Understanding Homelessness

Last updated November 2005

Author: Des Ryan, Director, Edinburgh Cyrenians

Introduction

The current size of the problem and trends

Why the increase?

Ending Homelessness in Scotland - Target 2012

Introduction

The purpose of this paper is to offer an overview on homelessness in the UK in year 2004. It may be helpful in:
• Preparing talks and presentations
• Drafting articles, reports or research proposals
• Developing new projects and services
• It gives the perspective of homelessness charity, Edinburgh Cyrenians as derived from 36 years of front-line agency experience.

Edinburgh Cyrenians is an independent charity providing innovative help to hundreds of people a year whose lives are blighted by homelessness and poverty as well as working with all parts of the community to eradicate homelessness and promote social inclusion. Cyrenians aim to:
• provide practical helping services for people who are homeless and to prevent people becoming homeless
• support people in using opportunities to resettle: to build and maintain a successful lifestyle away from homelessness, unemployment and poverty
• inform the public about homelessness, promoting a kinder, more inclusive community and to work with others - national & local government, public & private sectors & other NGO's - to develop strategies that will end homelessness

The charity has developed a comprehensive strategy and a range of inter-connected services aimed at tackling all aspects of homelessness and enabling people to progress to a better life. Our help is offered with respect for the dignity of each individual and is provided in a holistic manner, ensuring that people have the best chance of finding real and lasting solutions to their problems.

The current size of the problem and trends

Homelessness is rising in Scotland. Official homelessness statistics have risen in Scotland, with almost 55,000 applicants in 2003-04, 6% higher than the previous year. Almost two-thirds were single people, mainly men, with single parents making up the next biggest group, accounting for over a fifth of applicants. Eight per cent of these people, almost all single people, were repeat applicants.

Since the mid-90s the proportion of applicants assessed as in priority need has increased. In 1995-96, 41% of applications were assessed as in priority need, rising to 51% of applications in 2003-04. This is particularly the case for single people. While a quarter of applicants were in priority need in 1996-97, this had almost doubled to 45% in 2003-04.

Looking at the housing outcomes of applicants in 2003-04, of the 21,700 assessed as priority need, 56% were re-housed in permanent accommodation, 15% secured temporary accommodation and 7% returned to their previous or present accommodation. Of the 8,900 assessed as non-priority need, 12% were re-housed in permanent accommodation, 16% secured temporary accommodation and 12% returned to their previous or present accommodation. More families assessed as in priority need secured permanent accommodation than single people: 71% compared with 44%.

On 31 March 2004 there were 6,574 households in temporary accommodation, an increase of 20% since 31 March 2003. Of these, 54% of households were in local authority accommodation, with a further 25% in hostels and 18% in bed and breakfast accommodation.

As shocking as they are, these figures do not tell the whole story. They do not include those who do not apply to the local authority:
• because they think there is no help to be had there, possibly with a history of arrears or negative history of being in Care
• because they can't handle the bureaucracy due to antipathy, emotional or mental health problems or general feelings of disaffection from society
• because they are detached from any help and simply don't know where to go or what to do
• because they are avoiding going 'on record' due to (e.g.) outstanding offences
The 'hidden homeless' will also include those who are in prison or other institutions without a home to return to or move on to, women unable to escape domestic violence and young people 'sofa surfing' with friends or relatives. In fact, everyone who is without a private, secure living space in which they can live safely and healthily and can order their life as contributing members of society. Being homeless is just that - being without all or some of the essential things that a home gives you for living, organising and enjoying your life.

The real level of homelessness is certainly much higher than official figures although welcome changes in the law (see below) mean that some of the 'hidden homeless' problem is being brought into sight and dealt with.

Why the increase?

The duty of local authorities to help homeless people has been strengthened in Scotland over the last few years. In 2001, the Scottish parliament passed laws which placed additional duties on councils to provide a minimum of temporary accommodation, advice and assistance to all applicants assessed as homeless. This has included non-priority homeless applicants from September 2002, who only received advice and assistance before that date.

