Green street % Ardrossan % Victoria House % accommodation of their journey time, and a small Drug / Alcohol 78% 74% 65% Clackmannanshire, East Lothian, number consulted current or former misuse Edinburgh, Eilean Siar, Inverclyde, residents of temporary supported Mental Health 91% 84% 96% Midlothian, North Lanarkshire, accommodation for their views. In issues Orkney, South Ayrshire, West some cases, such as in North Ayrshire’s Dunbartonshire detailed and rounded review of its Offending 78% 68% 73% hostel provision (see practice example behaviour at end of chapter), service user Challenging 48% 21% 27% West Dunbartonshire and Inverclyde, feedback overwhelmingly supported behaviour both areas with high rates of the rapid rehousing vision, highlighting Tenancy ready 35% 47% 38% multiple disadvantage, undertook a preference for self-contained Linked with 96% 89% 96% extensive reviews of their temporary provision and a quicker route to multiple services accommodation provision prior to permanence. HARSAG. These concluded a need Care leaver 4% 0% 4% to remodel hostels towards “interim” Other RRTPs offer alternative (Throughcare) or “core and cluster” supported voices. Dumfries and Galloway tenancies. This is designed for those include a valuable reflection from with “medium” support needs who a former service user of supported may not qualify for Housing First, and accommodation in this regard, “I who do not need long-term specialist needed that time to get a grip of Some of the other authorities supported housing, but who do not everything; I could’ve done with longer reducing supported beds (Aberdeen Authorities planning to manage tenancies well and could if I’m honest.” Similarly, in service and Aberdeenshire, Renfrewshire, maintain supported temporary benefit from in-house support over user consultations, South Lanarkshire Moray and Angus) already have a accommodation a set period. reports that some households fairly low provision of supported Argyll and Bute, East Ayrshire, experienced their time in temporary accommodation compared to many East Dunbartonshire, East New provision of “interim” supported accommodation as a crisis, whereas authorities in Scotland. It is possibly Renfrewshire, Fife, Highland, accommodation largely accounts for others it represented respite this lack of reliance on supported Scottish Borders, South for West Dunbartonshire’s 27% from one. accommodation and, in the case of Lanarkshire, West Lothian increase in the tenure. Though this Aberdeenshire and Renfrewshire, local reads as permanent housing with Renfrewshire held focus groups successful Housing First projects, more intensive visiting support, the with current and former service which allows these authorities to make Authorities increasing supported term “interim” suggests it is a sort of users, including those in supported what may be seen as bold plans in accommodation temporary accommodation. As noted accommodation. They concluded other areas. Ten authorities are seeking to increase at the start of this chapter, this may be that the amount of time a person temporary supported accommodation. a mis-reading. requires in supported accommodation Authorities retaining supported In the case of East Lothian, South (if any) depends on the individual, as accommodation Ayrshire and Eilean Siar, increases Client choice and supported “different people have different needs.” Nine authorities make no clear plans are for particular, specialist types of accommodation Whilst they agreed it was important to reduce or increase the number accommodation which the authority It’s our view that, as a “disruptive” that no-one who accessed supported of supported accommodation does not have at present and has innovation, acceptance of Housing accommodation then “got stuck in the units, though all plan to review their defined a need for: generally care First principles for one group of service,” they also felt residents should provision, so changes in numbers leavers, women with complex people naturally seems to lead have a degree of control over when could occur. Half of these areas needs, young people or rough to a questioning of alternative they can move on. already have lower than average sleepers with complex needs/chaotic rehousing routes for other cohorts. supported stock, and may be reluctant lifestyles. Of these, East Lothian has a This in itself could lead to any The question of choice to reduce further. Others, such as particularly small current stock, and specifically designated temporary over which temporary Fife, have been clear on the need to Clackmannanshire none. accommodation-based support accommodation pathway might be first evidence the nature and extent of being called into question. Authorities available to a homeless person with client support needs, before being able respond to this in different ways. support needs isn’t really addressed to project extent and nature of future in any RRTP. Whilst there is broad supported supply. agreement that those with no or low needs for support should not be in 82 Rapid Rehousing Transition Plans (RRTPs): a Scottish overview Chapter 3. Transforming temporary accommodation 83

supported accommodation, the choice and therefore will “choose” the “least All other authorities assess this cohort Seven other authorities (East which could be offered to people worst” option from the current system. under 10%, with East Dunbartonshire Lothian, Dumfries and Galloway, with support needs who don’t qualify and Midlothian the next highest, at 7%. Inverclyde, North Ayrshire, East for Housing First, is not explored (i.e. These questions could form important But it is interesting that the respective Dunbartonshire, Highland and South the choice between a temporary parts of future discussions on neighbouring, more deprived Ayrshire) plan similar reviews. Most tenancy with visiting support, or the role of supported temporary authorities of West Dunbartonshire of these have detailed actions in accommodation-based support). accommodation, and underline the and West Lothian record under 1% their RRTP to evidence need for need for further research on this area. as “beyond” Housing First. Five other residential accommodation to H&SC Modelling supported authorities, some with fairly large commissioners, identify opportunities accommodation pathways Authorities in high pressure areas caseloads, assess no households within the SHIP to meet this need In a similar vein, RRTPs modelling Authorities with severe backlogs and in this group (North Lanarkshire, accommodation-wise and develop different accommodation pathways high B&B use (mainly Lothians and Aberdeenshire, East Ayrshire, Scottish planning frameworks to ensure according to the support needs groups Highland) place less focus on reducing Borders, Orkney). specialist housing needs are assessed set by the Scottish Government have supported provision, given priorities and addressed by housing and care taken different approaches to rapid for reduction lie elsewhere. Edinburgh Glasgow assesses that just 1% of planning funding programmes. rehousing of those with “medium” and Midlothian seek to expand generic households require this option, needs. supported provision. Midlothian though it has 125 specialist supported To facilitate this and other joint already has the highest proportion beds, with average stays of seven working, Highland for example has Whilst Glasgow, North Ayrshire of supported accommodation in years. Despite significant reductions more closely aligned its homelessness and Stirling have a self-contained Scotland, but wants to increase this by in supported stock the RRTP sets no strategy with the Strategic temporary accommodation pathway 21%. The RRTP does not describe the plans to reduce this provision, though Commissioning Group. In other areas, for those with no/low needs and a type of provision, or how this differs it would appear to be over-provision, this appears to be more at the level of supported accommodation pathway from what is already available. on their figures. Glasgow does plan initial discussions with the H&SCP. for those with medium needs, they for this provision to be moved under aim for equality of journey time across Edinburgh requested RRTP funding adult H&SC services, as opposed to all needs groups. In contrast, West to convert B&Bs to supported homelessness, as suggested within Dunbartonshire, North Lanarkshire accommodation, based not on RRTP guidance. and Inverclyde have a longer pathway assessed needs, but as a better for medium needs clients than those alternative to B&B. The Council also with no or low needs. In fact, total proposes to site a support/housing journey time for this group appears manager in every B&B (instead of Practice examples and ideas worth sharing longer under rapid rehousing than it the current property manager), is currently. moving towards a model of staffed, low level supported unit, rather than Dumfries and Galloway Council analysed its rough sleeping statistics It’s our view that the role of client unsupported private B&B. The Council as well as its provision of out of hours advice and accommodation, choice within both of the approaches is also recommissioning supported concluding there is a need for improved emergency supported above would be worthy of further accommodation, and hoping to accommodation, especially for single men with complex needs presenting exploration. expand capacity. in the Stranraer and Dumfries areas. This is the demographic which often reports sleeping rough, may be refused access to existing provision and Limits of client choice in Specialist residential supported tends to lose contact with services. current systems accommodation As important as it is not to Authorities assessed that between 0% The Council plans to develop a short-term direct access option specifically casually write off temporary to 20% of their current households to house individuals directly from the street or prison. This will be supported options within the shift to require long-term specialist developed in partnership with H&SC, Criminal Justice, NHS and RSLs. The rapid rehousing, it is equally important accommodation.56 It does seem resource will provide a PIE in which people who have experienced complex to acknowledge the limitations of there are differences in approach to trauma receive short-term assistance, advice and psychological support service user perspectives in systems assessment here. As noted above, before moving to more appropriate housing provision based on where few choices exist. In some Renfrewshire’s assessment (20%) individual needs. areas, people may have insufficient may refer to people requiring short- exposure to, or lack confidence term supported accommodation as in, other options (especially newer opposed to long-term residential. programmes such as Housing First),

56 Edinburgh, Clackmannanshire, Moray, Argyll and Bute and Shetland don’t provide a figure for this in the body of their RRTP. 84 Rapid Rehousing Transition Plans (RRTPs): a Scottish overview Chapter 3. Transforming temporary accommodation 85

Aberdeen City Council has reviewed and remodelled supported provision North Ayrshire Council conducted a comprehensive review of the substantially in recent years and has further plans to do so. It considered effectiveness of its hostel provision. This entailed interrogation of move-on results from surveys completed with service users within its plans, which statistics, incidents reported to Police Scotland, refusal statistics, resident show most customers want their own tenancy with support, as opposed support needs and service user views. to supported temporary accommodation. The Council closed a traditional hostel and is about to close a second, based on these communal “care The review determined that one hostel had the highest level of refusals, home style” buildings not being fit for purpose. All but one of the remaining a higher incidence of crime reports, a very high concentration of supported units have been remodelled with self-contained facilities, though residents with complex support needs and 7% positive move-on rate to the Council is now also reviewing these, with an aim to move entirely away permanent housing over a one year period. Despite the standards of both from congregate blocks. accommodation and support being acknowledged as high, consultation with hostel residents revealed most households would prefer a mainstream Young person "foyer" services were also remodelled in a recent re- property. Other useful feedback is shown below. tendering exercise, focusing on shortening timescales to six months, in line with ambitions to provide short, focused support before clients move to permanent accommodation and avoid institutionalisation. There is also interest in exploring community-based accommodation for young people i.e. supported lodgings. Use of supported dispersed properties where a "My expectations • Concerns regarding the quality of homelessness case is closed under “interim regulations” (which takes it out of a permanent offers and the distance from support of HL1 live homelessness statistics) will be ended, with occupants offered offer of housing networks an SST, with outreach support for as long as needed. is low." • View that hostels "propped people The Council recognises some supported accommodation must continue up" as opposed to preparing them to be available for those who need and want it, whilst ensuring it’s the for independent living right type of model (small scale core and cluster) to prepare people for tenancies in future. Aberdeen is re-modelling types of support on offer "I would prefer • Concerns regarding very vulnerable in this direction. For example, the Council set up a “test of change” pilot to have my people living with people who could for institutionalised clients who were unwilling to try their own tenancy. own dispersed exploit them They remodelled a six-flatted block with more limited support hours to accommodation move away from communal living, but without mandating an independent than live in • There were barriers to accessing dispersed tenancy. a hostel." training and employment opportunities and limited support Lastly the Council is keen to make supported accommodation accessible as a form of “respite” to tenants with difficulties, providing short term, intensive • There was no motivation to prepare support while retaining the tenancy. This approach could decrease for a tenancy by way of furniture temporary accommodation demand by reducing numbers of tenants who provision or budgeting terminate or abandon when they experience difficulties, opting for the “homeless route”.

The Council recognised the hostel had been used for years to accommodate extremely vulnerable people because the type of permanent accommodation or type of support provision they needed simply wasn’t available. Concurrently, and as highlighted in the previous chapter, the Council has been running a small Housing First pilot since 2016, following a service review which recommended a change in approach for people with complex needs.

The successful outcomes of the Housing First pilot compared with the poor outcomes and unpopularity of the hostel allowed the Council to clearly evidence a case that support provision allied with routine social housing could be made available, and could be effective for this group. This places RRTP plans to decommission one hostel and reinvest the associated savings into support services for upscaling Housing First on a strong footing. 86 Rapid Rehousing Transition Plans (RRTPs): a Scottish overview Chapter 3. Transforming temporary accommodation 87

