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HOMELESSNESS
AN ACTION PLAN FOR PREVENTION AND EFFECTIVE RESPONSE
REPORT FROM THE HOMELESSNESS TASK FORCE TO SCOTTISH MINISTERS

HOMELESSNESS IN SCOTLAND

9. Between 1989-90 and 1999-00, the number of applications from households to Scottish local authorities under the homelessness legislation rose from 29,068 to 46,023 (an increase of 58%). In the same period the number of households actually assessed as homeless or potentially homeless rose from 18,277 to 34,100 (an increase of 87%) - see Appendix D.

10. These figures have to be treated with caution because of differing recording practices among local authorities, and because of limitations in the information recorded. The Executive has put in hand, with our agreement, new improved arrangements for recording and reporting homelessness applications which should produce more reliable and meaningful statistics. The first results of these new arrangements will be published in the latter part of 2002 and it will be possible to establish more clearly who is becoming homeless, why, and how effective the response to their homelessness has been. But it will continue to be necessary to bear in mind that these are figures of homelessness applications to local authorities, and that many homeless people — especially single homeless people — currently never make such an application. We anticipate that improvements in the rights of homeless people made by the 2001 Act will increase the number of people who apply as homeless. Nevertheless the figures for the number of people assessed as homeless by local authorities will always understate the actual incidence of homelessness.

11. With these caveats, the figures for homelessness applications show a steep increase over the last 15 years. The experience of local authorities and voluntary organisations, and the visible presence of rough sleepers on the streets of Scottish cities and towns, confirm that homelessness has greatly increased. Why — at a time of a general increase in prosperity — has this occurred?

12. The immediate causes of homelessness vary greatly from case to case. In individual instances they may include family or relationship breakdown as a result of domestic abuse, the inability of a family to cope with a teenager, unemployment leading to an inability to pay the rent or mortgage, drug or alcohol problems leading to a crisis, mental or physical health difficulties, discharge from prison, leaving residential care or the armed forces, or a simple breakdown of housing arrangements. In some instances a suitable house is all that is required, but in many others homelessness is a consequence of a range of social and economic problems. Some people in Scotland have not benefited from the general increase in prosperity and well-being, and the increased incidence of homelessness is a reflection of this.

13. Part of the answer to homelessness lies in reducing the social and economic divide between those who are prosperous and those who are disadvantaged. A stable and growing economy, employment opportunities and a reduction in poverty are key in tackling what has come to be known as social exclusion. Homelessness is a manifestation of social exclusion and one of the indicators of success in creating a more economically and socially just society would be a reduction in homelessness. We therefore wish to stress the importance of improving the economic and social conditions of those who are currently finding it difficult to cope. This is an essential pre-condition for reducing homelessness.

14. But other, more specific action should also be taken. We believe that there is scope for more effective prevention of homelessness, for the empowerment of people affected by homelessness by giving them opportunities and choices, and for more effective interventions by agencies when homelessness does occur. Accordingly, in this report we focus on:-

15. further improvements to the homelessness legislation;

    housing supply and policy;

    benefits issues;

    action to prevent homelessness; and

    action to deliver an effective response to homelessness.

15. We emphasise the need to increase homeless people’s control and extend their choices, particularly in relation to housing, employment, care and support services, and to achieve the effective participation of people affected by homelessness in the development of future policy, practice and service delivery. These objectives should be widely promoted and given practical effect in all activities directed at tackling homelessness.

16. People experiencing homelessness say that they often feel judged and intimidated by statutory services and that they are frequently treated impersonally and without respect. This deters them from seeking the services they need. If these perceptions and experiences are to be changed and if homeless people are to be genuinely empowered, services must develop people-focused cultures. We strongly believe that people who experience homelessness should be given much greater choice and control over determining their own resettlement solutions and in pursuing these at a pace of their choosing. We see this as a prerequisite for helping homeless people help themselves. The key is to embed the concept of empowerment in the attitudes and behaviour of all organisations and staff involved in planning and delivering homelessness services.

17. Our recommendations throughout this report apply to everyone affected by homelessness, including people from black and minority ethnic communities. Current statistical returns on people applying to local authorities under the homelessness legislation do not include any information on ethnic status. We have therefore ensured that the new arrangements for recording and reporting on homelessness applications being introduced by the Executive will collect information on ethnic status. This information is expected to come on-stream during 2002. We recommend that, as soon as a sufficient bank of information is available, it should be analysed to assess whether any additional actions, focusing specifically on people from black and minority ethnic communities, are required. This statistical information should be complemented by a more qualitative study on the experience of homelessness among Scotland’s black and minority ethnic communities, which we understand the Scottish Executive proposes to carry out.

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