Homelessness Factfile Anthony Warnes, Maureen Crane, Naomi Whitehead, Ruby Fu HOMELESSNESS FACTFILE Anthony Warnes, Maureen Crane, Naomi Whitehead and Ruby Fu Homelessness Programme Team Sheffield Institute for Studies on Ageing University of Sheffield Crisis is the national charity for solitary homeless people. We work year-round to help vulnerable and marginalised people get through the crisis of homelessness, fulfil their potential and transform their lives. We develop innovative services which help homeless people rebuild their social and practical skills, join the world of work and reintegrate into society. We enable homeless people to overcome acute problems such as addictions and mental health problems. We run services directly or in partnership with organisations across the UK, building on their grass roots knowledge, local enthusiasm and sense of community. We also regularly commission and publish research and organise events to raise awareness about the causes and nature of homelessness, to find innovative and integrated solutions and share good practice. Crisis relies almost entirely on donations from non-government organisations and the public to fund its vital work. Last financial year we raised £5.5m and helped around 17,000 people. Much of our work would not be possible without the support of over 3,000 volunteers. Crisis was founded in 1967 and has been changing the lives of homeless people for 35 years. Crisis 64 Commercial Street London E1 6LT Tel: 0870 011 3335 Fax: 0870 011 3336 Email: [email protected] Website: www.crisis.org.uk Crisis UK (trading as Crisis) Charity no 1082947. Company no 4024938 © Crisis, May 2003. ISBN 1-899257-51-9 Cover photos © Michael Grieve/Crisis For a full list of Crisis publications and an order form please contact 0870 011 3335 or visit the Crisis website at www.crisis.org.uk/publications; to place an order contact the credit/debit line hotline on 0870 011 3335. Typeset and printed by Witherbys, London. Contents Preface 0 List of principal abbreviations 0 1Homelessness and the Factfile 0 PART 1 PROFILES OF HOMELESS PEOPLE 2Homeless people: groups and numbers 0 3 Characteristics of single homeless people 0 4 Pathways into homelessness 0 5 Pathways through and out of homelessness 0 6Homeless people’s experiences and activities 0 PART 2 POLICY AND SERVICE RESPONSES TO HOMELESSNESS 7 Societal responses to homelessness 0 8 The local authority duty to assist homeless people 0 9 State welfare benefits: entitlements and access 0 10 Access to health care and substance misuse services 0 11 Government responses to single homelessness 0 12 Service provision for single homeless people 0 13 Preventing homelessness 0 14 The next decade 0 Appendix: Data sources 0 References 0 Acknowledgements 0 The authors 0 Index 0 Crisis publications 0 Publications order form 0 Preface As the numbers of rough sleepers fall and those of the hidden homeless rise, I am reminded of how much there is still to achieve if we are to continue reducing all forms of homelessness and enable people to truly leave homelessness behind. The support needs of homeless people remain as diverse and as complex as ever whether they are in hostels, B&Bs, squats or on the streets. Tackling homelessness is now widely accepted as being about more than providing a roof, with people facing drug and alcohol addiction, mental health problems as well as building social support networks away from homelessness arena. We need to provide meaningful activity to fill the gaping void left behind by previous drug or alcohol addictions or life on the streets. Since the last Homelessness Factfile there has been a myriad of research, statistics, policy and legislative developments. This edition draws together all the information available into a single accessible encyclo-paedia shedding light into single homelessness. It paints a true and sometimes depressing picture of what lies behind the statistics, the problems and patterns of homelessness in 21st century UK. This edition will be taking pride of place on my bookshelves both at work and at home providing me with an invaluable source of information. I hope that you will find this edition of the Factfile as useful and as comprehensive as I have done. It is essential reading for all homelessness professionals and those seeking a greater understanding of the issues. We will continue at Crisis to fight homelessness and empower people to fulfil their potential and transform their lives. To do this we continue to combine well-run services, campaigning and informed research to which I truly believe this Factfile makes a fundamental contribution. Shaks Ghosh Chief Executive, Crisis List of principal abbreviations A&E Hospital accident and emergency department B&B Bed-and-breakfast hotel