area and therefore remain linked to HARSAG was clear that temporary Renfrewshire Council does not use hostels, but has five supported education, peers etc could have real accommodation should be affordable accommodation projects providing self-contained core and cluster benefit in a rural context, whilst the for those in employment and with models for defined groups (young people, people with complex or City is exploring all options which no HB entitlement, and not act as a specialist mental health needs). Renfrewshire aims to reduce supported move away from institutionalised disincentive to entering work or taking accommodation by around a third, based on a quicker rehousing process accommodation forms. Scottish up accommodation (through fear of and upscaling of Housing First, which it has operated for over five years. Borders, which doesn’t use B&B at accruing high debts). Renfrewshire consulted extensively with service users who use or have present, is also interested in exploring used supported accommodation to inform its plans. The approach it is hosting for young people, from a Overview taking is respectful of client choice and positive outcomes from current similar perspective to Aberdeenshire, There’s great variety in rents and support providers, whilst gradually enhancing the proportion of settled as a better option to keep people in a service charges by authority and by housing quickly offered to those who want it. community within a rural area. type of temporary accommodation. For instance, a resident of a one bedroom Council-owned temporary Practice examples and ideas property in East Lothian pays the same City of Edinburgh Council has commissioned a “rapid access worth sharing rent as a Council tenant of the same accommodation” model for rough sleepers, including for those with no size property (around £63 weekly), with recourse to assistance (either through homelessness duty or immigration a £15 weekly service charge towards status), following a successful pilot set up with HARSAG “winter actions” City of Edinburgh Council utilities, Council Tax etc, whereas in monies. This approach allows rough sleepers identified by street outreach acknowledges that supported Edinburgh the average weekly charge to be immediately offered and taken to accommodation without having lodgings schemes are tried, for the same property type is £386. to attend Council offices. Intensive support is provided from a link tested and well-established in B&B charges range from £400 weekly worker (street outreach seconded to Council) and usual rules within the England, and see this form of in Edinburgh to £82 weekly in East accommodation (which may be within a B&B or hostel premises) alternative accommodation as Lothian. Supported accommodation are relaxed. having a potential role for young charges go from £565 weekly in people who are homeless in Edinburgh, to £140 weekly in The new approach of securing immediate accommodation with intensive Edinburgh. The Council has West Lothian. support has been successful in assisting individuals who have been unable requested funding for a feasibility to make use of standard services to secure documents and access benefits, study into setting up and Nine authorities appear to already support and housing options. The Council is now mainstreaming the managing a community hosting operate a charging policy which provision and adding a women only resource, following feedback that scheme with the aim to house does not use “full cost recovery” i.e. mixed accommodation presented a barrier for some female rough sleepers. up to 100 young people per does not pass on the full costs of the night by 2023. This option could accommodation to the household. In provide an important alternative South Lanarkshire’s case, government in a city with heavy reliance funding was awarded in 2018 to work on institutionalised forms of up models to improve temporary temporary accommodation for accommodation affordability through Alternative forms planned provision for non-institutional single people and couples. stepped reductions in rent. of temporary emergency accommodation in RRTPs. accommodation Overview Authorities operating a non Only four RRTPs set out plans to “full cost recovery” model in What was expected of local investigate alternative temporary temporary accommodation authorities in the toolkit? accommodation models, generally Temporary Aberdeen, Argyll and Bute, HARSAG acknowledged an ongoing for younger people: Edinburgh, as accommodation charges Dumfries and Galloway, East need for emergency accommodation, the Council with the highest use of Lothian, Moray, Perth and but recommended every effort should unsuitable temporary accommodation, Kinross, Shetland, South be made to expand ‘non-institutional’ Aberdeen and Aberdeenshire, which What was expected of local Lanarkshire, West Lothian options rather than rely on B&Bs both see particular opportunities authorities in the toolkit? and hostels. HARSAG commissioned in community-based solutions and Authorities were asked to state weekly research on community-based who use B&B currently, and Scottish charges for each form of temporary Eight further authorities are working solutions, such as hosting and Borders. accommodation at present and how on developing a fairer charging supportive landlord models. these would look in five years’ time. policy or approach. For instance, Authorities were not specifically Aberdeenshire assesses that being Fife sets principles which include asked to comment on existing or able to keep a young person in a local 88 Rapid Rehousing Transition Plans (RRTPs): a Scottish overview Chapter 3. Transforming temporary accommodation 89

“those in TA should not be financially Others refer to working with COSLA on disadvantaged and should have equal the issue. One (Aberdeenshire) hopes In 2018, Perth and Kinross Council removed service charges from self- opportunity to work and/or study in to address this by moving away from contained and hostel accommodation to improve affordability. This was made a normal housing setting” and “no using expensive forms of temporary possible by the significant investment the Council made into homelessness household should be in a position accommodation and by introducing services since 2013 and the subsequent savings they have realised. of debt due to accessing temporary rapid rehousing. accommodation”. However, authorities introducing a fairer charging structure are not able Aberdeen City Council recognises the needs of households in work, Authorities working on a non to do so in non-Council owned stock, and that high costs of temporary accommodation can disincentivise this. “full cost recovery” model in introducing discrepancies between In 2012, the Council converted a janitor’s house specifically to offer a temporary accommodation RSL or PRS owned self-contained cheaper accommodation for people in work and saving for a deposit. They East Dunbartonshire, Falkirk, Fife, accommodation, or between Council expanded shared options for this group to include a small former hostel Highland, Orkney, Renfrewshire, and non-Council owned supported and HMOs. Scottish Borders, West accommodation. One of the only Dunbartonshire authorities to pick this up is Moray (see In 2016, the Council reviewed costs of temporary dispersed stock and below). Ten further RRTPs make no reduced service charges for occupants of its own temporary by £45 week. mention of plans to review temporary In line with HARSAG recommendations they aim to further reduce this, rents or charges. and are clear the rapid rehousing model must ensure people are not put off continuing or seeking to work or complete education by being in a homeless position. Practice examples and ideas worth sharing

Moray Council undertook a full review of temporary accommodation rents, introducing a charging policy four years ago, which goes beyond that of most other authorities. Its EIA highlights how this reduces disadvantage to homeless households in work, by ensuring temporary accommodation is affordable for anyone who needs it.

The policy operates in what can be described as a dualistic manner. All tenants are charged LHA plus a £45 management fee, reflective of the accommodation’s cost. However the Council only seeks to recover costs it can reasonably be expected to collect. This means tenants are charged, for example, a one bed rent of £137 weekly, but those on partial or no HB are only asked to contribute £61, in line with Council rents.

Since introducing the policy, the number of tenants leaving accommodation in arrears has reduced, more revenue has been collected and complaints about affordability of accommodation have decreased significantly. In its RRTP, Moray not only resolves to continue with this policy, but also to meet with local RSLs to discuss the (higher) rents they charge for their temporary accommodation, and explore ways in which these charges can be reduced.

Dumfries and Galloway Council undertook a temporary accommodation review in 2018. Along with a number of actions which successfully reduced the average time spent, the Council agreed on a new affordable charging model for temporary properties and shared accommodation. This included removing all service charges, making accommodation more affordable for those in work (though rents remain slightly above LHA at the present time). 90 Rapid Rehousing Transition Plans (RRTPs): a Scottish overview Chapter 4. Preventing homelessness 91

East Lothian Council has a dedicated team within its options service which Chapter 4 works with households more than two months away from homelessness. This team sees 400-500 households per year, which equates to around two thirds of the number of applicants who present as homeless. Between one fifth and one quarter of households seen by this team go on to present Preventing as homeless. Importantly, the team treats any households seeking prevention advice as entitled to the statutory housing support duty. The team has a co-located youth mediation service (provided by Cyrenians), a rent deposit service, a homelessness welfare reform officer seconded from the Scottish Legal Aid Board (SLAB) and in-house mortgage advice. They have links to furniture and youth- specific support services.

Glasgow’s housing options model is distinctive, and was devised as a What was expected of local Authorities were not asked to include way of responding to the structural and strategic challenges of the city’s authorities in the toolkit? tenancy sustainment rates for social notoriously complex housing system, in line with Christie principles.58 It HARSAG placed a significant focus housing, or comment on how aims to maximise resources of the Council, RSLs and third sector partners on homelessness prevention, these differ for those rehoused after to provide timely housing advice and support. making a number of wide-ranging homelessness (such statistics are recommendations in this area. These available, as are reported to SHR). All partners (which include a majority of the city’s 68 RSLs) offer pertained to legislation (in the form of personalised frontline multi-tenure options and support referral/advice a new prevention duty, to fall not only In our view, it is particularly useful for any customer making an enquiry, tenant or otherwise. The principle on local authorities, but also on other when authorities mention these, in is named contacts for frontline staff throughout the city in key agencies. public bodies,57 and revised pre-action relation to understanding the context Its success has led to a similar model for older people and co-location of requirements for social landlords), behind their prevention activities. housing advice within other agencies such as money advice, employability service provision, tenancy sustainment and housing support services. and clear prevention pathways for higher risk groups. Overview

The RRTP toolkit simply asks Current authority prevention/ East Ayrshire Council reports very positive prevention outcomes when authorities to list actions they intend to options services assessed against national averages (a higher proportion of applicants at take to increase their prevention focus, Most authorities do not detail their risk of homelessness supported to remain in accommodation or access within their rapid rehousing vision. existing prevention, options and an alternative tenancy in the social or private sectors; a lower level of lost sustainment services in great detail contacts; a much lower proportion of options interviews resulting in a Not mentioned in RRTP guidance, in RRTPs, which makes it challenging homelessness application). but our view is... to assess current practices and Authorities were not asked to supply effectiveness. Exceptions to this are, The Council offers a range of prevention activities, including a mediation prevention (PREVENT1) statistics or for example East Lothian, Renfrewshire, service for all applicants presenting due to non-violent relationship comment on these, though some of East and North Ayrshires, Orkney, breakdown, or being asked to leave; three-monthly tenancy health checks them do. They were also not asked Perth and Kinross and Aberdeenshire. in the first year of all Council tenancies (in response to lower than average to describe their current approach to These RRTPs include explanations of sustainment rates); use of a tenancy start matrix tool to weight sustainment prevention. This can make it harder to how housing options services work risk levels and inform targeted work; and a partnership with Ayr Housing assess whether actions in the RRTP are for people at risk of homelessness Aid providing housing advice to prisoners, of whom 40% were Council already happening or not. currently, and of prevention initiatives tenants, preventing homelessness in over 100 cases annually. already in place.

58 The Christie Commission on public service reform (2011) espoused principles of partnership working; integrated service provision; empowerment of individuals and communities through 57 These recommendations are currently being taken forward through a working group convened by Crisis their involvement in design and delivery of services; prioritisation of resources on services which and chaired by Professor Suzanne Fitzpatrick, which will report in summer 2020. prevent negative outcomes; and reduction of duplication 92 Rapid Rehousing Transition Plans (RRTPs): a Scottish overview Chapter 4. Preventing homelessness 93

East and West Lothian, Renfrewshire, Renfrewshire Council’s Options service offers daily access to Officers Falkirk, East Ayrshire, South Lanarkshire RRTPs setting plans to evaluate with no appointment necessary, in person, by ‘phone, email or visit to a and Perth and Kinross refer to effectiveness of current home/other address. For some years, the Options service has offered a tenancy sustainment rates, rates prevention activities rent deposit scheme; an in-house family mediation service; a tenancy of homelessness from potentially Angus, Dumfries and sustainment course for young people called “Keys to Learn”, delivered in preventable sources and the need to Galloway, East Ayrshire, East partnership with Invest in Renfrewshire, local RSLs, Connect4Renfrewshire, reduce demand if rapid rehousing is Dunbartonshire, East Lothian, University of the West of Scotland, West College Scotland and the DWP; to be achieved, putting prevention Falkirk, North Ayrshire, North and a project for vulnerable tenants to decorate homes, working alongside in context. Some authorities, such Lanarkshire, Scottish Borders, a tutor to up-cycle and create furniture, canvases and curtains. The role as Highland, Argyll and Bute, North South Ayrshire, West Lothian played by all of these initiatives and their positive impact on prevention and Lanarkshire and Moray, set targets tenancy sustainment are recorded in Renfrewshire’s RRTP and provide a with numbers attached in their action strong evidence base for funding requests. plan to, for example, reduce demand Tensions between prevention from particular sources, and increase and legislation tenancy sustainment figures. It is perhaps surprising that the tension between homelessness Orkney Islands Council’s policy on prevention (written 2018) is Stirling highlights that homelessness legislation and prevention activity comprehensive. There are clearly stated aims to mainstream prevention applications have increased 75% in the is barely mentioned in RRTPs. through all Council policies, that housing policies have prevention and last five years, and that many more Like barriers to RSL stock, this was sustainment embedded and housing support services are tenure blind. people go through the emergency something highlighted by “many” The Council uses a threefold definition of prevention, identifying early homelessness route than engage authorities in the Indigo House market intervention, crisis and prevention of repeat homelessness. The activities with the options process. South analysis.59 Edinburgh’s is the only RRTP covered under each of these headings are wide-ranging. Ayrshire’s RRTP is frank in underlining which makes explicit reference to the its current prevention activities are difficulties this tension creates. The The Council has a joint project with Orkney Housing Association to inadequate compared to Scottish Council welcomes the introduction target options interviews at higher risk groups on the CHR. These are averages. As such, both plan to of a wider legal duty to prevent identified using homelessness risk factors, triggering a single shared conduct research on tenancy failure homelessness, and the clarity this support assessment if care or support needs are identified. The project and repeat homelessness to better would provide in relation to the SHR also proactively provides new applicants with realistic information on likely understand this. East and North and the utilisation of homelessness waiting times, and other options they may have, using a personal housing Ayrshire, whose prevention work has prevention funds. planning approach. had good outcomes, have similar plans, as does North Lanarkshire. All of Other authorities avoid emphasising Thought is given to raising awareness of homelessness risk and protective these authorities want to research, in any tension, rather explaining factors publicly, though campaigns, but also by building capacity of internal particular, linkages between health and their operation of a “twin track” or teams and external agencies to be able to recognise and appropriately homelessness to better target multi- “dual focus” approach (Fife, East respond to a household at risk. A heavy emphasis is placed on options staff agency prevention work. Dunbartonshire), incorporating being professionally trained and accredited. prevention advice alongside rehousing A third of authorities have plans to fully duties, though Aberdeenshire evaluate the extent and effectiveness aims to review this practice.60 Authority analysis of current Where RRTPs differ is in the level of of their current prevention activities Moray offers a range of prevention prevention work detail on planned interventions, and and two authorities will review their activities and states there are “robust All RRTPs place significant focus on the extent to which these are targeted monitoring frameworks for tenancy mechanisms in place to ensure there prevention and set out actions to to known/analysed areas of current sustainment, to identify any changes is no “gatekeeping” of those who reduce homelessness demand and weakness, high homelessness risk required for rapid rehousing. attend a housing options interview”. increase tenancy sustainment over or noted trends. Some authorities Clackmannanshire attributes its very the next five years. Given the variety appear to be at the stage of review, high proportion of options approaches in almost all other areas, an increased exploration and analysis, with ending in a homelessness application focus on prevention can be said to be particular authorities appearing to (95%) to options staff adhering to legal one of the only themes which unites undertake a “back to basics” review duties (i.e. not “gatekeeping”). all RRTPs. approach, whilst others already have multiple initiatives underway, or in the pipeline. 59 https://social-bite.co.uk/wp-content/uploads/2018/06/RRTP-Analysis-and-Review-JUNE-2018-pubv1. pdf (see page 25) 60 Its RRTP states this approach is not recommended by the Options Hub network which is producing national guidance. 94 Rapid Rehousing Transition Plans (RRTPs): a Scottish overview Chapter 4. Preventing homelessness 95