Homeless people in Scotland can look forward to even more help in the future. The Homelessness etc (Scotland) Act 2003 is more long-term, notably by phasing out the distinction between priority and non-priority applications, and letting councils suspend the local connection test. The ultimate aim of the act is to ensure that everyone assessed as being unintentionally homeless is entitled to permanent accommodation by 2012.

Ending Homelessness in Scotland - Target 2012

The Homelessness Task Force was set up in 1999 by the Scottish Executive to: 'review the causes and nature of homelessness in Scotland; to examine current practice in dealing with cases of homelessness; and to make recommendations on how homelessness in Scotland can best be prevented and, where it does occur, tackled effectively.'
Its first report made recommendations about immediate changes to legislation, which were incorporated into the Housing (Scotland) Act 2001. These included:
• The duty of local authorities to produce homelessness strategies;
• A stronger duty to provide advice and information;
• A new duty to provide temporary accommodation to all homeless people, regardless of their priority need status;
An extension of the definition of 'threatened with homelessness' to two months from one month;
• New duties on registered social landlords to assist local authorities in carrying out their homelessness duties; and
• New rights for hostel residents

The Homelessness etc. (Scotland) Act was passed by the Scottish Parliament and given Royal Assent in April 2003. The provisions in the Act will be implemented over the next decade. The Act fundamentally changes homelessness law, which was first introduced in 1977. Over a period of ten years (until 2012) it will gradually give every homeless person the right to a home.

The Act makes major changes to the tests faced by homeless people when they apply to local authorities for services. While the 'homeless test' remains unchanged (i.e. you still have to be homeless to be eligible) 'priority need' will be abolished by 2012. The Act makes changes to the rights of 'intentionally homeless' people, and 'local connection' has been suspended. Ministers also have the power to set out in regulations the kinds of accommodation that are unsuitable.

Legislation is backed up by the Scottish Executive Code of Guidance on legislation, policies and practices to prevent and resolve homelessness and progress is reviewed periodically by a Scottish Executive group involving a range of stake-holders.

The Challenge

We look forward to the full implementation of the Act over the coming years, and the positive changes it will make to the lives of people who are homeless or threatened by homelessness. Scotland should be proud of having some of the most progressive legislation in the world but also prompted to reflect on a fragmented and unequal society that generates so much homelessness.

But homelessness is more than a matter of housing. Homelessness is the most extreme form of social exclusion. Anyone can become circumstantially homeless: e.g. as a result of flooding, but it is the most socially, economically and otherwise disadvantaged who are most at risk of sliding into homelessness and being caught in the maelstrom of situations, emotions and reactions that often lead to people being trapped in a downward spiral.

Homelessness is a damaging experience. If a person doesn't have too many problems when they enter the circumstance of homelessness, they are immediately at risk of acquiring problems that will prevent them from re-establishing a stable life. This is what we refer to as the vicious circle of homelessness. There is a downward trajectory that characterises housing difficulties. If people have personal problems they will almost certainly be exacerbated by the circumstance of being homeless. Being homeless and without a table, secure address makes it more difficult to: (e.g.)
Claim benefits   Keep clean & presentable
Access health services  Manage your belongings
Hold down a job   Make & keep appointments
Maintain a healthy diet  Sleep and relax
Manage stressful situations Maintain key relationships

In addition to this, there is a stigma attached to homelessness. This is a two way thing. People are likely to be embarrassed and their self esteem lowered, making it harder to ask for the help they need. They will be aware of the association between their circumstance and the negative stereotypes of 'the homeless.' The stigma must be removed or reduced in order to tackle homelessness. On the individual level this is achieved by how people are helped: a caring, respectful and holistic approach. On a social level, this is more difficult.

Legislation is only a starting point. When Edinburgh Cyrenians describes part of the mission as 'building community,' it is because this is seen as the long-term means of eradicating homelessness. Our vision is to work towards a future in which all people - whatever their economic status or competitive ability - have a place that can be called home and an opportunity to play a part and be valued by the state and their local community.

An effective strategy for tackling homelessness must involve all aspects of life and opportunities for progression to a better and settled lifestyle. Within our strategy (and that which we promote to partners) we include housing, health, education, training and employment, emphasising a holistic approach, flexibility and person-centred delivery and the overwhelming importance of a high quality of helping relationship.

