Supporting People Service Review

Service: Temporary Accomodation Scheme. Service Address: 113 The Oval, BA2 2HE. 12 Saffron Court, BA1 6DF.  16 Fosse Green, BA3 3BH. 28 a,b,c Caernarvon Road, BS31 2ND. 30 a,b,c Caernarvon Road, BS31 2ND. 32 a,b,c Caernarvon Road, BS31 2ND.  5 Springfield Crest, BA3 3JF.  6 Rodney House, BA2 1SN.  65 Hillside Crescent, BA3 2ND. Flat 1, 10 Dorchester Street, BA1 1JH.  Flat 1, 14 Manvers Street, BA1 1JH. Flat 1,2, 3, 15 Manvers Street, BA1 1JH. Flat 1, 20 Belvedere, BA1 5ED.  Flat 1, 3 New King Street, BA1 2BL.  Flat 3, 7 Barton Buildings, BA1 2JR. Service ID Number: 238. Service Provider: Bath Self Help Housing Association. Service Provider Address: The Maltings, River Place, Lower Bristol Road, Bath, BA2 1EP. National ID Number: 10007897. Date: August 2005. Review Officer: Rebecca Potter                                                                                                                                                                                                                                                                                   

3. Are the Services Strategically Relevant

The review found that the service provided by Bath Self Help Housing Association at the Somer Temporary Accommodation Scheme fits with the local and national context of strategic relevance.

Somer Temporary Accommodation Scheme provides accommodation with low support for households who have been assessed as being homeless and in priority need by Bath & North East Somerset Council under Part VII of Housing Act 1996, (as amended 2002). The review found that the services did not include the provision of general health, social or personal care.

The B&NES Supporting People Five Year Strategy has a number of strategic objectives in addition to specific aims for individual service user groups.  In the context of this review the Somer Temporary Accommodation Scheme is able to demonstrate that its services meet a number of strategic objectives and service user aims.

Objective 4 – Decrease levels of homelessness through the provision of preventative services. The support provided at the Somer Temporary Accommodation Scheme aims to equip service users with the skills required for independent living and tenancy sustainment, thus making repeat homelessness less likely in the future.

The Services provided at the Somer Temporary Accommodation Scheme also fit with some of the major aims of the Homelessness Strategy, 2003-2005, particularly the aim to reduce the use of  bed and breakfast for all homeless people and to end its use for families with children.

6. Consultation with Stakeholders

Service Users, other stakeholders and staff were consulted during the review.

6.1 Consultation with Service Users

Staff at Bath Self Help were concerned that engaging service users in the Review process could have been problematic as support staff often had difficulties in getting them to engage in the support offered.  However, as part of undertaking the review, a total of 8 (33%) current service users and one ex-service user were consulted. All service users had dependent children or were pregnant. Consultations took place face-to-face in service users’ temporary tenancies and by telephone. The interviews were conducted by Caroline Reali and Martin Ferris, Bath & North East Somerset Housing Advice Team and Rebecca Potter, Bath & North East Somerset Supporting People Team.