Perth and Kinross suggests its higher to build a multi-agency prevention number of homelessness assessments model from year two of the RRTP. Inverclyde Council has decided to implement a collaborative and proactive last year related less to increased Housing Options model across all housing providers, public and third demand, than to process changes West Lothian, Fife and Highland are sector agencies who meet the needs of homeless households locally. This according to which the authority considering altering allocations policies follows their temporary accommodation review and takes inspiration from began to automatically progress in favour of homelessness prevention, the Glasgow model, with plans for common tools for needs assessments, a homelessness assessment if an whilst South Ayrshire, Orkney, North named contacts in Health and Social Work services, consent to share options approach hit a homelessness Lanarkshire, East Dunbartonshire, information and referral pathways, and shared training and skills transfer on trigger. Despite more assessments, Stirling and West Lothian are looking risk and prevention. The Council hopes this will reduce demand by up to 15%. they suggest a correspondingly higher into staff training on “maximal” housing number of these now end in ‘resolved’, options, with new or more proactive ‘not homeless’ and ‘lost contact before approaches to contacting applicants assessment’ decisions. This indicates on waiting lists about other housing West Lothian Council is undertaking an allocations review, with an that some prevention work continues options. South Ayrshire and Orkney intention to shift the balance towards prevention by introducing a “strategic to have an impact during, as opposed request additional officers and housing needs” category for applicants at risk of homelessness, which, it is hoped, to before, a homelessness application. assistants to undertake this work. This will reduce demand on homelessness services. follows an approach already taken As prevention outcomes may be by Perth and Kinross. Over a third of found within HL1 and PREVENT1 authorities plan to extend or introduce statistics, the latter do not appear to a personal housing planning approach, Highland Council’s allocations review has revealed that applicants awarded offer accurate data on the relative at times extending this to partners “potentially homeless” points are unlikely to be made an offer of social effectiveness of authorities’ prevention such as RSLs. housing, as they can’t simultaneously have these points alongside points work, as has been noted elsewhere.61 in another category. The Council is investigating how this can be altered to But the data may still offer useful bolster prevention, whilst still giving sufficient priority to people who are insights within individual authorities, as Authorities planning to already homeless. they review their statistics over time. introduce or extend a personal housing planning approach Changes to options services Dumfries and Galloway, Dundee, Tenancy/citizenship education independent living. Aberdeen plans Some authorities have plans to Edinburgh, Falkirk, Fife, North Tenancy skills or citizenship training tenancy education for both new and enhance or expand services, Lanarkshire, Orkney, Shetland, as a means of improving housing existing Council tenants, to increase capacity or structure of their options South Lanarkshire, West Lothian sustainment features in a minority sustainment and encourage greater services. Midlothian wants to recruit of RRTPs. Midlothian already runs engagement in the management a prevention officer with a remit to a Scottish Qualifications Agency of homes. develop options and support initiatives, A smaller number of RRTPs lay out (SQA) course for young parents and with a target to reduce applications by action to broaden awareness of Renfrewshire a bespoke citizenship 10% per annum. West Dunbartonshire homelessness prevention beyond course for all young people. Both plans a new prevention service the housing sector. For example, authorities aim to expand access to offering proactive advice, support and Falkirk is planning an information and these courses in RRTPs based on their assistance to households at threat of media campaign, with information in positive impact thus far. homelessness, whilst Dumfries and community locations (such as schools, Galloway wishes to develop a multi- GPs) or advice and support services. East Lothian sets an action to explore agency response team, to intervene the potential for vulnerable young, and quickly when vulnerable tenants are especially care experienced, people at risk of homelessness. to receive support to obtain an SQA in the Tenancy Skills module. North Stirling and North Ayrshire aim to Ayrshire also identifies a need to work appoint a prevention co-ordinator with up a better educatory programme a proactive, evidence-based approach to prepare vulnerable people for to “reinvigorate” housing options. Both intend this to use year one research on homelessness risk factors and effectiveness of current interventions,

61 https://www.crisis.org.uk/media/240002/the_homelessness_monitor_scotland_2019.pdf 96 Rapid Rehousing Transition Plans (RRTPs): a Scottish overview Chapter 4. Preventing homelessness 97

Renfrewshire Council plans to expand its eight-week tenancy sustainment Furniture and décor examples course, Keys to Learn, following positive feedback from participants. They highlighted its impact on their self-esteem and their feeling of being more Perth and Kinross Council identified that the unfurnished nature of social connected with their communities. Courses are delivered three days a housing can undermine rapid rehousing in some cases. They therefore aim week, in partnership with the Homelessness Network, RSLs and local to trial a “ready to occupy” rather than “ready to let” approach by setting up colleges/universities, with peer support from previous participants. They a “property ready fund”, which expands the personalised budget approach cover modules on computing, digital media, money management, self- they already use. This fund is the first priority in terms of the Council’s confidence, working with others, CV building, housing advice and RRTP resource requests. They have designed three levels of “property interview skills. ready packs” and costed these. They hope this will allow people to be housed quicker, with more choice in furniture, whilst avoiding the need for Midlothian Council has effectively used tenancy training (the SQA unaffordable service charges applied to most furnished tenancies. accredited “Tenancy and Citizenship Group Award”) with a group of young homeless single parents. Due to its success, the Council aims to roll it out Aberdeen City Council is currently undertaking a trial of re-using items to all young people in supported accommodation to facilitate move on. from local charities Instant Neighbour and Somebody Cares to furnish Joint delivery of the course is also planned with Social Work to prepare temporary properties in a homely fashion, reducing the overall costs of care leavers who are moving on from residential placements. temporary accommodation. Each tenant receives cutlery, crockery, quilts, pillows and bedding, which they can retain for their permanent home.

Furniture, décor and moving in Many authorities are reviewing their Argyll and Bute Council wants to establish a decoration grant scheme, In relation to enhancing sustainability starter pack schemes. Renfrewshire having recognised that people in crisis are often the least able to undertake of social housing, furniture and already provides starter packs for all decoration work in unfurnished social housing. Only 73% of social offers décor arises in over half of RRTPs. tenants, and notes that this has been a are currently accepted; the Council has drawn a link between the level of Different approaches are suggested. very effective measure in helping new refusals and the decorative standard in some properties. They would aim to Aberdeenshire assesses that staff time tenancies start well. South Lanarkshire use a decoration fund to complement assistance provided already by RSLs, input and timescales for the SWF and requests £2.4million funding for starter thus allowing for personalisation and investment in the new home and other grant providers cause significant packs for 1500 households over five enhancing likelihood of tenancy sustainment. delays to move-in. They suggest a low years. Most authorities are exploring cost repayment furnished tenancy ways to improve relationships and/ Aberdeenshire Council identified that applying for assistance from the SWF scheme as better for tenants and more or processes with the SWF. East and other sources of furniture or support for new tenants can be time- cost effective for the Council. Perth Ayrshire and Falkirk are looking into consuming and piecemeal for support staff, whilst SWF timescales can and Kinross are moving away from the feasibility of protocols for same result in a four to six-week delay in applicants moving out of temporary furnished tenancies, instead requesting day decisions and fast-tracking of accommodation into permanent homes. They plan to address this by funding for personalised furniture applications. embedding an officer within the SWF team to fast track applications from budgets. Argyll and Bute similarly plan households moving from temporary accommodation. to introduce decoration grants, linked not only to improving sustainment Renfrewshire Council funds Impact Arts, through the housing support but also increasing the proportion of budget, to deliver a project called Make It Your Own, whereby vulnerable tenancy offers currently accepted. applicants and new tenants work with a tutor to upcycle and create furniture, canvases, curtains and blinds. They supported 32 service users last year, of whom 96% sustained their tenancy. Their RRTP includes RRTPs with a focus on plans to upscale this project given its popularity and success amongst improving or enhancing participants. furniture options for new tenants Aberdeen, Aberdeenshire, Angus, Argyll and Bute, Clackmannanshire, Dumfries and Galloway, Dundee, East Ayrshire, East Lothian, Eilean SIar, Falkirk, Moray, Orkney, Perth and Kinross, Renfrewshire, Scottish Borders, South Lanarkshire 98 Rapid Rehousing Transition Plans (RRTPs): a Scottish overview Chapter 4. Preventing homelessness 99

Social housing sustainment additional opportunities to prevent strategies evictions. This approach aims to revisit South Lanarkshire Council’s RRTP includes various PCS; those from RSLs Pre-tenancy screening checks for the spirit rather than simply abide by are especially useful in understanding prevention activities from a different vulnerabilities allowing a more targeted the letter of pre-action requirements perspective. And the very approach of PCS is helpful in solidifying RSL approach and reviews of Council for social landlords, in keeping with the commitments to the RRTP vision. arrears and antisocial behaviour (ASB) original intention of the legislation.62 policies to embed a homelessness One local RSL uses a toolkit citing factors suggesting a likely risk of prevention remit are put forward by a homelessness in the same way as factors may suggest likely risk of heart third of authorities. East Ayrshire has Moray Council has a cross- attack. They also have a tenant hardship fund, and an authority-wide developed a Tenancy Start Matrix tool departmental Serious support service directory to which tenants can be signposted. The RSL to identify new tenants at higher risk Rent Arrears Group, with agrees eviction is wasteful, but doesn’t have in-house specialist support. of failure, and offers three-monthly representation from housing, They want to challenge the notion of “tenancy readiness” by reframing the “health checks” through the first year housing options, Social Work question to ask instead, what support can make rapid rehousing happen? of a tenancy. and support services, with an aim to prevent households Another RSL suggests they could better manage and prepare for tenancies Falkirk plans to develop training for in arrears being evicted from with higher homelessness risk if the Council proactively shared their estates Housing Officers on identifying Council housing. If court action support assessment (routinely done at the homelessness assessment) with support needs and risks to future is initiated, the Group reviews the new landlord. RSL staff are otherwise left to guess what needs the sustainment, including affordability each case and agrees actions tenant has. The RSL would like joint training on managing support needs and having difficult discussions. Falkirk to prevent eviction. The RRTP with the local authority. Lastly the RSL feels they don’t hear back from has a useful suggestion to roll out a provides figures which show Section 11 notices, and that this would offer a further opportunity to work consistent support needs assessment its positive impact. The RRTP more collaboratively on homelessness prevention. and share that information as a matter sets an aim to investigate the of course at the point of Section Five use of short SSTs with housing referrals or nominations - something support as an alternative to Section 11 one of the South Lanarkshire RSLs eviction and placement in Section 11 notices must be sent RRTPs with a focus on improving asked for in their PCS. temporary accommodation. to local authority homelessness operation of Section 11 This is regarded as having the teams when RSLs, PRS landlords or Aberdeen, Aberdeenshire, Social housing eviction procedures potential to minimise costs and mortgage providers serve a notice Eilean Siar, Falkirk, Highland, Three RRTPs have a strong focus reduce trauma of homelessness, of proceedings. This could be a vital Orkney, Perth and Kinross, on preventing homelessness from especially for any children prevention tool (mirroring the Duty Scottish Borders, Shetland, West Council stock, by improving evictions involved. to Refer in the English Homelessness Dunbartonshire processes. Moray already has such a Reduction Act 2018) yet is little process in place. Aberdeen aims to mentioned in Scottish homelessness use alternatives to arrears escalation Embedded tenancy sustainment statistics or literature. policies and convert tenancies officers in RSLs to short SSTs rather than evict to Perth and Kinross, Aberdeenshire Only ten authorities mention Section homelessness. They plan to use and East Lothian already either fund 11, and have plans to improve their “technical” eviction for families, and tenancy sustainment workers within response to notices. In reality, to seek to assess homelessness duties RSLs or have embedded officers at an whilst PRS landlords are legally before eviction to determine available RSL to provide move-in and prevention required to send Section 11s and housing options. support. Perth and Kinross seeks to that sector produces higher levels of expand this service in view of rising homelessness than the RSL sector, Falkirk has similar plans, with a priority homelessness from the RSL sector. they are less likely to comply with to reduce family homelessness from Dumfries and Galloway has a more Section 11 requirements.63 social housing and reduce the number general action to work with local RSLs of children entering temporary to identify early intervention initiatives accommodation. Falkirk also plans to improve tenancy sustainment. to develop an eviction panel, to ensure all prevention assistance has been provided, and review the entire repossession process to seek 63 Section 11 statistics were last made available in 2015, but each year since Section 11 was introduced in 2009 show a tiny number of PRS landlord notifications compared to RSLs or creditors in every authority 62 https://scotland.shelter.org.uk/__data/assets/pdf_file/0010/1790524/Evictions_by_social_landlords_in_ area of Scotland: https://www2.gov.scot/Topics/Statistics/Browse/Housing-Regeneration/RefTables/ Scotland_2016-2018.pdf/_nocache annualreferencetables201415 100 Rapid Rehousing Transition Plans (RRTPs): a Scottish overview Chapter 4. Preventing homelessness 101