Challenges ahead include:

• Dealing with the significant impact on housing supply and support provision consequent to the new legislation and it's effects in exposing hitherto hidden need: As discussed above, no-one really knows how much extra demand there will be, but demand for social housing is already outstripping supply and Supporting People budgets are already over-exposed
• Changing hearts and minds as well as laws: The vast majority of the public still has stereotypical views of homelessness and people who are homeless, seeing people as the architects of their own downfall and diminished in their worth. This 'public' includes many staff involved in access to housing and health services, or to college or employment and the public perception affects peoples' own view of themselves. As with other areas of equality work, there is massive change needed to stop seeing homeless people as objects of pity or suspicion or as people who choose to 'live as they do;' indeed, to stop seeing 'homeless people' and to start seeing people who are homeless
• Dealing with the new visibility of problems: As we become more effective in housing the homeless and preventing people 'disappearing' onto the margins of society, the problems associated with their homelessness and marginalization will become more visible and requiring of action. Where we remove the symptom, the cause will necessitate action. We will require pioneering attitudes and approaches to provision of health, education, training, 'employment,' personal support and in dealing with 'anti-social behaviour' if we are to successfully integrate those who do not easily fit into mainstream society

Causes

Structural causes

No right to help or housing
Legislation to force local authorities to help homeless people was first introduced as late as 1977. The obligation to assist is restricted to women in the latter stage of pregnancy, mentally ill people, the elderly and handicapped and those with other extreme needs. Hitherto there is no obligation on councils to provide any meaningful help to someone who is fit, childless and of working age. Even then, rights may be lost if considered to be 'intentionally homeless,' i.e if it is adjudged that you have contributed to your own downfall

Lack of accessible, affordable accommodation
Edinburgh, for example, has a high level of private rented accommodation requiring a good income and cash for deposits. Public sector housing has fallen off due to sales and most available tenancies are in socially depressed estates. The economic boom in Edinburgh is likely to lead to increased homelessness.

The benefit system exacerbates vulnerability to homelessness
The system assumes - for 16 & 17 year olds - a settled family home with parents able and willing to contribute to 'the child's' support. 18 - 25 's automatically receive a lower level of benefit than those over 25. Housing Benefit will only pay the cost of a room in a shared flat for under 25's, forcing them into sharing. People who don't sustain training courses or New Deal placements will lose their entitlement to benefit.

Poverty and disadvantage
There is no doubt that the vast majority of people who become mired in homelessness are from amongst the most socially, educationally and economically disadvantaged groups in society. Anyone can become homeless. Those who have access to money, friends, family, and who have personal management and communication skills are likely to find a quick route back into mainstream society. Those who do not are likely to enter a downward spiral into long term homelessness.

Social exclusion
"Too many Scots are excluded, by virtue of unemployment, low skill levels, poverty, bad health, poor housing or other factors, from full participation in society. Those of us who benefit from the opportunities of life in modern Scotland have a duty to seek to extend similar opportunities to those who do not. Social exclusion is unacceptable in human terms; it is also wasteful, costly and carries risks in the long term for our social cohesion and well-being." (Scottish Executive)
Although the phrase has only become part of the language since Labour came to power it is not a new concept to those working with homeless people. Fr Anthony Ross spoke in 1968 of Cyrenians aiming to work with 'people who reject or are rejected by society' and this remains as good a definition of the social exclusion problem as any. Homeless is a 'joined up problem' that requires joined up solutions. In Scotland the emphasis has been on seeking social inclusion.

Vulnerabilities or risk factors

Difficult childhood / local authority care
National surveys say about 30% of homeless people have been in Care. Cyrenians' profiling of service users backgrounds put this at over 60%.

Youth and inexperience- under 25's
The phenomenal increase in youth homelessness from 1990 onwards has not been satisfactorily answered. Economic / political factors would include record high youth unemployment figures at the time, introduction of restrictions on housing benefit and a punitive benefits system. Sociological explanations point to a watershed in the dissolution of family life and rise in the 'generation X' counter culture. Generally speaking over 50% of homeless people in Scotland are under 25 and youth homelessness records are rising and have risen by over 200% in a decade.

