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Ann Rosengard, Gail Cunningham, Alice Ann Jackson, Isla Laing, Norma Jones, Ann Rosengard Associates
ISBN 0 7559 6221 4
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CONTENTS

SUMMARY

CHAPTER ONE INTRODUCTION AND CONTEXT
BACKGROUND
Policy directions and key legislative provisions
RESEARCH AIMS, OBJECTIVES AND METHODOLOGY
Aims and objectives
Research methods
The structure of the Report
SUMMARY

CHAPTER TWO INTENTIONALITY DECISIONS AND HOUSEHOLD CHARACTERISTICS
INTRODUCTION
THE INCIDENCE OF INTENTIONALITY ASSESSMENT
Some key trends and influences on intentionality assessment
Intentionality assessment, discretion and local variations
The assessment process and decision
Local authorities' future investigation of intentionality
THE CHARACTERISTICS OF INTENTIONALLY HOMELESS HOUSEHOLDS
Types of households
Types of priority need
Reasons for loss of accommodation
The key role of advice in prevention
Repeat homelessness and prevention issues
SUMMARY

CHAPTER THREE SUPPORT NEEDS AND ASSESSMENTS
INTRODUCTION
WHAT IS KNOWN ABOUT THE SUPPORT NEEDS OF HOMELESS PEOPLE
The range of support needs
Level or intensity of support needs
Multiple or complex needs
SUPPORT RESPONSES
A brief context
Housing support and Supporting People
Guidance on support assessments
SUPPORT ASSESSMENTS IN PRACTICE
Assessment systems in the case study areas
SUPPORT ASSESSMENTS FOR INTENTIONALLY HOMELESS HOUSEHOLDS
Support assessments noted in the pro-formas
Service users' views on the assessment process
SUPPORT NEEDS IDENTIFIED FOR INTENTIONALLY HOMELESS HOUSEHOLDS
The pro-forma analysis
Service user interviewees' comments on support needs
Support provided prior to homelessness: intentionally homeless households
The extent to which intentionally homeless households received support
SUMMARY

CHAPTER FOUR ACCOMMODATION AND SUPPORT SERVICES
INTRODUCTION
CLASSIFICATION OF ACCOMMODATION TYPES
Crisis/ temporary accommodation
Supported accommodation
USE OF PARTICULAR MODELS OF ACCOMMODATION
Crisis and temporary accommodation
Targeted provision for particular client groups
Gaps in accommodation services
Temporary accommodation in the case study areas
Intentionally homeless households' access to emergency/ temporary accommodation
Views on models of temporary accommodation
Longer term accommodation outcomes highlighted through the research
SUPPORT SERVICE MODELS
Support models and patterns of provision
The funding of support services
The support on offer in the case study areas
Gaps identified in support services
JOINT WORK, INCLUDING ADDRESSING MULTIPLE AND COMPLEX NEEDS
The key role of joint work
Joint work in homelessness prevention
Services provided in partnership to meet particular needs
Joint work to meet health and homelessness needs
Joint work in addressing anti social behaviour
Joint work/involving service users
The scope for innovation and partnerships in tackling complex needs
Influences on the effectiveness of joint working
INHIBITORS ON ACCESS TO AND TAKE-UP OF SUPPORT
SUMMARY

CHAPTER FIVE ISSUES AND FUTURE DIRECTIONS
INTRODUCTION
KEY FINDINGS
The incidence and profile of intentionally homeless households
Service users' experiences and views in regard to intentionality
Professionals views on reasons for intentionality decisions
Local authorities' future investigation of intentionality
The support needs of intentionally homeless households
Accommodation and support provision
Gaps identified in accommodation and support services
Joint working
Costs of providing accommodation and related support for intentionally homeless households
ISSUES FOR POLICY AND PRACTICE
RESEARCH FINDINGS ON IMPLICATIONS OF INTENTIONALITY CHANGES
Other considerations
MONITORING, REVIEW AND EVALUATION OF SUPPORT NEEDS, SERVICES AND OUTCOMES
RECOMMENDATIONS
Recommendations for local authorities and partners
Recommendations for the Scottish Executive

REFERENCES
GLOSSARY

APPENDIX ONE METHODOLOGY AND CONSIDERATIONS
METHODOLOGICAL ISSUES
APPENDIX TWO CASE STUDY INTERVIEWS
APPENDIX THREE OVERVIEW OF THE CASE STUDY AREAS
APPENDIX FOUR TABLES ON INTENTIONALITY ASSESSMENT AND OUTCOMES
APPENDIX FIVE FUNDING & INDICATIVE COSTS OF SERVICES