Prevention funds Section 11 practice examples City of Edinburgh Council Homelessness prevention funds will embed a PRS prevention operate in most authorities, though Aberdeenshire Council is working with local RSLs to set up better officer in each of four locality only three specifically mention how protocols on Section 11, including pre-eviction discussions. RSLs have been officers, with a remit to focus on they use the funds and who can access keen to work with the Council to develop this process. provision of intensive advice and them. One authority (East Lothian) support to landlords and tenants, plans to introduce a “spend to save Comhairle nan Eilean Siar has set a target within its RRTP to reduce the drawing on good practice from prevention fund” through the RRTP. proportion of Section 11s proceeding to legal stages by 50% within the Shelter’s Oak-funded PRS work. Scottish Borders is seeking additional course of the RRTP. Officers would have access to a funding resource to create a “crisis prevention fund and prioritised intervention fund”, to facilitate creative West Dunbartonshire Council aims to review and update its existing routes into MMR housing. The and immediate service responses to Section 11 protocol by introducing a more proactive prevention service intention is that this would cases of homelessness risk which do aimed at tenancies at risk on account of landlord actions, in both the RSL also improve relationships not fit into established pathways. This and private sectors. and engagement between the appears to marry with the personal Council and private landlords and budget approach highlighted by Perth and Kinross Council have plans to embed an officer within two local letting agencies (which is low HARSAG. RSLs and their own PRS team to respond proactively to Section 11 notices. at present), eventually bringing gains to PRS access. Four authorities make specific funding Three authorities in the North and Islands Hub, Aberdeen, Highland and requests to mitigate welfare reforms, Shetland Councils are running a “Section 11 plus” pilot with specific RSLs, either through a “mitigation fund” supported by SHN. RSLs agree to issue a Section 11 notice earlier in the PRS access schemes as (Aberdeenshire and East Lothian), or repossession process and supply additional specified information about a prevention tool additional UC/welfare support officers the tenant, as well as stating the minimum response the RSL would need A minority of RRTPs consider PRS (Glasgow and Moray). Falkirk and from the tenant to suspend repossession action. RSLs and authorities have access schemes as serving a (current Scottish Borders highlight the key role agreed to work collaboratively and update each other on progress. Early or future) role to prevent, as well as of Discretionary Housing Payments outcomes from this pilot (from SHN) appear to be positive. to alleviate, homelessness. This is (DHPs) in preventing homelessness, the case with South Ayrshire’s SLA and aim to review and improve proposal. Renfrewshire and Dundee protocols with Revenues and Benefits Preventing homelessness note that their access schemes already to maximise positive prevention from the PRS RRTPs with a focus on play a key role in homelessness outcomes. Section 11 apart, RRTPs contain improving relationships prevention. multiple actions to improve prevention with PRS landlords from the PRS, and, to a lesser extent, Aberdeen, Aberdeenshire, Argyll But it is more common to find PRS rapid access to the PRS to avoid and Bute, Dumfries and Galloway, schemes mentioned in relation to an homelessness where loss of the East Lothian, Edinburgh, Highland, additional option for those already original home cannot be prevented. Orkney, Scottish Borders, South within the homelessness system. Plans Edinburgh, which has the highest Ayrshire, South Lanarkshire to maintain or extend such services prevalence of homelessness from further “upstream” are rare, which is, PRS, has the most ambitious plans in in our view, disappointing. this area. The Council will introduce Eleven authorities plan to improve a dedicated PRS prevention service, advice, guidance and engagement with with an officer based in every locality. PRS landlords as a way of decreasing Authorities using (or aiming to Perth and Kinross aims to embed a homelessness from the sector. use) PRS access to prevent and prevention officer within their PRS Aberdeen aims to improve support alleviate homelessness access service, with a similar remit. available to PRS tenants as well as Dundee, East Lothian, Edinburgh, landlords, especially around money Highland, Orkney, Perth and and welfare advice given risks of higher Kinross, Renfrewshire, homelessness risk under Universal South Ayrshire Credit (UC). Highland sets clear targets for reduction of homelessness from the PRS. Fife seeks RRTP funding to create a “PRS Resilience Fund”, as well as planning to develop better relationships with landlords. 102 Rapid Rehousing Transition Plans (RRTPs): a Scottish overview Chapter 4. Preventing homelessness 103

Prevention for predictably Dunbartonshire, Highland and West Prevention fund examples at risk groups and Midlothian plan to install youth- All authorities place some emphasis on specific mediation services. Staff in Aberdeenshire Council’s options service have access to a credit prevention pathways for groups most card, allowing them to respond quickly to alleviate homelessness. The at risk of homelessness, though with Council seeks funding to expand this facility, which empowers frontline varying levels of detail and breadth. RRTPs with a focus on staff to act at the point of need, allowing cash payments to be made Scottish Borders and Fife set out a homelessness/housing if needed. large range of groups with higher education in schools than average homelessness risk in Perth and Kinross Council introduced a small budget for frontline staff their action plans, and aim to develop Authorities with existing housing replicating HARSAG’s personalised budget approach in cities, for immediate prevention pathways for all of these. education programmes crisis or prevention responses. Stirling, North Ayrshire and North Dundee, East Dunbartonshire, Lanarkshire’s approach is to develop Midlothian, North Ayrshire, Argyll and Bute Council report they intend to follow in Perth and multi-agency pathways with named Orkney, Perth and Kinross Kinross’s footsteps by introducing an early intervention fund for struggling contacts, trigger points, and training households, to be used alongside holistic support. They aim for this fund on early detection and action. Authorities with plans to develop to halve the rates of homelessness attributable to rent or mortgage housing education programmes arrears locally. Dundee’s approach to defining Aberdeenshire, Dumfries and who “at risk” groups are in Dundee Galloway, East Ayrshire, Falkirk, has a distinctly local tone, studying Highland, South Lanarkshire, Mediation mediation skills. Scottish Borders and homelessness risk by geographical Stirling, West Dunbartonshire, A third of RRTPs commit to explore or Dumfries and Galloway’s first steps will localities rather than, or as well as, West Lothian implement general (i.e. not only youth) be to undertake research and scope by universal characteristics known to mediation services, or to expand and/ feasibility of mediation in their areas. render households more vulnerable. or promote existing services. This is Intervention to reduce the risk of youth often predicated on the proportion of homelessness “upstream” through homelessness applications made as a RRTPs with a focus on Dundee City Council, in a housing and homelessness education result of relationship breakdown. introducing or promoting/ partnership with the H&SCP and within secondary schools is a further expanding current mediation Dundee University, is mapping theme in RRTPs. Six authorities Aberdeenshire has an in-house services the prevalence of homelessness already have homelessness education mediation service, but notes this in localities across the city, programmes, whilst nine more have is oversubscribed with neighbour Services for any households alongside available supports plans to set these up. In Dumfries and complaint cases, and requires an presenting through relationship and services: a tailored local Galloway, a stock transfer area, the officer specifically for homelessness breakdowns approach to prevention. schools project is being taken forward cases. Moray recently closed an in- Aberdeenshire, Angus, and funded by an RSL (Loreburn house mediation service for neighbour Argyll and Bute, Dumfries Housing Association). disputes, and aims to redirect this and Galloway, East Ayrshire, Young people funding to mediation services with a East Dunbartonshire, East Young people are disproportionately Councils that operate, or are planning, homelessness prevention remit. Renfrewshire, Glasgow, Moray, represented in homelessness statistics. specific approaches or services to Orkney, Scottish Borders, South Many RRTPs report a range of existing reduce youth homelessness are From RRTPs, East Ayrshire appears to Ayrshire, West Lothian or planned activities in the area of recorded below. be one of the few authorities which youth homelessness prevention, whilst already runs a successful (non-age Services for young people other RRTPs are largely silent on specific) mediation service within presenting due to family this subject. housing options, and aims to further breakdowns promote this. Argyll and Bute has a Dundee, East Lothian, Edinburgh, Mediation is more likely to be offered family mediation service facing cuts Falkirk, Highland, Midlothian, as part of youth rather than generic due to wider Council budgets, and Perth and Kinross, Renfrewshire, homelessness teams. Dundee, seeks RRTP funding to continue to Shetland, West Dunbartonshire, Edinburgh, Renfrewshire, Shetland, operate it. Glasgow, Angus, East West Lothian East Lothian and Perth and Kinross Dunbartonshire, Orkney, and West have well developed approaches Lothian seek funding to set up new (Edinburgh’s for 16-17 year olds mediation services, whilst East and care leavers only). In RRTPs, Renfrewshire and South Ayrshire plan Dumfries and Galloway, Falkirk, West to train all frontline options officers on 104 Rapid Rehousing Transition Plans (RRTPs): a Scottish overview Chapter 4. Preventing homelessness 105

Other public bodies Youth prevention examples Improving understanding of Moray Council and Moray IJB homelessness, prevention triggers jointly fund an Occupational Perth and Kinross Council assign youth support officers to all young people and referral pathways from H&SC Therapist (OT) located in the assessed as having a potential homelessness risk, engaging them at a range colleagues is mentioned in over housing team. This post assesses of settings, including youth clubs. They operate a family mediation service a third of RRTPs, with some areas health and housing needs, with (all youth support officers are trained mediators) and have a bespoke suite of moving towards a way of operating both a prevention and rehousing leaflets for young people. as if a duty was already incumbent on remit. The RRTP seeks funding those public bodies (South and East to increase this resource, West Lothian Council plans to develop a school education programme on Ayrshire and Dumfries and Galloway) allowing the fast-tracking of homelessness to dispel myths and introduce a risk matrix to identify potential and others specifically referring to this health and housing assessments, youth homelessness so that high level support strategies can be planned. It (North Ayrshire). allowing more households also plans to implement a support/mediation service for school age children at risk of homelessness to be experiencing homelessness and create a “Moving On” model for care leavers directly housed into suitable and other vulnerable young people, with a focus on employability support for Authorities improving H&SC accommodation, bypassing young people at risk who can only claim the SAR. prevention pathways the need for temporary Argyll and Bute, Dumfries accommodation. Aberdeenshire Council will set up a multi-agency group to develop Young and Galloway, East Ayrshire, Person Housing Action Plans. These will review access to and effectiveness of Eilean Siar, Fife, Inverclyde, mediation and other activities. Moray, North Ayrshire, North Lanarkshire, Scottish North Lanarkshire Council Clackmannanshire Council aims to focus activity on young people who, having Borders, South Ayrshire, South received a strong contribution left the school system, are at risk of becoming the next generation of service Lanarkshire, Stirling, West Lothian to the RRTP from its H&SCP, users with complex support needs. The Council aims to work closely with building on years of joint working education, health and Social Work colleagues to develop protocols for providing on homelessness across both trauma-informed support and guidance, initially targeting young people already Ensuring implementation, or review, of Lanarkshires. The H&SCP has known to the Council through the GIRFEC model. SHORE standards for those entering set an explicit action to increase prison who have a tenancy, and health improvement capacity West Dunbartonshire Council has the highest levels of youth homelessness in for those leaving care in a planned in North Lanarkshire in order to Scotland. The Council is contributing to research by local partners Action for manner, are referred to in more than lead and coordinate delivery of Children into youth homelessness, with the purpose of developing a youth- half of RRTPs. East Ayrshire highlights prevention actions set out in the specific options service pilot. This service will ensure triggers and pathways are the very positive prevention outcomes Health and Homelessness Action in place across all agencies allowing young people to be directed to the service. from its prison outreach partnership, Plan. These are wide-ranging, in which over 130 inmates were and include the introduction of Aberdeen City Council is running an Early Access System Change project for prevented from losing tenancies. routine enquiry in health and people leaving school with no positive destinations. The project prioritises Renfrewshire intends to implement care consultations on a person’s earlier intervention and support to engage with employability and education a new peer-mentoring project for current housing status to identify to reduce youth homelessness. The Council is also exploring Future Builders people with convictions, enhancing risk of homelessness, and and Living Work schemes, whereby young people learn skills and a trade whilst sustainability of their tenancies. establish and evaluate pathways working on their future homes. between housing and health which would reduce risk at a pre- Highland Council is working with the Calman Trust to develop a digital housing East Ayrshire Council asked for a crisis point. support model for young people which is easy to engage with. All pupils in PCS for the RRTP from its H&SCP high schools will have “leaving home” sessions delivered by the Council’s whose contribution sets out plans guidance team, and will be introduced to the digital App “HasAnswers” during to develop a direct referral/point Access to and nature of advice those sessions. This App provides practical tips on housing and direct access of access mechanism for people and advocacy to local support and advice (through an actual worker offering real time at risk of homelessness, facilitated Access to and effectiveness of advice/ practical support). by the Health and Homelessness advocacy is clearly central to the Nurse. The purpose would be rapid rehousing vision. Half of RRTPs Scottish Borders Council commissioned a study on the housing needs and to provide wraparound support centre on reviewing availability and aspirations of young people in its area in 2018, which included face to face to help the person sustain their responsiveness of current advice surveys with young people. The Council intends to use the findings to shape tenancy. The H&SCP will consider provision to ensure fewer gaps in pathways and interventions to prevent young people becoming homeless, meet enhancing this resource to service. This is particularly focused on their particular housing needs and support them in sustaining accommodation. ensure equity of provision across financial inclusion, benefits and all three East Ayrshire localities. money advice. 106 Rapid Rehousing Transition Plans (RRTPs): a Scottish overview Chapter 4. Preventing homelessness 107

