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Section 2: Outcome 2: Existing homelessness becomes more visible

54. The number of households applying for assistance under the homelessness legislation increased rapidly from 2000/01 to 2005/06. This coincided with improved rights to temporary accommodation for households assessed as 'non-priority' and the numbers of households in temporary accommodation at any given time also increased significantly. Almost all of the increase has been from single person households - reflecting demographic change but also the fact that they are most likely to benefit from the legislative changes. The increase in applications and numbers in temporary accommodation has put significant pressure on housing supply.

55. The most recent figures indicate that the rise in applications is levelling out, with a 2% drop recorded for 2006/07. The number of homelessness applications from single person households also reduced in 2006/7, compared to the previous financial year. This could indicate that, at a national level, most hidden homelessness has been uncovered, although sources such as the Scottish Household Survey suggest that there are likely to be significant numbers of individuals who continue not to approach the local authority for assistance. ¹³

56. Through the local outcome agreement and progress reports, 13 local authorities directly expressed their views as to whether homelessness was now completely visible in their area. All these authorities were confident that homelessness was certainly more visible than in the past due to a combination of greater legal entitlements encouraging presentations, more effective signposting between services, effective advice and information and awareness raising.

57. Six of these local authorities were reasonably confident that most hidden homelessness had now been brought to light. However three other areas felt that it could still be a significant issue, and this was also mentioned by participants in the 2012 Homelessness Support Project, citing evidence of insecurity of tenure and sofa surfing amongst waiting list applicants. Others felt that there could be significant levels of hidden homelessness in particular groups such as young couples living with one set of parents or that further work was needed to come to a firmer view. Some of these, for example women, are more likely to find their own solutions. One authority noted that their experience was that hidden homelessness had declined significantly and that outreach teams were able to engage proactively with households in this position.

58. Most authorities reported that they monitor levels of hidden homelessness from waiting list data and wider studies of unmet housing need carried out to inform their Local Housing Strategy, Homelessness Strategy or allocations policy. One authority discussed housing need assessment explicitly in the context of research around future community care needs and another highlighted the personal housing plan approach as a method for gaining a clear understanding of hidden homelessness. Additionally a number of authorities had carried out specific work relating to unmet need and hidden homelessness amongst BME communities, gypsy travellers and A8 nationals.

59. One authority mentioned that they were aware that other services in the area were experiencing increasing demand from A8 nationals which suggested there were housing issues to be addressed even though there was no direct evidence of hidden homelessness amongst A8 nationals at that time. Reference to working specifically with Polish nationals to consider these issues was made by 3 further authorities. Research on EU8 migrants' access to health, housing and other social care services in Edinburgh was published in 2007 and indicated little demand for social housing from this group ¹⁴.

60. As regards activities undertaken to progress this outcome, all authorities cited the provision of effective and accessible advice and information as being key to making hidden homelessness more visible. A significant majority had achieved or were working towards national Homepoint Standards for housing advice and were funding and supporting provision of advice across statutory and voluntary agencies. A number of authorities reported having arrangements in place with Citizens Advice Bureaux and other advice agencies and referring a high number of clients to these agencies. Housing options guidance, linked to individual triggers such as rent arrears or to broader developments such as the creation of a common housing register, was also mentioned by a high number of authorities. The benefit of web based referral systems was mentioned by one authority.

61. Outreach work to uncover hidden homelessness was specifically mentioned by a number of authorities although it was not always entirely clear what this consisted of. Authorities emphasised the need to work pro-actively with certain groups (households living in rural areas; those vulnerably housed in the private rented sector; children in care or who have left care and other young people; lone parents; people leaving prison; people who have experienced domestic abuse; and others at risk of rough sleeping) to ensure that they are aware of assistance available if necessary. However it was noted by one authority that recording of these types of contacts needs to be considered carefully as a large proportion of people do not attend a formal homelessness interview when one is arranged. In some circumstances, non-attendance could reflect internalisation of stigma and prejudice.

62. Training staff across a range of agencies, including healthcare professionals, was also mentioned by the significant majority of authorities. This focussed in particular on recognising homelessness triggers and situations (even where these are not necessarily acknowledged by the client themselves); addressing stigma attached to homelessness; and attitudes and awareness of reception staff. In some cases this training was delivered through job shadowing or in conjunction with that on substance misuse, welfare rights and domestic abuse.

63. All local authorities emphasised the importance of publicising and promoting existing services and making as many people as possible aware of their rights to assistance. Activity included ensuring material is available in a variety of languages and formats; providing translation services where necessary and advertising these clearly; holding roadshows; ensuring material is prominently displayed in all public buildings and other locations throughout the community; ensuring round the clock prompt telephone access; developing and disseminating directories of services; using local media; and plasma screens. Less traditional methods such as carrying information on carrier bags, and in football programmes and town maps, were also deployed. One authority has also developed hostel TV.

64. A number of authorities expressed their confidence that rising applications were directly related to the success of these awareness raising approaches. In most cases local authorities were not able to substantiate this view with direct evidence but one did note that monitoring of usage rates indicated a sharp increase in uptake of specific services following an awareness raising campaign focussed on those particular services.

65. One council was notable for the particular prominence it gave to involving service users in the process of assessing hidden homelessness and designing effective services to uncover and address these unmet needs. This included involvement in an anti-stigma project and in designing relevant information that will reach the people who need it most.

66. It should be noted that success in achieving this outcome, ensuring that homeless people are identified and assisted appropriately can lead to increased pressure on services and therefore impact negatively on local authorities' ability to achieve the other top-level outcomes. However that is not to say that it does not lead to positive outcomes for those individuals being assisted. As noted earlier, there is a need to consider more fully the concept of hidden/visible homelessness in the context of future reporting.

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