CABx Citizens Advice Bureaux CAT Contact and assessment team (street outreach workers funded by the RSU) CRASH Construction and Property Industry Charity for the Homeless DETR Department of the Environment, Transport and the Regions (1997-2001: succeeded by DTLR). DH or DoH Department of Health DTLR Department for Transport, Local Government and the Regions (2001-): housing functions transferred to OPDM in 2002. DSD Department for Social Development (Northern Ireland) DWP Department for Work and Pensions (2001-): succeeded Department of Social Security. GP General (medical) practitioner HA Housing association HB Housing Benefit (state social security payment) HD Homelessness Directorate of the ODPM (replaced Rough Sleepers Unit, 2002-) LA Local authority LB London Borough NHS National Health Service NIHE Northern Ireland Housing Executive ODPM Office of the Deputy Prime Minister (succeeded DTLR as responsible for housing and homelessness, 2002-) PCG Primary Care Group (NHS) PCT Primary Care Trust (NHS) PMS Personal medical services (NHS) RSI Rough Sleepers Initiative (1991-1999) RSL Registered social landlord RSU Rough Sleepers Unit (1999-2002) SEU Social Exclusion Unit (of The Cabinet Office, 1997-2002, now of the ODPM) TST Tenancy sustainment team (tenancy support workers funded by the RSU) UK United Kingdom USA United States of America YMCA Young Men’s Christian Association HOMELESSNESS AND THE FACTFILE 1. Homelessness and the Factfile Homelessness has received a great deal of attention research findings. Conceived as a compact encyclo- since the mid-1990s from policy makers, service paedia, this Factfile is in part a gateway to these large providers, the media and the public. Many and diverse resources. For the sake of readability, the sources are reports have been written about the problems and specified in endnotes to each chapter, while the full needs of homeless people, and about the services that bibliographic details of publications are given in a list help them. This second edition of the Homelessness of references.3 Factfile draws on these and many other sources to provide accessible and up-to-date information. The Most of the information contained in the Factfile Factfile has two main themes: the characteristics of relates to the United Kingdom. Its few references to homeless people, and the policy and service responses other countries are mainly to note policy and practice to homelessness and to its prevention. influences and models. Many homeless sector providers and supporting organisations have provided The chapters on policies and service responses deal reports and statistics about their work, and these have with the contemporary history of policy and practice strengthened the factual backbone of the Factfile. development, variations in different parts of the Valuable information has also been gathered from the country, and the statutory agencies, organisations and website pages of many organisations and government projects that work with homeless people. The Factfile is departments that describe policies and services, and however more than a directory, for it also reviews and that make available statistics, factsheets and reports. evaluates the current scene. Indeed, the later chapters Other sources include surveys and studies of homeless are critical examinations of some of the most vigorously people, evaluations of homeless people’s services, debated current policy and practice development reports of health and welfare services for the general issues. population, and media reports. The Factfile is intended for several different users, but Gaining a command of the many topics has been a most of all for the diverse organisations and many substantial task, partly because of the unprecedented individuals involved in planning, establishing and pace of contemporary policy and practice change, and delivering services for homeless people. Policies partly because of the distinctive legislation, policy and practices are changing quickly. Besides the spate analyses and institutional developments in Scotland, of new legislation and initiatives in homelessness Wales and Northern Ireland. The information was services during the last few years, there have been compiled during the second half of 2002, and numerous reforms of Britain’s housing, health and social services, many of which are relevant to homeless announcements and publications that appeared up to people. It is difficult to keep up-to-date and fully December have been reviewed. informed, and it is hoped that the book will help the reader to find useful details and to see the wider policy Homelessness and homeless people and practice trends. Both experienced service providers Despite all the attention that homelessness has wishing to review their