Poor schooling or low educational achievement
82% of our residential care service users 'left school at the first opportunity' and over 65% without any formal qualification. A third of these service users admit having difficulty with writing or numbers.

Trouble with the law
Over 80% of our young residential service users admitted to our surveys that they 'had been in trouble with the police.' This is sometimes the trigger point for leaving home in an unplanned way, leading to homelessness. Being homeless is sometimes a factor behind an individuals criminal behaviour - driven by need to shoplift or apathy about the consequences of being caught. Outstanding fines and warrants is a factor in people remaining mobile and reluctant to rejoin mainstream society.

No friends or family
Friends and family are commonly the main safety net from a fall into homelessness. A period of sofa surfing is a common feature in stories we hear. Presumably many people bounce back up with this help and never slip as far as hostels or coming to Cyrenians for help. The older people get, the less likely they are to have friends and family to fall back on.

Mental illness
People with specific mental illness do fall through the net, especially those whose problems are intertwined with drug / alcohol use and aggressive or anti social behaviour. A far larger number have mental health problems - depression, anxiety, self harming problems, low self esteem, insomnia (etc) - that may be a cause or consequence of their homelessness and which sets up barriers to recovery.

Borderline learning disabilities
Many of the people who Cyrenians work with may have limitations to their mental capacities for learning that put them at a severe disadvantage in competing for jobs or managing an independent life. Typically, they will not have been assessed with a view to special help or, if they have been, it has been assessed that their problems are not sufficiently severe as to be labeled as having learning difficulties and are consequently set to drift. This is a difficult area that requires more research and action.

Drugs and / or alcohol misuse
Like mental health problems, this may be a cause of someone becoming homeless and / or a response to the stress, low self esteem and peer influences exposed to once homeless, on the streets or in hostels. It will almost certainly lead to a downward spiral as drugs / alcohol misuse will lead to evictions from hostels, social isolation from all but fellow mis-users, deteriorating health and law breaking.

Unemployment and poverty
78% of Cyrenian service users were unemployed for over 2 years at the time of survey, compared to less than 1% of the general population. The vicious circle of no home, no job, no money, no home is commonly understood. The circumstance of being without a job, income and savings severely reduces safety net beneath the fall into homelessness.

Having been homeless…
Many people - especially the young and inexperienced and older people who have been long term homeless as a way of life - will experience a degree of difficulty with resettling into independent housing that makes them vulnerable to becoming homeless again. The greater the background difficulties, the more likely that 're-housing' will be a revolving door back into homelessness. In 1998, a study of young homeless people given hard to let tenancies by the council in north Edinburgh revealed that over 60% abandoned their tenancies in the first 6 months.

Note: Any one person's story is usually a combination of factors and unique to themselves.

Some Triggers

• Family dispute

• Splitting up from partner

• Fleeing domestic violence or abuse

• Eviction

• Debt reclamation or avoidance

• Leaving local authority care

• Leaving prison

• Evading the law

• Leaving other institutions - including armed forces, hospitals (etc)

Solutions

It has long been our position that homelessness is a complex issue. Both causes and consequences often involve an entwinement of issues that need to be attended to and, to some degree, resolved if people are to take an effective and lasting route out of homelessness.

Cyrenian's Service Matrix
This is a strategic model, developed by the charity over the past few years, describing the scope of work needed to provide people with effective routes out of homelessness.

Prevention

'Prevention of homelessness should be a key strategic aim which local authorities and other partners pursue through the local homelessness strategy. All local authority departments and all relevant local agencies should work together to prevent homelessness occurring wherever possible. It is also vitally important that, where homelessness does occur and is being tackled, consideration is given to the factors which may cause repeat homelessness and action taken to prevent homelessness recurring.'
(SE Code of Guidance on legislation, policies and practices to prvent and resolve homelessness)

Early response
As discussed above, homelessness can become a vicious circle that leads to personal deterioration. People can get sucked into a downward spiral and long-term homelessness. (see The Challenge, page 5) It is generally agreed and part of the national strategy that early, effective intervention is preferred. This will not be possible in all cases, especially where homelessness is a consequence of other underlying problems, but it is a valid aim to prevent or reduce the amount of time people are homeless where housing is the main need.