A small number of RRTPs refer equivalent to what the Council to co-located services, such as already spends on commissioned Dundee City Council along with other members of the local Homelessness Dundee, which locates welfare advice support, whilst the balance is shifted Partnership (H&SCP, Children and Families, Housing Services) is considering provision in GP surgeries. A minority from accommodation-based to changes to how it delivers housing and other support. They are moving to also focus on the potential of using community-based support. a locality model of housing support, considering use of a PSP model and digital delivery to enhance reach of offering SDS, allowing people to have more choice over what support they housing advice in rural areas (such as get and from where. Orkney), for young people specifically Argyll and Bute Council plans (Highland) or across communities in to overhaul how support general (North Lanarkshire). is delivered to people in communities through more Dumfries and Galloway Council identified in their 2018 homelessness Access to and nature of integrated working between strategy that action by landlord or lender was the second most common tenancy support housing, health and addiction reason for homelessness. The Council devised a new Welfare and Housing All authorities place some emphasis services. For some years, the Options Support Team in partnership with Revenues and Benefits staff to on the nature and responsiveness of Council has worked to remove provide additional support to UC claimants, funded through the Council’s tenancy support. Argyll and Bute plans “tenancy ready” language and Anti-Poverty Initiative. The Team is based with the Housing Options Team one of the most far-reaching changes culture. But it highlights that to ensure a joined-up approach to prevention, resolving issues with claims, in this area, seeking the biggest part this is not enough to maximise linking clients with and/or providing options advice, liaising with landlords, of its requested RRTP funding for a tenancy sustainment, as people budget planning and supporting applications to the SWF or for DHPs. team of proactive, early intervention don’t always engage with coaches, working in an integrated way support in the way it is currently with H&SC. delivered. The Council also notes that the prevalence of North Lanarkshire Council includes plans in its RRTP to pilot the extension Many authorities plan to review and/ mental health and addiction is of SDS to people at risk of homelessness who are eligible for a package of or reshape housing support services, increasing, and support from care. Through SDS, people are allocated an individual budget to fund their making them more overtly tenure respective disciplines usually support arrangements. The SDS principles of flexibility, control and choice neutral (South Lanarkshire and West provided in a siloed manner. dovetail with those of Housing First, enabling people to be supported in Dunbartonshire), more integrated non-traditional ways planned and chosen by them. The Council notes the (Scottish Borders), on a locality or The Council and the H&SCP value of SDS for the 73 people who were homeless or at risk in the previous “Hub” model rather than a central recognise that the current model year and aims to upscale this through the RRTP. service (Stirling, Edinburgh, Dundee, could be improved across all Fife, Aberdeen) and more tailored to services in order to achieve people with complex issues (Eilean better recovery outcomes. They Siar, East Renfrewshire, Dumfries seek to transform the working East Ayrshire Council has taken a collective, trauma-informed, and Galloway, North Lanarkshire, relationship between support community-based approach to preventative work across all homelessness Clackmannanshire). commissioners and contractors support services regardless of which partner delivers them. All services across the Council and H&SCP. are predicated on a common outcome monitoring framework, the notion As part of its service user consultation The RRTP contains a set of of following service users into the community rather than breaking for Housing First, Falkirk plans to work actions to facilitate integration, relationships, the development of peer mentoring with the flexibility of with service users to identify gaps and including enhancement of low being able to link back into core services if the person is in crisis, and an issues in accessing support services. level mental health and addiction emphasis on connecting people with local communities and building Renfrewshire is aiming to expand support from the current housing resilience. the successful tenancy resettlement support services, appointment service it has for young people to be of link officers between housing available to all new tenants. and health, with health or Social West Lothian identify key risks of Work taking the lead on complex Highland Council is jointly funding a “Move on” project with the European support not being available or suitable cases, and the establishment Social Fund and NHS Highland. Move on officers take a person-centred, undermining rapid rehousing, even and training of a peer support relationships-based approach to engaging the most excluded individuals if settled housing is forthcoming, network through the Reach who are often known to many services and seen as “serial non-engagers”. and has plans to fully review and (Recovery, Empowerment, Move on officers act as navigators, co-ordinators and facilitators as well realign commissioned support and Aspiration, Choice, Hope) as support workers and “stick” with people. Any professional can refer to resettlement services, processes Advocacy Award to offer locality the service which is available to homeless and non-homeless people. The and resources including fast tracks based client led support groups. service started in October 2018 and is already achieving outcomes. for those with higher needs. Glasgow has requested funding 108 Rapid Rehousing Transition Plans (RRTPs): a Scottish overview Chapter 5. Service and culture change 109

options service, devolving options to Glasgow recognises the need for locality offices rather than delivering frontline staff to be correctly skilled Chapter 5 all from the centre, introducing and supported, but also that culture tenure neutral support services and change and challenging usual ways proactively contacting waiting list of working must be understood and applicants to offer interviews. A driven by all levels, including senior Service and number of authorities seem to be managers and elected members. stepping in a similar direction to that already travelled by this forerunner. Service delivery changes Most authorities discuss changes to culture change Staff training and awareness-raising their homelessness service delivery, Staff training, workforce/employee with some being far more wide- development and awareness-raising ranging and/or detailed than others. both within homelessness services Aberdeenshire, West Dunbartonshire, and beyond is a key strand within two Stirling and South Ayrshire have thirds of RRTPs. Perth and Kinross undertaken analysis of weak points What was expected of local HARSAG placed significant focus on identifies this as one of six main in current systems and service authorities in the toolkit? pathways for preventing homelessness workstreams over the next five years. shortcomings, with specific actions Authorities were not specifically for at risk groups, but less focus on the Many RRTPs mention the forthcoming to address those. For example, asked to state their plans for service different services/options people may Housing Options Training Toolkit, Aberdeenshire notes 50% of clients redesign, staff training/support or require where homelessness is not whilst some highlight specific training assessed as needing support don’t more generally, how they intended to prevented. by type or level to be delivered to their go on to engage with the Council’s introduce a change of culture around homelessness and options teams. support service and staff need to how homelessness is addressed in the investigate why this is and how this authority and more widely. Overview Moray will provide enhanced training can be improved. in relation to financial advice, benefits HARSAG placed significant Culture change in local authority and health vulnerabilities, whilst Improvements to “flow”, greater emphasis on these elements, with options services Highland has commissioned The flexibility in service delivery and recommendations to support and Over half of RRTPs place significant Homelessness Network Scotland transformation of work processes are empower frontline staff with high emphasis on culture change. A smaller to train all options staff on trauma planned in roughly half of authorities. quality training, redesign of systems number refer to service changes more informed care. Fife will ensure West Dunbartonshire and Stirling and service delivery (including fleetingly, and a handful make no officers received accredited training have high numbers of applicants more flexible means of undertaking mention of service or culture change on providing housing advice. East who lose contact with the service homelessness assessments, and in their RRTPs. Renfrewshire, Aberdeen and South and aim clearly to reduce this by an emphasis on personal housing Ayrshire aim to develop whole staff specified amounts, by redesigning planning). Service redesign was one of Aberdeen opens stating, “our vision for training plans. their services - on a multi-agency four areas for which authorities were the period to 2024 is both bold and housing options model in the former able to request funding. ambitious: we will work together as a Argyll and Bute, North and South and a locality basis in the latter. Moray city to end homelessness”. The Council Ayrshire, both Lanarkshires, Aberdeen, identifies a need for more collaborative Within RRTP toolkit guidance, is clear that, to achieve this, “radical West and East Lothian set out plans working between housing and H&SC authorities were asked to group changes to how we do business will be for training, awareness-raising and colleagues and intends a review of households by the level of their needed”. Authorities with far-reaching engagement across a wider range office provision and options for co- support needs, rather than by type of plans which buy into the ethos as well of services and agencies. RRTPs location and shared resources. household or type of support need. As as the mechanics of rapid rehousing highlight job shadowing, skills transfer such, authorities were not specifically are both Lanarkshires, North and East programmes, joint training and service East Lothian is undertaking a “root asked to give detail on routes through Ayrshire, Argyll and Bute and East and user consultation and engagement. and branch” review of all operational their services for particular groups West Lothian, amongst others. Aberdeenshire will develop an RRTP procedures, roles and processes, (such as young people, migrants, care lived experience workstream with including a focus on arrears policies leavers), with the exception of people Perth and Kinross lays out the far- community learning and development and “personalised” rent collection with complex needs, for whom they reaching changes already made teams. Fife’s PSP has committed to methods. West Lothian, Argyll were asked to describe service access through their Home First programme, develop an “Academy” model of joint and Bute, Falkirk, Highland, East and provision. which included offering immediate training to embed trauma informed Renfrewshire, North Lanarkshire, options interviews rather than future practice across the consortium and Aberdeen and Aberdeenshire are appointments, integrating allocations, wider housing agencies. examining the tasks and responsibilities PRS and homelessness teams into one of staff across (and beyond) the 110 Rapid Rehousing Transition Plans (RRTPs): a Scottish overview Chapter 5. Service and culture change 111

service, with the latter two considering IT changes Practice examples and ideas worth sharing generic roles across homeless/housing Just over a third of authorities teams, all of which ensure a rapid plan changes to their IT and/ rehousing focus. Glasgow plans to or communication systems. West Lothian Council has identified that in order to reduce demand for use the Vanguard methodology64 to North Lanarkshire highlights the homelessness services, it must expand current delivery of housing options improve efficiency in its homelessness opportunities that improving access and support to intervene at an earlier stage and in a more flexible way. They service. to digital solutions can bring to more have plans to develop a multifunctional Housing Options and Resettlement excluded client groups. Edinburgh has Team consisting of staff from a broad range of services including housing Commissioning plans to improve customer feedback needs, allocations, options, support and temporary accommodation. The Changes to how future homelessness opportunities through introducing aim is to transition to a fully mainstreamed, generic “Rehousing Team” by services are commissioned (and a confidential mailbox and allowing year three of the plan. The Council has requested funding for the team by whom) are put forward within a customers to select preferred modes to be set up and piloted alongside continued provision of its statutory minority of RRTPs. West Lothian is of communication which suit them. homelessness and support services. reviewing all commissioned services to ensure they support the aims of rapid Various RRTPs place emphasis on rehousing, whilst Glasgow has moved creating or improving online options away from commissioning any services portals, devising self-assessment and/ Perth and Kinross Council has identified a key challenge in co-ordinating which are not trauma-informed. Argyll or self-service and diagnostic options all of its rapid rehousing activity across different services and departments. and Bute proposes to transform the tools (mostly via Northgate modules). It proposes to create a specific Home First Officer post with a remit to working relationship between support Aberdeenshire plans to develop an App oversee all applications and voids to ensure the need for temporary commissioners and contractors across to communicate better with homeless accommodation is avoided as far as possible; to provide a link between the Council and H&SCP. customers, as face-to-face contact is options, PRS, localities, RSLs, support teams and repairs/voids teams; often rare in rural areas, so staff rely on to have responsibility for homelessness prevention and furniture funds Fife has had a Homelessness and more time-consuming methods. They and oversee test of change initiatives. A named officer ensures good Housing Support PSP for some years. also plan to review and improve all communication between teams and a clear line of responsibility if This offers a consortium approach information available on their website. issues arise. to commissioning and delivering services. The PSP has a Governance Co-ordination of activity Group able to commit funding for Co-ordination of rapid rehousing research, consortium training and “test activities and ensuring focus and Aberdeen City Council wants to create a Housing Support Hub, to be of transformational change” pilots. collaboration across many different used by all households requiring support, comprised of in-house and Dundee and Dumfries and Galloway departments/services is regarded as commissioned housing support, accommodation providers and H&SC, are considering a PSP approach, challenging by a number of authorities with links to local landlords. The Hub will have clear outcomes to achieve as well as jointly commissioning who have plans to introduce a co- in line with Local Outcomes Improvement Plan (LOIP) targets, to increase homelessness services with health. ordination/business change role to tenancy sustainment and reduce repeat homelessness, and services will be In the latter this has resulted in two ensure oversight, communication, measured on this basis. dedicated mental health posts for monitoring and oversee “test of homeless service users. change” pilots. Many authorities The Hub will be responsible for ensuring support is delivered to households requested funding for this purpose, who need it on day one, and customers given a choice of support. The Glasgow has now moved to an alliance with West Lothian acknowledging that emphasis on developing common pathways, outcomes and digital forms model of commissioning, an approach coordinating the RRTP draft required will facilitate staff spending more time with people and less in offices. which is being considered by other significant resource, which had to be All services are expected to be assertive in their nature, exhausting all authorities. North Lanarkshire aims to removed from operational teams, and measures to find and support customers, including use of peer support, streamline commissioning through that this is not sustainable over and teams will not be able to close cases for non-engagement. joint approaches for a shared client five years. group, and plans to create a third sector alliance with a small number of agencies. North Ayrshire is also considering an alliance approach.

64 This refers to a method for improvement in service organisations which focuses on a "systems thinking" approach, customer-centric service design and the elimination of "failure demand". 112 Rapid Rehousing Transition Plans (RRTPs): a Scottish overview Chapter 5. Service and culture change 113