6.1a Consultation Findings

• Service users reported that they had all been nominated to the Temporary Accommodation Scheme by Bath & North East Somerset Housing Advice Team. All had been accepted as being homeless and in priority need with the full housing duty owed by B&NES. Length of stay ranged from three weeks to eleven months. 
• Service users reported that they had become homeless as a result of a diverse range of circumstances including relationship breakdown, being asked to leave by parents or other family members, fleeing violence from associates, mortgage repossession, eviction for rent arrears and release from prison. Four service users had spent between three and six weeks in bed and breakfast prior to placement at the temporary tenancy.
• Two service users reported that they had previously applied to a local authority as homeless.
• All service users were satisfied with the standard of accommodation.  Service users at Caernarvon Road commented that the building looks grim from the outside and that the stairway is ‘like a prison’, (concrete and bars)  However they have made the flats feel like home by putting their own things in there.  They reported that the flats were conveniently situated close to shops, buses and other services.  Service users in Bath city centre were pleased with the standard of their accommodation although one user reported that she was not keen on the location (Snowhill) and wanted to move back to the south of the city where her children attend school.
• Most service users said the properties were well maintained although one had had several problems with the plumbing since moving in, (eg blocked toilet and sink draining into the washing machine), however, both of these problems were dealt with promptly by Somer’s repairs team. 
• Service users reported that on the whole, the accommodation is safe and secure.  Exceptions to this included one service user at Caernarvon Road who said that there can be a lot of comings and goings, and that the police attend on occasions.  This service user also stated that neighbours often prop the front door of the block open even though there is an entry phone system.  She said this made the environment feel less safe. 
• A service user at Manvers Street pointed out that the floor-to-ceiling sash windows could be opened from the bottom and that a small child could easily fall/climb out.  However, she was careful not to open it in this way if she was not able to fully supervise any children in the flat.
• Service users are issued with Assured Shorthold Tenancies (ASTs) for a period of  6 months.  They reported that support workers discuss their rights and responsibilities at the time of signing up. One service user reported that they had small rent arrears which had arisen as it had taken more than 3 weeks for the rent payment card to arrive.
• Service users all reported that they had a keyworker assigned to them.  All but one service user reported that they had no support needs other than their immediate need for accommodation.  Only one service user reported that they had a ‘support plan’ and that this was provided by another agency who was working with them.  It appeared that most viewed their time in the temporary tenancies as being purely ‘waiting time’, rather than time to be spent actively preparing to move into permanent accommodation.  One service user with large rent arrears from a former tenancy had not been advised by her support worker to enter into a formal repayment plan.
• Service users reported that they had frequent telephone contact with their keyworker as and when required and most also had monthly face-to-face meetings. All stated that their keyworker was very helpful and provided all the support they needed.  They reported that their support needs were not formally reviewed.
•  All service users were hoping to be nominated to permanent accommodation through the Homeseekers Register.  They discussed bulletins with their keyworker and in one case a keywoker liased between the service user and the HomeseekersTeam/RSL to try to facilitate move-on. Only one service user reported that they would require support to move into permanent accommodation, other than help to complete an application for Community Care Grant if eligible.

6.2 Consultation with Staff

Consultations took place with three members of staff.  Interviews were conducted at  Dartmouth Avenue.  Rebecca Potter interviewed the Temporary Accommodation Team Leader, and two Supported Housing Officers, on behalf of the B&NES Supporting People Team.

6.2a Consultation Findings

• Staff had a  range of knowledge and experience including counselling people with drug and alcohol issues, working with children in care, working with people with learning difficulties and with older people. The Supported Housing Officers had been in post with Bath Self Help for between two and a half and three years. The Temporary Accommodation Team Leader had been in post for seven years.
• One Supported Housing Officer reported that she felt that she had not been offered any useful or relevant training opportunities since joining the Association.
• Staff confirmed that the majority of service users in temporary tenancies have low support needs.  At any one time it is unusual to have more than two or three households with high support needs.
• Staff demonstrated knowledge and understanding of the needs and risk assessment policies and procedures, and of how these fed into the support plan process. All service users at the temporary tenancies have support plans, though not all of them are written down. (staff reported that paperwork was cumbersome). In addition, staff stated that there can be a problem getting service users to engage.
• Staff had not attended support plan training at the time of the Review visits, (although one member of staff attended SITRA training just after the visits),  and there did not seem to be a uniform or systematic approach to support planning on the ground. Not all service users had written support plans although staff said they are clear about the needs of service users. Tthere is now a clear policy and detailed pro-formas in place.  There were no guidance notes to accompany the policy and pro-formas. Reviews had not been taking place previously although it is now intended that quarterly reviews will take place.
• Staff reported that it could be difficult making contact with some service users and to attempt to overcome this they used the phone and, if visiting one service user at Caernarvon Road, staff o knock on others’ doors in an attempt to catch them in. However, not all service users are willing to engage with the service
• Staff reported that it can be difficult keeping track of service users’ rent accounts as rent is paid direct to Somer and staff cannot directly access their database.  A number of service users have small arrears.  Rent statements are provided fortnightly by Somer.  One member of staff reported that another colleague had previously taken responsibility for rents and that she was unsure of the procedures in place and would have to check.  Another staff member stated that service users will be encouraged to set up formal repayment agreements if they are in rent arrears and all else fails.
• Staff demonstrated good knowledge and understanding of health and safety policies and procedures.  They frequently ‘lone work’ and reported that the policies and procedures in place ensured everyone’s safety.
• Staff were well informed about the ‘Vulnerable Adult’s policy’ and were able to described the procedures to be followed in cases of concern.  However, one staff member stated that they thought it would be beneficial to attend some formal training in the area of ‘Adult Protection’.
• All staff had recently attended training on diversity issues which they reported had raised their awareness about issues of equalities and inclusion. Staff were aware that Bath Self Help subscribes to Language Line and one person reported that she needed to find out how to use it as she currently has a service user who is a non-English speaker. Another staff member reported that she did not have much personal experience of working with people from ‘other cultures.’
• Staff reported that very few complaints about the temporary tenancies were received and that feedback was predominantly positive. However, one member of staff was unsure as to whether service users would know how to complain and suggested that more work needed to be done in this area.
• One staff member reported that often service users are signed up and given the keys to the temporary tenancy several days before the tenancy start date. This allows them to get their furniture etc together and in the meantime they continue to stay in B&B.