Provision now required by the Housing (Scotland) Act 2001 and Homelessness etc (Scotland) Act 2003 should now go some way to providing early intervention if people approach or are signposted to local authorities but - because of lack of knowledge, misconceptions, embarrassment, previous history with the Council (etc) - people don't always do this.

In our experience many people end up in hostels or on the street after a phase of stopping with friends or relatives for short periods - 'sofa surfing,' as we call it. Cyrenian's Rent Deposit Guarantee Schemes (Edinburgh and West Lothian) effectively contribute to the prevention of homelessness, especially for people who have the ability and motivation to manage their own lives independently.

Preparing vulnerable people for leaving institutions
The Homelessness Task Force recommended action to prevent homelessness amongst people leaving prison. A variety of such services have been established throughout Scotland. An evaluation of these services was carried out in 2004 and the document is available at:
http://www.scotland.gov.uk/cru/resfinds/drf181.pdf

NHS Health Boards are now required to establish an effective Health & Homelessness Action Plan in their area, bringing together a partnership of concerned bodies. Action Plans are to be far reaching in tackling health inequalities and ensuring that people do not become homeless because of their health problems and, if homeless, are able to access health services. See the following link on how this strategy is developing in Scotland.
http://www.scotland.gov.uk/News/Releases/2004/05/5552

The charity has been very active in developing and supporting this strategy on both local and national levels. Edinburgh Cyrenians Health Improvement Service aims to pioneer local initiatives that promote access and uptake of health promotion activities.

Preventing evictions
In the course of its work, Cyrenians Rent Deposit Guarantee Schemes (Edinburgh & West Lothian) identify and help prevent evictions by private sector landlords or their agents. This may be that landlords do not know that they are acting incorrectly or that, through mediation, we are able to negotiate a different outcome. Valuable support in this is obtained from the Shelter Housing Advice Centre and citizens advice bureaux.

Communities Scotland, through Home Point, has developed national core standards and good practice guidance for private landlords. This incorporates and goes beyond legislative requirements. Local accreditation schemes are being established to support landlords in meeting the standards. The document can be obtained from homepoint@communitiesscotland.gov.uk

Rent Deposit Guarantee Schemes have a necessarily co-operative relationship with private landlords and this positions them well to promote the new standards and encourage landlords to join the local voluntary accreditation schemes.

Preventing the victims of abuse becoming the victims of homelessness
Women's Aid is one-such well known resource for providing refuge and helping women to regain a home for themselves and their children. http://www.scottishwomensaid.co.uk/

Less known is that many young people using our services (male and female) cite physical and sexual abuse as a root cause of their leaving and being unable to return home. A Cross Party Group is established in the Scottish Parliament as a forum for debate, with an agreed specific programme of targets and action, on the issue of childhood sexual abuse, its long term effects and links with mental health problems, alcohol and drug abuse, physical abuse, domestic violence and homelessness. http://www.scottish.parliament.uk/msp/crossPartyGroups/groups/cpg-ssa.htm

Education through school and youth clubs
Together with other charities, Cyrenians attempt to get the message through to school children that homelessness can happen to anyone and that the circumstance can lead quickly to being caught in a vicious trap of personal decline from which it is hard to escape. They should take the step away from home carefully. In West Lothian we have been leading schools education work. We have developed educational resources under the title HYPE, (Housing and young people in Education).

There is an increasing stock of resources on line for use by teachers, youth workers and others. For example, Scottish Council for Single Homeless
http://www.leavinghome.info/

Interventions

Direct access or emergency accommodation schemes
The new legislation in Scotland places responsibility on Council's to provide temporary accommodation for people presenting as homeless. There are a wide variety of types, sizes and models for emergency accommodation. Characteristically they are short term, transitional and closely supervised.

Barnardo's has five Nightstop schemes around the UK, which are run in partnership with other agencies such as churches and community groups. These provide emergency accommodation for homeless young people. Nightstop recruits families in the local area to provide young people living on the streets with a meal and bed and breakfast accommodation for one night. Staff at Nightstop also provide back-up support to help homeless young people find more permanent solutions to their problems.