Dundee’s options service undertakes are homeless on release. The East Ayrshire Council has introduced a “neighbourhood coach” model regular outreach work and links in standards are designed to maximise as a new way of providing community housing services, which it believes with police, street ambassadors and multi-agency working such that will also improve sustainability, access to advice and support, and trust. voluntary organisations to provide emergency accommodation can The model aims to reimagine the traditional relationship between social accommodation for anyone sleeping be avoided for prisoners on day of landlord and tenant. It is founded on three principles: 1) relationship-based rough. Stirling identifies a need to build liberation. Some authorities say they approach - shift to tenant strengths and potential rather than defining a rough sleeper pathway into its service. have implemented these standards relationship with the authority in terms of need, weakness and service already; more commit to “fully” provision; 2) connecting tenants to local services and assets to help them Some non-city areas with lower implement them through the RRTP. thrive; 3) core belief that everyone achieves more if tenants have the right levels of rough sleeping also describe home and relationship approaches to identifying and Fife is working with COSLA and responding where this does occur. ALACHO on a national initiative to Renfrewshire keeps a “by name” list adopt SHORE standards consistently of individuals seen sleeping rough or across all prisons. Fife is also working begging, and maintains close links with with Public Protection teams to set business and other organisations to up a Housing First model for prison Service pathways for include a citywide commitment to allow communication. Falkirk does not leavers, as well as considering creating particular groups reduce rough sleeping by 75% by 2020, have a high amount of rough sleeping, home leave properties as part of a multi-agency support service to but does have a part time dedicated release planning. North Ayrshire has Most RRTPs place at least some focus develop relationships with excluded resource whereby an outreach officer successfully engaged Housing First on specific groups identified as having service users and a city centre builds up trusting relationships with clients via prison outreach, so aims to unmet needs, or whose representation homelessness hub. It also commits those identified as having slept rough expand this more widely through the in the homelessness system is to work with partners to examine or at risk of doing so and facilitates RRTP process. especially high. the place of the city’s winter night their journey through services. As shelter, with the aim to improve service this has worked well, Falkirk wants to Based on RRTP detail, various For some, such as East Renfrewshire, responses to those who use it, and the extend this to a full-time role which authorities have well-established the RRTP records a general ultimate ambition to remove the need can also address repeat presentations. projects and/or protocols between commitment to review service for a low threshold shelter in the city. homelessness services and prisons. responsiveness and pathways for Other authorities’ consideration Around a quarter of authorities already particular groups (care leavers, hospital Edinburgh has a multi-agency health, of households with these risks provide outreach housing advice in leavers, veterans, prison leavers, people housing and Social Work service for varies in depth and breadth, local prisons. East Dunbartonshire has with dementia), and to build on existing clients with complex needs (The with for example, West Lothian, a specific officer identified to address protocols, though little detail is given. Access Point), a link worker for mobile all Ayrshires, Renfrewshire, Fife, prison release and liaison. Shetland Scottish Borders sets similar actions, homelessness assessments and rapid West Dunbartonshire and North successfully uses video-conferencing though with more detail, whilst East access accommodation (as described Lanarkshire undertaking significant to complete homelessness Lothian offers significant focus on in Chapter Three). The city also plans work to analyse the needs and assessments three weeks before pathways and options for specific to develop a full training programme extent of complex households and release and plan accommodation. groups. Edinburgh’s RRTP, in contrast, for the staff most likely to engage with where they are within the current has little detail on pathways for at risk rough sleepers (such as park rangers, system. All these authorities plan to groups, other than rough sleepers. waste and environmental health staff). develop clear pathways into their RRTPs describing current The RRTP does not reference the role services for these groups. Perth and outreach housing advice Rough sleepers/multiply (or extent) of the city’s care shelter, Kinross acknowledges the Council services in prisons excluded people now running for three quarters of needs a better understanding of, Aberdeen, Aberdeenshire, East The broadest focus on households the year. and engagement with, this cohort, Ayrshire, Falkirk, Glasgow, Perth sleeping rough and/or with complex including rough sleepers. and Kinross, North Ayrshire, needs is found with the RRTPs of Aberdeen has plans for a city-wide North Lanarkshire, South cities, given the prevalence of rough support Hub (see box on previous Prison leavers Ayrshire, South Lanarkshire sleeping, and the generally higher page), including assertive outreach All but three RRTPs refer to the SHORE proportion of persons excluded services, based on positive experience standards65 for prisoners, which aim RRTPs containing plans to from services. of its assertive outreach rough to prevent avoidable homelessness explore outreach housing sleeping and begging project in the occurring during sentences/remands advice in prisons Glasgow reports a comprehensive past winter. The Council will also and reduce the revolving door of Dundee, East Lothian (into range of current and planned projects take the approach of relaxing access homelessness/prison when prisoners Polmont YOI) aimed at improving engagement and to temporary accommodation in access for the most excluded. These winter to foreclose need for a shelter. 65 http://www.sps.gov.uk/Corporate/Publications/Publication-5363.aspx 114 Rapid Rehousing Transition Plans (RRTPs): a Scottish overview Chapter 5. Service and culture change 115

Aberdeenshire is piloting a shared by Shelter Scotland, focused on A&E to rapidly rehouse veterans leaving the as one of those, along with shared temporary tenancy approach for and ward-based discharges, which forces, preventing the need for them models of supported accommodation prisoners, to avoid release to B&B, to will be formally evaluated by Health to use temporary accommodation. for those who do not wish their own good outcomes, and intends to roll Improvement Scotland. tenancy. Clackmannanshire and Moray this out further. North Lanarkshire say they already offer a housing and is considering a training property West and Midlothian, Moray and RRTPs with a focus on housing support approach to care leavers approach for prisoners nearing release. East Ayrshire have hospital protocols needs of veterans which is very similar to Housing First. Orkney has worked in partnership with in place, but plan to review them. Aberdeen, Dumfries and a private sector landlord to develop In RRTPs, these authorities appear Galloway, East Lothian, Falkirk, four bespoke properties for released to have a strong focus on health Glasgow, Moray, North Ayrshire, RRTPs with a focus on prisoners who receive visiting support and homelessness. Midlothian’s Renfrewshire, Stirling, West diversifying housing options from Criminal Justice services. project is piloted by the Health and Dunbartonshire for care leavers Homelessness Steering Group. In East Dundee, East Lothian, Eilean Siar, Glasgow notes prisoners form Ayrshire, the Health and Homelessness Fife, North Lanarkshire, Orkney, a disproportionate number of Service covers a much wider range Veteran-specific housing is available Perth and Kinross, Renfrewshire, homelessness applications with poorer of areas than hospital discharge. in many areas of Scotland through South Ayrshire, West Lothian than average outcomes, so sets out a Shetland makes a funding request for national RSLs, and understanding what range of actions/projects to address an OT, with a role to intervene earlier is available to veterans specifically this, such as (Glasgow Housing to prevent delayed discharge and the (who of course may not wish veteran- East Lothian’s shared housing, peer Association) seconding a Housing need to move house. Moray already specific housing or support) is support model for care leavers, called Officer to support agency Tomorrow’s has an Occupational Therapist (OT) important for homelessness services. “Home and Belonging”, was described People, for female offenders, to improve based in the housing service, but Glasgow does not have a pathway in Chapter Two. North Lanarkshire housing outcomes for this group. wants to increase capacity. for veterans, but does have specific plans to operate a project, also called Renfrewshire takes a similar approach support services and a bespoke “Home and Belonging”, enabling (see box at end of this chapter). Veterans Housing Association, with links to care leavers to exercise choice and Veterans are less mentioned in RRTPs, other RSLs. East Lothian is developing personalisation over permanent Hospital protocols with only ten authorities referring to supported housing for veterans having housing and assist with the transition Half of RRTPs mention hospital this group and fewer still setting out a identified a local need for this and from children’s to adult services, discharge protocols or projects. specific housing pathway for veterans formalised its commitment in the East providing integrated assessments in their plans. of Scotland Armed Forces Covenant. which link to a rapid response from the NHS through quick access to RRTPS with a focus on Of those that do, North Ayrshire Care leavers necessary services, such as improving or implementing reports a protocol shared across all Care leaver pathways are covered mental health. hospital discharge pathways CHR partners whereby a specific set of in all but one RRTP, as would be Aberdeen, Argyll and Bute, actions are triggered when a housing expected given local authorities’ roles Dundee has identified a need for Dumfries and Galloway, application is received from a person as corporate parents and the existence 24-hour supported accommodation Dundee, East Ayrshire, East who indicates they are leaving the of national standards on care leaver for care leavers with complex needs, Dunbartonshire, Falkirk, Fife, forces. Such applicants will be offered housing protocols.66 These standards as well as Housing First. East Ayrshire Glasgow, Midlothian, Moray, bespoke housing advice, access to emphasise the range of housing offers shared supported properties Perth and Kinross, North Veterans’ First Point, an OT assessment options and tailored support that within a psychologically informed Ayrshire, Shetland, Stirling, West to ensure a suitable offer of housing, if should be available to care leavers, support service, in which residents Dunbartonshire, West Lothian required, and a points award for social as well as the right to “stay put”. Most can input into their colour scheme housing allowing immediate allocation. authorities have protocols, often and furniture, access supported leisure with named contacts, to minimise activities, networking opportunities Glasgow has a homelessness hospital Renfrewshire reports a tri-Council care leavers coming through the and community events. discharge team which works to approach to signing the Armed Forces homelessness system. ensure people are not discharged Covenant, with Inverclyde and East South Lanarkshire offers care with no accommodation, identifying Renfrewshire, to make the most of Ten RRTPs identified the need to leavers “housing experience” try-out an increased need for housing specialist services across the three diversify accommodation options tenancies, developed with input from suitable for IV drug users with areas to attain the best outcome for care leavers, with South Ayrshire, care leavers. Renfrewshire and Perth mobility needs. Perth and Kinross for veterans. This is supported by a Orkney, Fife, Eilean Siar, North and Kinross are considering “respite has a specialist officer working with bespoke Veterans Support Advisor Lanarkshire, West and East Lothian, properties” to allow time out for young H&SC for inpatients without housing shared between the three Councils including Housing First for youth people experiencing difficulties. Fife is on discharge. Fife has developed a to which options staff can refer. West hospital intervention project, managed Dunbartonshire makes a commitment 66 https://www.staf.scot/Handlers/Download.ashx?IDMF=a559a202-02cf-4475-87a6-b61382150380 116 Rapid Rehousing Transition Plans (RRTPs): a Scottish overview Chapter 5. Service and culture change 117

looking into a range of alternatives for Renfrewshire is already providing a Older people care leavers such as shared tenancies, house-sharing service specifically Older people, who may also have RRTPs with a focus on pathways supported accommodation, Housing for young people, East Lothian has different housing options and for households experiencing First and “test flats”. embarked on a youth-specific shared pathways, are not mentioned in domestic abuse housing model and Scottish Borders any RRTP. Though incidence of Aberdeen, Aberdeenshire, Angus, Young people aims to consider these options. East homelessness from older people Argyll and Bute, Dumfries and Care leavers aside, rates of youth Dunbartonshire plans to enhance is low, it is rising as a proportion Galloway, Dundee, East Ayrshire, homelessness in Scotland are high. the options of young people from of all homelessness applications.69 East Dunbartonshire, East Many authorities highlight this, and 25-35 through three-month stays Sheltered, amenity and care social Lothian, Falkirk, Fife, Glasgow, some place a strong emphasis on in supported accommodation with housing is more readily available than Highland, North Ayrshire, North youth-specific prevention activities. dedicated advice and support on mainstream social housing in Scotland, Lanarkshire, Orkney, Perth and But there is little focus in RRTPs on access to the PRS. East Ayrshire has but often applied to through CHRs, Kinross, Renfrewshire, Scottish services and pathways for young actions to encourage young people many of which use CBL, for which Borders, South Lanarkshire, people who do find themselves in the into the PRS, whilst monitoring the specific advice and support may Stirling, West Dunbartonshire, homelessness system, but who have impact of welfare reform on them be needed. West Lothian not been in, or just left, local authority and taking mitigating action. care. Glasgow and Edinburgh for Particularly in larger authorities where example say very little about young East Renfrewshire has plans to staff have large, mixed caseloads, In some cases, such as Stirling, this people within their homelessness investigate youth-specific housing ensuring tailored provision of advice is to acknowledge a lack of multi- system, including whether applications options which are affordable, effective to this group is important. Though agency co-ordination and pathways are dealt with by dedicated staff, given and sustainable (this may allude to Glasgow has a housing options service locally. It sets this as the first priority the different advice which may sharing). Aberdeen sets actions to for older people,70 an offshoot of its of its new Rapid Rehousing Working be required. work with partners to explore housing successful options model with multiple Group. Falkirk makes the same options for young people whereby partners, it doesn’t mention this in resolution. Angus, North Lanarkshire Most authorities have youth- they can learn skills and a trade its RRTP. and Aberdeen commit to reviewing specific supported accommodation while working on their future homes. their domestic abuse services in line (congregate and self-contained) and Future Builders67 and Live and Work,68 In our view homelessness pathways with findings from the Women’s Health most aim to review this to assess its projects which operate in Bristol for both younger and older people Improvement Research produced by ongoing suitability. Four authorities and Birmingham respectively, are within a local authority area could women with experience of abuse and are looking into non-institutionalised mentioned. benefit from further attention the homelessness system in Fife, and forms of temporary accommodation in RRTPs. Scottish Women’s Aid.71 East Ayrshire for young people (Scottish West Dunbartonshire is developing a has already done this, as has Fife, Borders, Edinburgh, Aberdeen and youth homelessness service tailored Domestic abuse through “Improving the way we Aberdeenshire). Orkney and Eilean Siar to the needs of young people. Whilst Domestic abuse is mentioned as a work” project. discuss plans to develop supported much of this service is prevention- prevalent cause of homelessness satellite properties and Housing First focused, being able to receive support in almost all authorities. Many Scottish Borders has a strong multi- respectively, for young people who from a youth-specific team is clearly of have refuge provision in their areas agency partnership approach for have not been in care but who have benefit to those whose homelessness though these may have long waiting domestic abuse. This include the complex needs. is not able to be prevented. This lists (East Lothian) or be in need of Safer Housing Options service and the follows a similar youth homelessness modernisation or facilities upgrades CEDAR service (Children Experiencing service in Dundee. (West Lothian and East Ayrshire). Two Domestic Abuse Recovery), as well RRTPs with a focus on options thirds of authorities discuss particular as the statutory arrangements of for homeless young people Dumfries and Galloway has set a pathways through (or avoiding) the MARAC (Multi-Agency Risk Assessment Aberdeen, Dundee, East more general action to develop and homelessness system for victims of Conference). Argyll and Bute sets an Ayrshire, East Dunbartonshire, implement a protocol for young domestic abuse, beyond refuges. action to prepare a protocol with all East Lothian, East Renfrewshire, people presenting to homelessness CHR partners which includes potential Eilean Siar, Renfrewshire, Scottish services. Scottish Borders will use for enhanced security measures in Borders, West Dunbartonshire, findings from its commisioned study social housing. West Lothian on the housing needs and aspirations of young people to inform pathways into services, as well as prevention- focused interventions. 69 https://www2.gov.scot/Topics/Statistics/Browse/Housing-Regeneration/RefTables/ homelessness1819tablescharts 67 https://www.1625ip.co.uk/What-We-Do/Future-Builders.aspx 70 http://www.healthscotland.scot/media/2219/5_bridget-curran_denise-murdoch.pdf 68 https://stbasils.org.uk/projects/live-and-work/ 71 https://womensaid.scot/wp-content/uploads/2017/07/Change-Justice-Fairness.pdf 118 Rapid Rehousing Transition Plans (RRTPs): a Scottish overview Chapter 5. Service and culture change 119