LIST OF TABLES
TABLE 2.1 HOUSEHOLDS TYPES ASSESSED AS INTENTIONALLY HOMELESS AS A PERCENTAGE OF ALL SUCH DECISIONS, 2003-04
CHART 2.1 NUMBERS OF HOMELESS APPLICANTS BY HOUSEHOLD TYPE, PRO-FORMA ANALYSIS
CHART 2.2 NUMBERS OF HOMELESS APPLICANTS BY HOUSEHOLD TYPE, SERVICE USER INTERVIEWEES
CHART 2.3 CATEGORY OF PRIORITY NEED: PRO-FORMA ANALYSIS
TABLE 2.2 REASON FOR LOSS OF PREVIOUS ACCOMMODATION: 2003-04
TABLE 3.1 RESPONSES TO PRO-FORMA QUESTIONS ON NEEDS
CHART 4.1 SMALL SCALE HOSTELS PROVIDED BY LOCAL AUTHORITIES, BY CLIENT GROUP
CHART 4.2 SUPPORTED TENANCIES PROVIDED BY LOCAL AUTHORITIES, BY CLIENT GROUP
TABLE 4.1 THE NUMBER OF LOCAL AUTHORITIES WITH TARGETED PROVISION BY CLIENT GROUPS
CHART 4.3 REHOUSING OUTCOMES FOLLOWING DISCHARGE OF DUTY - THE PRO-FORMA ANALYSIS
CHART 4.4 SOURCE OF SUPPORT FUNDING IN HOSTEL ACCOMMODATION
CHART 4.5 SUPPORT FUNDING IN NON HOSTEL PROVISION
TABLE 5.1 APPLICANTS SITUATIONS AND POTENTIAL SUPPORT NEEDS
TABLE 5.2 MODELS OF ACCOMMODATION AND SUPPORT
TABLE 5.3 A SPECTRUM OF SERVICES TO MEET HOMELESS HOUSEHOLDS' SUPPORT NEEDS
TABLE 5.4 REASONS FOR NON ENGAGEMENT AND GOOD PRACTICE IMPLICATIONS
TABLE A4:1 PERCENTAGE OF HOUSEHOLDS ASSESSED AS INTENTIONALLY HOMELESS COMPARED TO ALL HOUSEHOLDS ASSESSED IN PRIORITY NEED BY LOCAL AUTHORITY AREA, 2003-04
TABLE A4:2 HOUSEHOLDS ASSESSED AS INTENTIONALLY HOMELESS BY HOUSEHOLD TYPE, LOCAL AUTHORITY LEVEL 2003-04
TABLE A4:3 FINAL OUTCOME OF HOMELESSNESS APPLICATION FOR INTENTIONALLY HOMELESS HOUSEHOLDS, 2003-04
TABLE A4:4 WHETHER SUPPORT IS PROVIDED AS PART OF FINAL HOUSING OUTCOME FOR INTENTIONALLY HOMELESS HOUSEHOLDS, 2003-04

Acknowledgements

The research team is very grateful for the assistance we received in carrying out this research from a number of sources. First we offer our very sincere thanks to the 29 homeless people, who had been assessed as homeless intentionally, and who participated in the interview programme. Secondly we are grateful to all the local authorities who positively contributed to the research by completing survey and pro-forma returns. Thirdly, we wish to thank all the staff in local authorities, housing associations and voluntary agencies who helped us reach potential interviewees and who also gave up valuable time to be interviewed and to respond to our queries. Fourth we wish to thank the Scottish Executive for funding this project, Anna Donald who managed it on their behalf and the other officers who were helpful to the research team throughout: Rebekah Widdowfield of the Research Division; Dawn Abell, Anti Social Behaviour Team; Pat Bagot, Supporting People and Jan Young Scottish Executive Statistical Division.

Finally, we are grateful to the other participants in the Homelessness Monitoring Group and Research Advisory Groups, who offered assistance and encouragement throughout. These were: Robert Aldridge, SCSH; Liz Burns, SFHA; Shonagh McEwan, Shelter; Moira Bayne, Glasgow City Council; Kate Benson, NHS Greater Glasgow and Julie Hunter, North Lanarkshire Council.

A dedication

The Research Team wish to dedicate the work that went into this report to the memory of Professor Robina Goodlad, a good friend and colleague and a distinguished academic, who very sadly died in June 2005.

The views expressed in this report are those of the researcher and
do not necessarily represent those of the Department or Scottish Ministers.

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