6.3 Consultation with Other Stakeholders

The views of the main stakeholder, Bath & North East Somerset Housing Advice Team,  were sought during the course of several telephone and face-to-face interviews which were conducted by Rebecca Potter on behalf of the Bath & NE Somerset Supporting People Team.  The Housing Advice Team has 100% nomination rights to the Somer Temporary Accommodation Scheme and B&NES Council has accepted the full housing duty under Part VII of Housing Act, 1996, (As amended 2002),  for all service users placed. 

It should be noted that the priority for members of the Housing Advice Team is to fulfil the Council’s statutory duty and place homeless households in appropriate temporary accommodation. The ODPM has directed local authorities to avoid the use of B&B for all homeless households.  In November 2003 it stated: “By March 2004, no homeless family with children should have to live in a Bed and Breakfast hotel, except in an emergency, and even then for no more than six weeks.” In fact Bath and North East Somerset is committed to limiting this to just four weeks and has in place a Public Service Agreement with this as a target.

 At a local strategic level it is also essential that service users are moved into permanent re-housing as soon as possible, thus freeing up appropriate temporary accommodation with support, for the use of other homeless households who may otherwise be placed in B&B.

6.3a Consultation Findings

• Stakeholders reported that the standard of accommodation at the Somer Temporary Accommodation Scheme is reasonable. However, stakeholders reported that it would be easier for most service-users if the flats were provided with basic furniture.  The lack of any furniture has at times caused delays in service users being able to move in. However, it was also pointed out that when furniture was provided at an earlier scheme managed directly by B&NES Homeless Team, there had been problems with theft and damage to furniture.
• The referral process is well established and works well. The two teams work together with the service users to try to ensure a satisfactory placement within the required timescales. Feedback indicated that  communication between the two teams about service-user placement was essential to ensure that the Housing Advice Team is able to end B&B bookings promptly.
• Stakeholders gave examples of the different parts of Bath Self Help working in partnership together. For example, one service-user with mental health problems had not managed well in a hostel environment in the past.  However, after additional support was put in place Bath Self Help accepted the service-user’s placement in a temporary tenancy where the service user is coping well.

• Stakeholders reported that they felt that the aims of the Housing Advice Team do not always correspond with the aims of staff at the Somer Temporary Accommodation Scheme: The Housing Advice Team aims to move people on from temporary accommodation as soon as they are ready and able to, thus complying with local and national strategic objectives, and at the same time freeing up temporary tenancies for other homeless households with support needs.  There is the perception amongst Housing Advice Team members that Bath Self Help staff are keen to have households settle for a period of at least 6 months before moving on. Stakeholders consulted believed that this is not always necessary and can in fact be counter productive.  Many service users in temporary tenancies report that they do not require supported housing, yet they are often so comfortable (and become so settled), in their temporary tenancies that they are reluctant to consider other offers of accommodation through the Homeseekers Register.
•  Stakeholders reported that there have been instances in the past where breaches of licence agreement have been handled inconsistently by Bath Self Help staff. For example in the case of rent or service charge arrears, service users  are not always sent warning letters or notices, nor are they always required to enter into a formal agreement to repay. However feedback suggests that both teams are working together to try to improve this situation.
• Members of the Housing Advice Team  reported that it is not uncommon for service users to have problems with rent arrears and that this can stem from issues with housing benefit, (HB) , eg claims being submitted late, failure of service users to provide all the evidence requested by Revenues and Benefits, and the fact that Revenues and Benefits take a long time to process claims. The Housing Advice Team felt that more consistent support with HB needs to be offered by Bath Self Help staff. They explained that the existence of unresolved arrears can prevent service users  from successfully  moving on into permanent social housing.
• Stakeholders reported that they felt it was important that service-users in temporary tenancies are visited by support staff at regular intervals to ensure that they are managing their tenancies effectively and so that extra support can be put in place if required.  In the absence of face-to-face visits it is possible that some families with higher support needs will not be able to cope and this is not always apparent unless frequent visits are made.
• Stakeholders reported that staff at the Somer Temporary Accommodation Scheme are very good at advising service users about Community Care Grants and supporting them in their efforts to equip their new tenancies. However, the Housing Advice Team was concerned that this should not delay a household from moving out of B&B into the temporary tenancy and that it is reasonable for service users to move in with very basic furniture.  Support staff can then help them obtain more furniture etc.