Dundee is looking into specialised services. In Falkirk’s case, there is an Whilst no RRTP reflecting on migrant Housing Options Officers with a remit aim to find a way to accommodate this homelessness offers a housing to work with households experiencing group. The other two Councils focus solution, it is our view that the few domestic abuse, requesting RRTP on providing advice, assistance and that shine a light on this very excluded funding for this. East Dunbartonshire’s multi-agency services, using learning group through the RRTP process Options service model takes this from the Syrian Refugee Programme in should be commended. approach already, with a dedicated the case of Dumfries and Galloway. Officer with this area of expertise. North Lanarkshire has created a As the only dispersal area in Scotland, Practice examples and ideas worth sharing training plan to upskill staff to be able Glasgow has a high proportion of to complete the nationally recognised migrant households and 10% of its evidenced based domestic abuse risk homelessness applications are from West Dunbartonshire Council has made efforts to identify vulnerable assessment tool (“DASH RIC”). This will refugees. It has a dedicated Asylum groups who are often over-represented in the homelessness system, and enable staff to complete safety plans and Refugee Support team and ensure appropriate pathways are in place for them. and facilitate appropriate signposting states rapid rehousing will form the to specialist advice, support and mainstay of the Council’s approach for The Council was the first authority to sign up to the CIH's Make a Stand advocacy services. this group. The RRTP acknowledges scheme having launched its zero tolerance “No Home for Domestic Abuse” that certain UK Government policies approach the same year, offering holistic housing options and support. Migrant homelessness undermine the H&SCP’s goal to end The Council has an award-winning care leavers’ protocol, informed by In some areas of Scotland migrant the need to sleep rough in Glasgow, the principle that care leavers will be offered the securest form of tenancy homelessness will be a rarer and commits to work with partners to available with dedicated wrap around support and named key worker. phenomenon than in others. National find ways to support this group. There statistics are not helpful in this is no more detail given. There is a dedicated resettlement officer for prison leavers. The Council regard, as only collect ethnicity, as plans to create protocols for people discharged from hospital and the opposed to nationality, details. Migrant Edinburgh, which has low applications forces, preventing the need for temporary accommodation. The Council homelessness is not mentioned at all from refugees but a high number has determined that those from LGBTQ+ communities and those with in three quarters of RRTPs. from European Economic Area (EEA) autism are over-represented in the homeless population and aims to nationals fleetingly mentions the develop pathways which offer choice in accommodation and support for Council’s dedicated EEA homelessness these groups. RRTPs which include mention team. This is a good example of of migrant homelessness Housing Officers providing a specialist Aberdeen, Clackmannanshire, service in a complex area. There Dumfries and Galloway, is no consideration of EEA/other Renfrewshire Council has noted that prison leavers are disproportionally Edinburgh, Falkirk, Glasgow, migrant groups who are destitute in represented in applications and much more likely to lose contact with Moray, Renfrewshire Edinburgh’s RRTP. Its rapid access homelessness services before being housed. The Council has run a accommodation model for rough successful Housing First project for five years. It wants to take the Housing sleepers will be of benefit here, but First principles on how support is offered and apply them specifically to West Lothian mentions that the Syrian isn’t specifically referenced in relation work with prison leavers. Refugee Resettlement approach to migrants. locally was successful and will be used This would entail recruiting two specialist peer mentoring and engagement as a good practice model, but does Aberdeen provides more detail on workers targeted at repeat homeless clients with an offending background. not discuss homeless migrants. Moray work done by partners to assertively The workers’ personal lived experience will help build trust and greater and Clackmannanshire highlight that outreach to migrant rough sleepers, engagement with this group. This initiative will be aligned with principles presentations from destitute migrants provide tailored advice and set out in the SHORE standards, in particular “adopting a person-centred are rare in their areas, but where they employability support and temporary approach” and “stickability” i.e. persevering when someone disengages. have arisen the authorities have been accommodation in winter. They outline able to provide multi-agency services the difficult problem of how to pay for including accommodation, in the latter accommodation for those within this case by using child protection powers group with no entitlement to housing for families. costs at all. There is no mention of destitute migrant groups in the RRTPs Falkirk, Dumfries and Galloway and of the other cities. Renfrewshire go further, with aims to develop services for migrants with no access to benefits or homelessness 120 Rapid Rehousing Transition Plans (RRTPs): a Scottish overview Chapter 5. Service and culture change 121

Aberdeen City Council provides a Domestic Abuse Support and North Lanarkshire Council completed a gap analysis in relation to its Accommodation Project (DASAP), in partnership with Cyrenians. The homelessness service and identified a lack of provision and information team gathers the details needed for the Council to be able to take a for pregnant women and LGBTQ+ people. They refer to the World Habitat homelessness assessment and make a decision without the household Report which highlights LGBTQ+ people are more likely to be affected by having to present at Council offices to repeat their story, thereby reliving domestic abuse and widespread discrimination, but that policy focus and lack trauma multiple times. Commissioned accommodation for women and of equalities monitoring on violence to women can limit attention on those children fleeing domestic abuse was successfully remodelled away from experiencing discrimination due to sexual orientation or gender identity. communal refuge living in 2017. Further work will be undertaken before re- commissioning to direct resources towards supporting women and families The Council has incorporated recommendations from the report into RRTP to remain in their homes, should they wish to. actions, which include improving understanding of the needs of LGBTQ+ through local engagement and consultation, undertaking multi-agency workforce development sessions to improve staff understanding and designing tailored responses to the issues faced by LGBTQ+ people across all services. East Dunbartonshire Council has a small team of four officers in its homelessness and prevention team, but has a creative structure for ensuring key at risk groups have appropriate pathways into services, such that they access timely preventative or resettlement support. Each officer has a specialist role with responsibility for one of the four areas of: domestic abuse, young people, households within the prison system and welfare reform. Each member is responsible for joint working with other agencies or teams, and ensuring the rest of the team are kept on top of key information and updates. There is a separate adviser for PRS access services and rapid rehousing initiatives.

Comhairle nan Eilean Siar has made a commitment that all young people leaving care have suitable accommodation, and do not need to present as homeless. This includes that Housing First for youth should be available to young people requiring it, but that shared supported accommodation should remain an option for those who do not want their own tenancy at that stage. They also plan for Housing First for youth to be made available to young people who have not been in care but who have complex support needs.

Glasgow City Council has plans to open a City Centre Homeless Hub, conceived as a multi-agency “one stop shop” with routes into statutory services and H&SC interventions. It will link in with the City Ambition Network (CAN) which has been operating over recent years as third sector- led multi-agency partnership. CAN aims to build trust with excluded homeless individuals, then facilitate access towards settled housing. CAN provides support to Housing First tenants through one of the city’s projects, having developed engagement and then referred interested clients into the project. The Hub will allow this type of pathway to have a central base in Glasgow improving access to Housing First and statutory services for a greater number of rough sleepers and excluded individuals. 122 Rapid Rehousing Transition Plans (RRTPs): a Scottish overview Chapter 6. Resources 123

in June 2019,73 has led to original everything else (in dark grey), plotted requests being substantially revised against the number of live cases Chapter 6 by authorities. reported by the authority in its RRTP. This shows not only the extent of This context attempts to offer an insight variation in costings for Housing First into the complexity of the funding by authority, but also that Housing First question, and the difficulties inherent does not dominate funding requests Resources in completing a simple “compare and in every authority; in fact this only contrast” exercise, either between appears to be the case in around half. authorities in respect of the original The reason Housing First dominates monies requested, or between this overall funding requests can instead be amount and the total funding available. attributed to the fact it is the only item on every single authority’s funding list. What was expected of local It is clear from reviewing early Funding requested authorities in the toolkit? funding requests that authorities had Taking the above caveats into account, If Pathfinder costings are those used to RRTP guidance asked authorities to approached the task in different ways. the total RRTP funding requested in upscale the model in future, it is clear consider whether they were able to In laying out the targets of funding, preliminary drafts of the 26 RRTPs that some RRTPs greatly exceeded make changes to their services within some packaged up multiple tasks/ reviewed was £102.9 million.74 those in their funding requests. But existing resources, or whether they projects within one job description Glasgow’s initial ask (£18.3 million) it also suggests there is a framework required additional funding from the or role, whilst others spelt out every dwarfed all others, and was double that available by which these costs can be £50 million Ending Homelessness action and its respective cost. Perth of Edinburgh (£9.2 million). Fife and pinned down more easily in future, Together Fund.72 and Kinross helpfully prioritised their South Lanarkshire both requested more and that only very general conclusions funding requests in order of need, than the capital city, seeking £13.2 should be drawn from the funding Authorities were advised that resources as well as the potential availability of and £9.3 million respectively. North detail presented here, coming as it did required for additional housing supply funding from elsewhere. Lanarkshire requested £6.3 million. from the very early stage. would continue to be channelled through the AHSP, and that RRTP Items for which funding was requested Of the remaining 19 authorities which Funding for other activities funding could only be requested for by some authorities, for instance provided five-year requests, these Other activities for which authorities actions relating to service or existing acquisition and provisioning of range from £1.1million (Scottish requested RRTP funding are not as temporary accommodation re-design; additional temporary accommodation Borders) to £3.5 million (South neatly packaged as Housing First. A support requirements; or access to appear to come under the heading of Ayrshire). The average initial request for crude attempt has been made here housing supply. capital costs, which are not covered authorities not part of the above group to group them, for the purposes of by the Ending Homelessness Together of five large “outliers” was £2.4 million. analysis; crude, as some activities fund. Other requests, such as for NHS clearly fall into more than one area, Overview staff providing support to Housing First Housing First funding i.e. PRS access may play a rehousing projects, should arguably be funded By far the largest single item for which and preventative role; housing support Limitations in analysing from other budgets. RRTP funding was requested was could be understood as simply another funding requests Housing First; this totals £37.8 million, part of preventative provision. Funding requests have been the most Items of a similar type, for instance, with Glasgow accounting for a fifth of complex area of RRTPs to overview, furniture for Housing First projects, this. But, as referenced in Chapter Two, For this analysis, additional housing let alone analyse. This was the part of were also costed in very different ways, how Housing First was costed and support capacity and redesigned RRTPs most likely to be missing from as mentioned in Chapter Two. This assessed varied greatly by authority. support services have been classed as initial drafts submitted by 31 December diversity of approach makes it hard to Some laid out in RRTPs how they “tenancy support”, with “prevention” 2018, with many authorities making compare and contrast the requests arrived at their costings whilst others containing a much larger range of clear that more work was needed to authorities put to Government. did not, making assumptions hard to activities (prevention staff, mediation, cost their plans. We were only able to understand and comparisons difficult. furniture, welfare reform mitigation, locate 24 five-year funding requests Perhaps most importantly, ongoing prevention funds, tenancy training, and one partial funding request (East feedback from the Scottish The chart overleaf shows the employability, advocacy services, OTs, Renfrewshire) after the second round Government on the costing of bids, proportion of funding requested additional SWF officers and public of submissions in spring 2019. followed by announcement of the first for Housing First (in red) and for engagement/campaigns). year of funding allocations for RRTPs

73 Helpfully detailed on SFHA’s website: https://www.sfha.co.uk/news/news-category/policy-update/news- article/rapid-rehousing-funding-distribution 74 The full total for all 32 authorities was reported in Inside Housing in June 2019 as £130million. https:// 72 Of this, £3.75million had already been allocated for Housing First in Pathfinder cities; £2 million to all www.insidehousing.co.uk/news/news/cost-of-new-scottish-homelessness-plan-assessed-as-eight- authorities to help develop the RRTP and £328,000 for “winter actions” preventing rough sleeping in cities. times-above-budget-61943 124 Rapid Rehousing Transition Plans (RRTPs): a Scottish overview Chapter 6. Resources 125

Chart 9 Chart 10 Chart 9. Funding requests compared to live homelessness cases in 23 authorities Chart 10. Nature of RRTP funding requests in 23 authorities

20 4,000 6% Housing First 6% 18 3,500 Housing support 16 Prevention 3,000 14 14% 38% Conversion of TA 2,500 Service coordination, 12 review, research 10 2,000 Access and housing

8 1,500 18% 6 Millions (£ Sterling) 1,000 4 18% 2 500 0 0 Fife Falkirk Moray Dundee Stirling Orkney Glasgow Highland Edinburgh Midlothian Inverclyde The above chart shows that, after West Lothian East Lothian Housing First, the largest area for AberdeenshireNorth Ayrshire SouthPerth Ayrshire & Kinross Scottish Borders North Lanarkshire South Lanarkshire which funding requests have been East DunbartonshireWest DumfriesDunbartonshire & Galloway made is for more or redesigned tenancy support. Given most of the funding for Housing First is for tenancy Funding requested for Housing First Live homeless cases support also, the overall direction of Chart 11 Funding requested for everything else travel is clear: 56% of funding is for support which will assist people to sustain tenancies, whatever their level of need. 40 “Temporary accommodation “Service coordination, review and Prevention is the next largest area for conversion” includes requests research” contains request for funding 35 funding requests, taking up 18% of to: convert B&Bs into supported for rapid rehousing coordination staff the total. Funding requests to convert accommodation; convert temporary and actions such as feasibility studies, 30 temporary accommodation accounts tenancies into SSTs (and often research, consultancy, IT changes, 25 for the next largest proportion, with replace them); convert hostels into business change resource, pilots and service redesign and settled housing specialist supported accommodation training. Lastly, “access and rehousing” 20 access schemes taking up a smaller or dispersed properties; or acquire refers to additional rehousing officers, amount of requests. The chart additional properties for shared PRS access or shared housing schemes 15 overleaf shows the amount of funding tenancies. As alluded to above, and prison outreach. requested for each area. 10 some of these costs fall into the area Millions (£ Sterling) of capital funding, and would be 5 expected to be removed at a later stage of this exercise. 0

Prevention Housing First

Housing support Conversion of TA review, research Service coordination,Access and rehousing Chart 10