Cyrenians' residential communities allow people to make the transition from chaos to resettlement without changing address, providing an open-ended stay and operating with the minimum of rules. Consequently places are not always available and staffing only permits office hour referrals. The Cyrenian Community aims at a mix of emergency admissions and planned referrals.

Non-residential help and support
People who are experiencing the trauma of homelessness - or who have become all too used to it - need more than shelter. A range of practical help is needed, often with emotional or personal support delivered with the practical help. Someone who is homeless is likely to be deeply affected by feelings of isolation, low self esteem, anxiety or anger. Practical and emotional needs will tend to entrap the person in homelessness. Places to wash, eat, store belongings, to be an address, to talk and be treated respectfully are often critical to many peoples' recovery. Facilities in Edinburgh include The Ark and Cowgate Centre

Outreach
Services are provided to go out and contact street homeless people, offering immediate practical help but also advice and personal acknowledgement. Homeless Outreach, Streetwork and the Care Van are local examples.

'Second stage hostels' and supported accommodation
The same comment applies about variety of size, type and model. Accommodation of this sort typically offers a resettlement programme aiming to achieve a transition between homelessness and being housed and secure in a settled way of life. It is further characterised as being time limited, not giving security of tenure, offering social support as a conditional part of the occupancy agreement and offering help with securing longer term, secure housing.

Specialist hostels and services
Where homelessness is caused or compounded by a particular issue, it will often be necessary to deal with that issue up-front in order to resolve the homelessness. Alcohol or drug dependency is a frequent significant factor in undermining the ability of people to achieve stability and manage their lives.'

Resettlement
Moving from being homeless into your own place, particularly when suffering from lack of confidence and self-esteem, can be a daunting, lonely and isolating experience. The support of resettlement workers - identifying options for housing, completing applications for housing association or council flats, looking at issues around living independently, and linking into local services and facilities - can be crucial. Recognising this, the Government makes funding available through Supporting People.

Tenancy support services
These are aimed not just at helping people to get flats, set up home and hang on to tenancies, but to help people to use that as a solid foundation for building a satisfying and settled lifestyle. Without doubt, being housed is not the end of the story or the solution for many. Boredom, loneliness and isolation can undermine progress and lead to repeat homelessness.

Glasgow Simon Community is currently funded by the Scottish Executive to carry on longitudinal research to evidence 'what works' in effective resettlement with people who have been long-term homeless

http://www.glasgowsimon.org/pathe_executive_summary.pdf

The Cyrenian Way

The holistic approach
Homelessness is most often a complex problem involving - in each case - a unique mix of issues. Every person's story is different. An effective response has to be personal, tailor made and flexible. The Cyrenian approach is characterised as being 'person centred' rather than system led. Cyrenians try to form caring, respectful relationships with all service users. The delivery of one aspect of the service will introduce them to the availability of other types opportunities. Homelessness is a 'joined up problem' - for example involving no accommodation, long term unemployment and low self esteem - and requires 'joined up solutions.' Our approach also means that we try to stick with people when things go wrong or if plans go awry and not reject people because they do not live up to our expectations.

Tackling the whole problem
Edinburgh Cyrenians have been providing direct access accommodation, residential care, move-on housing, support and resettlement services for over 35 years. It is our experience that effective and lasting resettlement often depends on people having access to employment, training and educational opportunities as well as to decent, affordable housing. Without this the re-housed homeless remain long-term unemployed, without a purpose and without a stake in society. Too many then return to homelessness. Edinburgh Cyrenians aim to see the job to the finish: to work with people until they are properly re-integrated with society or living to their own fullest potential. The charity provides a flexible menu of social, recreational, training, educational and work opportunities for all residents and tenants as well as promoting health and well-being.

High aims, realistic goals
Although the 'solutions' section may have suggested a progressive continuum of services - emergency accommodation to hostel to independent housing - Cyrenians acknowledge that many people will not make smooth, progressive transitions towards an independent home and a job. As with our logo, there will be ups and downs on the way. We also recognise that many will not reach those goals. Our commitment is to help them find a level and settled lifestyle at which they can operate to the best of their ability and without sliding back into homelessness and crises.

Edinburgh Cyrenians

Understanding Homelessness

Read more about the results of our work