9. Review Outcome / Recommendations and Impact

1.   The level of preparation and planning for the review was thorough and comprehensive.  Evidence was made accessible to the SP Review Team and  staff were on hand to provide additional information as required. 

2.   The review validated QAF objectives 1,3,4 5 and 6 at Level C and it is recommended that the Somer Temporary Tenancy Scheme works to achieve Level B by the next Review.       

      Some weaknesses concerning Objective 2, Support Planning were found and this was validated at Level D. See below.

3.   Needs and Risk Assessments.

The recently introduced policies and procedures require that the needs and risks of service users are regularly reviewed. This will ensure that staff visit service users at their temporary tenancies regularly. It is recommended that a monitoring system is introduced to ensure that this happens in practice.

4.   Support planning and service user engagement. 

Staff have recently attended training in this area, (September 2005),  and it is recommended that a system of monitoring is introduced to ensure consistency of service.  Support plans should be service user centred, outcome focused and regularly reviewed according to need/policy. Strategies should be developed to ensure that all service users are engaged in the support plan and keyworking system and that they are encouraged to view this as a benefit of being in a temporary tenancy and preparation for permanent, independent re-housing. Bath Self Help will require the cooperation of the Housing

Advice team in stressing to service users the importance of engaging in the support offered. All service users are required to have formal, written support plans and it is expected that regular structured one to one meetings should take place between service users and support workers at least monthly.

5.   Rent arrears

With generic working, all staff need to be confident in dealing with questions about rents, including housing benefit, and arrears.  Staff need to work more proactively with service users to minimise the chance of rent/service charge arrears arising, this includes assisting with housing benefit claims where necessary. Accurate, up to date information concerning rent accounts should be provided regularly to service users. Where arrears exist, (either current or former tenancy arrears), it is recommended that staff work with service users to help them set up and adhere to repayment plans.

6.   Joint working

Following on from the above, it is recommended that Bath Self Help continues to work with B&NES Revenues and Benefits section to establish better communication/working arrangements which would minimise unnecessary rent arrears arising through problems with housing benefit. (It is acknowledged that HB claim processing times can be lengthy and this can lead to high arrears before the claim is paid). Where appropriate and with consent, other professionals working with service users should be informed of any rent arrears as soon as possible so that they can work jointly to support the service user.

7.   Encouraging and facilitating move-on

Staff help to make service users’ stays at the temporary tenancies as comfortable as possible.  However the Review found that there should be a greater focus on encouraging and facilitating move on.  This includes helping to ensure that service users are aware of the realities of social housing in B&NES, ie the availability, locations and type of accommodation on offer.  It is recommended that staff should work with the Housing Advice team to encourage service users with few support needs to consider all their housing options, including those in the private rented sector and through the Homefinders Scheme. It is also recommended that staff should coordinate move-on support plans where appropriate.  This too will involve partnership working with other local agencies.

8.   Increase the availability of units and reduce the time between a unit becoming vacant and re-let.

      Monitoring information indicated that it can take several weeks for a vacant flat to be available for letting again.  It is recommended that these figures be improved upon.  Most moves from the TAS are planned so steps should be taken to ensure that new service users are assessed and able to move in straight away.

9.   Staff Training

Some staff reported that they did not feel that they were given enough training opportunities and certainly some training needs in the Core Assessment areas were identified during the course of the review.  (eg Support Planning, (and staff have since attended SITRA training in this area), Diversity and Inclusion and Protection of Adults).It is recommended that Bath Self Help Housing Association works with staff to identify and prioritise training needs and to give staff opportunities and encouragement to attend relevant training.

10. Equalities, Diversity and Inclusion

      Staff reported that whilst they were aware that facilities such as Language Line existed, they were uncertain how to access/use it.  Therefore, it is recommended that the Provider ensures that staff are up to speed with all facilities which can be used to promote inclusion, including Language Line and accessible formats.

11. Information sharing

This report is a public document and will be placed on the Bath and North East Somerset Website.  Bath Self Help must share the Review recommendations and outcomes with Service Users and complete an Action Plan by February 2006.             

12. The review recommends that the contract be renewed at an increased contract value

Supporting People Annual Contract Value                                             £45,573

      NB It is expected that individual units will be taken out of use as the stock is improved/redeveloped and that funding will be reduced pro-rata as this happens.

Review Report Continued