6% Housing First 6% Housing support Prevention 14% 38% Conversion of TA Service coordination, review, research Access and housing 18%

18%

126 Rapid Rehousing Transition Plans (RRTPs): a Scottish overview Chapter 6. Resources 127

Chart 11 Chart 11. Amount of RRTP funding requested by 23 authorities, by area fund. Falkirk and West Lothian also Per person costs have then been identify savings which can be made allocated based on the level of in future, allowing rapid rehousing to support needs identified within the 40 proceed without ongoing reliance on RRTP. Accordingly, Housing First Government funding. clients would cost the total of £34,518 35 annually in the current system. Those 30 Financial impact assessments with no or low needs have been Stirling, Glasgow, North Lanarkshire assumed to use homelessness services 25 and North Ayrshire used consultants only, so cost £14,808 per annum. to produce a financial impact Costs for the medium needs group 20 assessment for the transition they were estimated to fall in the middle of want to make. This aims to show the these two extremes. 15 reduction in public spending which 10 could be achieved by moving to a Millions (£ Sterling) rapid rehousing approach. These 5 assessments refer to what are termed the “most significant research findings” 0 on the issue, which is our 2016 research, Better than Cure?75 and use the costs below: Prevention Housing First

Housing support Conversion of TA review, research Table 4: The costs of single homelessness over one year Service coordination,Access and rehousing Cost Estimated average Estimated annual per person spending Drug / alcohol services £1,320 £113,584 Differences in funding requests Funding for converting temporary Mental Health £2,099 £180,560 between authorities accommodation dominates NHS £4,298 £369,660 As with all other areas of RRTPs, Edinburgh’s request (71%) and is Criminal justice £11,991 £1,031,272 funding bids revealed significant over half of Fife’s and Highland’s, but Homeless services £14,808 £1,273,488 diversity across Scotland. For example, does not feature at all in ten areas, Housing First represents over 75% of two of which (Stirling and North Total £34,518 £2,968,564 the total funding requested in North Ayrshire) report a positive balance Ayrshire, Falkirk, Stirling and Inverclyde, in this section, based on closure of and between 50-70% in seven further commissioned hostels. West and East authorities (Scottish Borders, South Lothian, East Dunbartonshire, Moray, Table 5: Estimated annual cost of homelessness per Ayrshire, Orkney, Midlothian, North South Ayrshire, Glasgow, Scottish person by support needs Lanarkshire, West Dunbartonshire and Borders and Falkirk also request no Moray). But it represents less than 5% funds in this area. Annual cost per person of Dumfries and Galloway’s request, and less than 20% in Edinburgh, East A minority of RRTPs aim to show that No or low support needs £14,808 Lothian, Dundee and Highland. if start-up or transitional funding is Moderate to high £24,663 received as requested, services will support needs Prevention type activities take up over be able to self-fund at the end of the Complex support needs – £34,518 half the funding request for West and RRTP period. Highland and Dundee Housing First East Lothian and Aberdeenshire, but request transitional funding to set less than 10% of total request in eight up/staff a shared temporary tenancy areas (Inverclyde, Highland, Falkirk, service and effect hostel closures, North Ayrshire, West Dunbartonshire, whilst identifying that by the end of the Dumfries and Galloway, Fife and process, savings from spend on B&B Stirling). and direct access hostels respectively should allow new services to self-

75 https://www.crisis.org.uk/media/20680/crisis_better_than_cure_2016.pdf 128 Rapid Rehousing Transition Plans (RRTPs): a Scottish overview Concluding remarks 129

The analysis then measures the • investigating whether costings of lower public spend required by Housing First at £12,25076 per person shorter rehousing and temporary annually reflects Scottish figures accommodation timescales, as well as reduced use of emergency public • including rents in costings for Concluding services, for each of the three groups Housing First identified, minus the costs of Housing First for the identified proportion This is surely a complex task, but a of complex clients and lower level worthwhile one in terms of getting to tenancy support required for “medium” the bottom of cost effectiveness in a remarks needs clients. It then models the Scottish context. savings in public spending using scenarios whereby rapid rehousing So do we know what a rapid achieves 100%, 70% and 50% success. rehousing transition will cost? This chapter has aimed to demonstrate The analysis concludes that, with a the inherent difficulties in accurately 50-70% success rate, savings on public costing the transition to rapid Scotland has made ground-breaking progress in spending could be between £52 and rehousing in Scotland at this very early homelessness policy in the past two years, building on £76million in Glasgow, £6-£12million stage. What is clear is that the top-level in North Lanarkshire, £5-£7million in sum total of 32 early funding requests already progressive post-devolution foundations. North Ayrshire and £3-£4.5million in should be viewed with caution, given Stirling over a five year period. This the extent of diversity across Scotland, is obviously extremely encouraging the inclusion of capital costs and the This report shows that local authorities There is learning within this report for in terms of making the case for as yet undefined contribution from and their partners have stepped up Scotland, but also for others looking rapid rehousing, and indeed the other RRTP partners in most cases. to the challenge set by Government, to make the change that Scotland is cost effectiveness of the transitional making bold plans to transform already making. funding amounts requested. It is therefore unhelpful to contrast Scotland’s homelessness systems this sum with the RRTP fund total and and services. We look forward to supporting this However, for the purposes of conclude Scotland cannot adequately change, and sharing it more widely, determining the cost effectiveness resource a transition to rapid As a relatively new area of policy and such that across Great Britain, of rapid rehousing in Scotland, the rehousing. This is not only because practice, we don’t have all the answers we move from simply managing above analysis may be able to be it seems too early to determine what to the questions rapid rehousing homelessness, to truly ending it. strengthened by: transition will actually cost, but also poses, or solutions to some of the because resourcing responsibilities, challenges it presents. • breaking down to which agencies as well as potential savings, should fall savings may accrue to a broader range of partners than But we do have 32 route maps which those in homelessness services alone. show us what change could look like • making clear where resources It may also be possible to attract other in each local context. currently available to authorities may funders to support this work, such as in fact decrease with rapid rehousing social investment providers. (mainly via reduction in HB income from Council-owned, self-contained This area is developing quickly. The temporary accommodation) next years will be key in helping to pin down costs, savings and how to • looking more carefully at whether interpret these from a whole public the costs from our 2016 research services perspective, rather than from represented by “homeless services the siloes of individual budgets. use only” (£14,808 per person per year) accurately reflect the costs of no/low needs single homelessness in Scotland

76 This figure is taken from PWC costings produced for Crisis’ Plan to End Homelessness (www.crisis.org. uk/media/238957/assessing_the_costs_and_benefits_of_crisis-_plan_to_end_homelessness_2018. pdf); figures are derived from Crisis’ Housing First Feasibility study for Liverpool City Region (housingfirsteurope.eu/assets/files/2016/06/housing-first-full-report_24jul_v4.pdf) 130 Rapid Rehousing Transition Plans (RRTPs): a Scottish overview Appendices 131

Falkirk Appendix I: links to drafts https://www.falkirk.gov.uk/coins/submissiondocuments.asp?submissionid=16033 of RRTPs consulted Fife http://publications.fifedirect.org.uk/c64_Item11-Appendix1RRTPHomelessness.pdf

Glasgow https://glasgowcity.hscp.scot/sites/default/files/publications/ITEM%20No%2007%20-%20Glasgow%20 Rapid%20Rehousing%20Transition%20Plan%202019-20%20to%202023-24_0.pdf

Local authority Highland https://www.highland.gov.uk/download/meetings/id/75299/item_8_homelessness_rapid_rehousing_ transition_plan_update Aberdeen https://committees.aberdeencity.gov.uk/documents/s92398/Rapid%20rehousing%20report%20add%201. Inverclyde pdf?txtonly=1 https://www.inverclyde.gov.uk/meetings/documents/11728/19%20Rapid%20Rehousing%20Transition%20 Plan.pdf Aberdeenshire https://cl-assets.public-i.tv/aberdeenshire/document/_08__Rapid_Rehousing_Transition_Plan.pdf Midlothian https://www.midlothian.gov.uk/download/downloads/id/3272/rrtp_2019_2020_to_2023_2024.pdf Angus http://www.angus.gov.uk/sites/angus-cms/files/2018-11/347_AppA.pdf Moray http://www.moray.gov.uk/downloads/file122834.pdf Argyll & Bute RRTP not as yet publicly available; a draft was kindly shared with Crisis prior to this report being published. North Ayrshire https://north-ayrshire.cmis.uk.com/north-ayrshire/Document. Clackmannanshire https://www.clacks.gov.uk/document/meeting/266/907/6292.pdf North Lanarkshire https://mars.northlanarkshire.gov.uk/egenda/images/att89826.pdf Dumfries & Galloway https://dumfriesgalloway.moderngov.co.uk/documents/s9726/Appendix%20-%20Rapid%20Rehousing%20 Orkney Transition%20Plan.pdf https://www.orkney.gov.uk/Files/Committees-and-Agendas/Education/ELH2019/ELH03-04-2019/I13__ Rapid_Rehousing_Transition_Plan.pdf Dundee https://www.dundeecity.gov.uk/reports/reports/9-2019.pdf Perth & Kinross https://www.pkc.gov.uk/media/44399/Rapid-Rehousing-Transition-Plan/pdf/Rapid_Rehousing_Transition_ East Ayrshire Plan_-_Revised_Final_-_May_2019.pdf?m=636953224709400000 http://alacho.org/current-priorities/homelessness/rrtp/ Renfrewshire East Dunbartonshire https://renfrewshire.cmis.uk.com/renfrewshire/Document. http://alacho.org/current-priorities/homelessness/rrtp/ Scottish Borders East Lothian https://scottishborders.moderngov.co.uk/documents/s35153/Item%20No.%209%20-%20Appendix%201%20 https://www.eastlothian.gov.uk/downloads/file/28600/rapid_rehousing_transition_plan_-_draft -%20Scottish%20Borders%20RRTP%202019-20%20-%202023-24.pdf

East Renfrewshire Shetland https://www.eastrenfrewshire.gov.uk/CHttpHandler.ashx?id=24301&p=0 https://www.shetland.gov.uk/coins/submissiondocuments.asp?submissionid=23789

Edinburgh South Ayrshire https://www.housingnet.co.uk/pdf/Item_8.3___Rapid_Rehousing_Transition_Plan_(1) https://ww20.south-ayrshire.gov.uk/ext/committee/committeepapers2019/Leadership%20Panel/12%20 February%202019/LP1202199a%20Rapid%20Rehousing.pdf Eilean Siar https://www.cne-siar.gov.uk/media/13225/K%2011B%20-%20Appendix%201%20C&H%20Rapid%20 South Lanarkshire Rehousing%20Transistion%20Plan%20Feb%202019.pdf https://www.southlanarkshire.gov.uk/downloads/file/12664/rapid_rehousing_transition_plan_2019-2024 132 Rapid Rehousing Transition Plans (RRTPs): a Scottish overview Appendices 133

Stirling http://minutes.stirling.gov.uk/pdfs/environment%20%26%20housing/Reports/EH20190912Item04Minutes.pdf Appendix II: list of acronyms

West Dunbartonshire https://www.west-dunbarton.gov.uk/media/4317195/wdc-rapid-rehousing-transition-plan-2019-24- updated-may-2019.pdf

West Lothian https://www.westlothian.gov.uk/article/47498/Rapid-Rehousing-Transition-Plan- ADP Alcohol and Drug Partnership AHSP Affordable Housing Supply Programme ALACHO Association of Local Authority Chief Housing Officers ARC Annual Return on the Charter (Social Housing Charter; statistical return to the SHR) ASB Anti-social behaviour B&B Bed and Breakfast BRMA Broad Rental Market Area CBL Choice Based Lettings CHR Common Housing Register CIH Chartered Institute of Housing COSLA Convention of Scottish Local Authorities DHP Discretionary Housing Payment EEA European Economic Area EIA Equality Impact Assessment H&SCP Health and Social Care Partnership HARSAG Homelessness and Rough Sleeping Action Group HB Housing Benefit HL1 Local authority statistical return on homelessness applications (to Government) HMA Housing Market Area HMO House of Multiple Occupation IJB Integrated Joint Board LCHO Low Cost Home Ownership LGBTQ+ Lesbian Gay Bisexual Transgender Queer+ LHA Local Housing Allowance LHS Local Housing Strategy LOIP Local Outcomes Improvement Plan MAPPA Multi-agency Public Protection Arrangements MARAC Multi-agency Risk Assessment Conference MMR Mid-Market Rent OT Occupational Therapist PCS Partner Contribution Statement PIE Psychologically Informed Environment PLSO Private Landlord Support Officer PREVENT1 Local authority statistical return on options activities (to Government) PRS Private Rented Sector PSL Private Sector Leasing PSP Public Social Partnership PRT Private Residential Tenancy RRTP Rapid Rehousing Transition Plan RSL Registered Social Landlord RTO Registered Tenant Organisation SAR Shared Accommodation Rate (of LHA) SDS Self-Directed Support SHIP Strategic Housing Investment Plan 134 Rapid Rehousing Transition Plans (RRTPs): a Scottish overview Appendices 135

SHN Scottish Housing Network SHR Scottish Housing Regulator SHORE Sustainable Housing on Release for Everyone SLA Social Lettings Agency SLAB Scottish Legal Aid Board SIMD Scottish Index of Multiple Deprivation SMD Severe and Multiple Disadvantage SQA Scottish Qualifications Agency SST Scottish Secure Tenancy SWF Scottish Welfare Fund SWOT Strengths, Weakness, Opportunities, Threats analysis UAO Unsuitable Accommodation Order UC Universal Credit YOI Young Offender Institution Crisis Scotland Crichton House 4 Crichton's Close Edinburgh EH8 8DT www.crisis.org.uk © Crisis 2020

Crisis UK (trading as Crisis). Registered Charity Numbers: E&W1082947, SC040094. Company Number: 4024938