Housing Support for Homeless Households - Analysis of Consultation Findings- Report

Section 1: The Consultation

1.1 This report presents the findings of a consultation carried out by the Scottish Government on "Housing Support for Homeless Households". The consultation document was issued in January 2012, and the consultation closed on 11^th April 2012.

1.2 This report is in four sections. This section outlines the nature of the consultation, the responses received and the means of presentation of the findings. Section 2 covers the findings relating to views of the content and scope of assessment. Section 3 covers the findings relating to views of the content and scope of provision of support services. Section 4 covers the findings relating to any other issues raised in the consultation, as well as the perceived business and equality impact.

Background to the consultation

1.3 The Scottish Government has identified tackling and preventing homelessness as a key priority, and has set a target that, by the end of 2012, all unintentionally homeless households will be entitled to settled accommodation.

1.4 The provision of housing support to homeless households in Scotland forms part of the overall commitment to tackling and preventing homelessness. It has been found that a significant number of homeless applicants have support needs (identified in the most recent Scottish Government statistics as being just over a third¹). It is also recognised that the provision of support to deal with these needs can assist people to sustain tenancies, and provide better outcomes for them and their families. Although the scope and level of such needs can vary, requirements can include assistance in dealing with issues such as, for example: basic housing management; independent living; mental and physical health problems; substance misuse etc.

1.5 In order to improve the way support needs among homeless applicants are identified and addressed, the Housing (Scotland) Act 2010 establishes a new Statutory Duty which requires local authorities to carry out an assessment of the prescribed housing support needs of homeless applicants who are currently assessed as being unintentionally homeless, or threatened with homelessness, and in priority need and therefore entitled to settled accommodation, and where there is reason to believe that the applicant may be in need of prescribed housing support services. The Duty (at Section 32B of the Housing [Scotland] Act 1987) also requires local authorities to make sure that prescribed housing support services are provided to those assessed as being in need of them.

1.6 Scottish Ministers are also able, under the new Duty to make regulations about housing support assessment and provision, including:

• The housing services to be considered.
• The conduct of the assessment by local authorities.
• The provision of housing support services.
• Making different provision for different purposes and different areas.

1.7 The Scottish Government has recognised that it is important to ensure that any Regulations meet the needs of service providers and service users. A three stage approach is being taken to developing policy in this area:

• A consultation on whether regulations should be established on the assessment and provision of housing support for homeless households or those threatened with homeless (and what any regulations should cover).
• Drafting regulations in the light of responses to this consultation and issuing these for consultation.
• Submitting the regulations for debate and approval by the Scottish Parliament.

1.8 This report presents the findings of the first stage - the preliminary consultation.

The consultation process

1.9 The consultation asked nine questions in total, seven of which were directly about the provision of housing support services. There were also additional questions requesting comments on the Business Regulatory Impact Assessment (BRIA) and the Equality Impact Assessment (EQIA). Written responses to the consultation were invited, along with the completion of a Respondent Information Form (RIF).

1.10 The consultation sought respondents' views on:

• Whether regulations should be established (Question 1).
• Prescribing the inquiries local authorities must carry out in determining the housing support required by homeless households (Question 2).
• Specifying matters to which local authorities must have regard when carrying out housing support assessments (Question 2).
• Prescribing the housing support services for which a homeless applicant is to be assessed (Question 3).
• Prescribing the period for which housing support services should be provided (Question 4).
• Prescribing matters to which local authorities must have regard when ensuring provision of housing support services (Question 5).
• Establishing how Regulations may make different provision for different purposes and different areas (Question 6).
• Any other matters relating to the provision of housing support services (Question 7).
• The business regulatory impact of proposals (Question 8).
• The equalities impact of proposals (Question 9).

1.11 Some of these questions contained a number of parts, with a mix of closed questions (e.g. asking respondents to choose between options, or asking respondents to state "yes" or "no") and open questions asking respondents to comment on issues such as: the reasons for their views; further details of their proposals; or the likely costs of their proposals. A full list of the questions is provided at Annex 1.

Submissions and respondents

1.12 A total of 66 submissions were received. Table 1 (below) summarises the numbers and proportions of respondents by category.

Table 1. Respondents by category

Type of respondent	Number	% total2
Local authorities or those representing local authorities	30	45
Voluntary sector	19	29
Housing association or associated	9	14
Justice	3	5
Health	2	3
Individual	1	2
Professional bodies and trade unions	1	2
National Statutory Organisations	1	2
Total	66

1.13 As can be seen from the table, the most common category of respondents was "local authorities or those representing local authorities"³, accounting for nearly half of all responses. The other main categories of respondents were "voluntary sector", and "housing association or associated". The remaining respondents were drawn from a wide variety of sectors. Only one response was received from an individual.

1.14 Most of the respondents addressed some or all of the specific questions, or provided information directly relating to specific questions. Some provided a general response, and some provided additional material in another document (e.g. a covering letter). Most of the responses were submitted electronically.

1.15 The responses which have been included in the quantitative analysis as favouring one option or another are those who either ticked a box on the form, or who expressed a sufficiently unequivocal view of their preference by other means to allow their intention to be ascertained. At all questions, a cautious approach has been taken to assessing whether or not the views indicated unequivocal support for an option.

Analysis of the data

1.16 The analysis of the data involved a number of stages, as follows:

• An Access database was designed to include the data relating to each of the main and supplementary questions.
• The information was input verbatim to the database.
• Responses to the closed questions were analysed and the quantitative findings prepared.
• A series of Word documents were generated, containing all of the qualitative material in the responses to each of the questions.
• Key themes and sub-themes were identified for each question and supplementary question, and the detailed comments were organised into a series of issue-based "books".
• The findings were summarised and the report prepared.

The report

1.17 A full analysis of the material submitted in the responses was carried out, and generated a wealth of information. In terms of quantitative information, the proportions of respondents who addressed each question, and their responses to closed questions have been provided. Where a respondent did not tick one of the boxes, but made comments on the issue, these comments have been included in the quantitative material only where they were unequivocal. Where this was not the case, respondents have not been counted in the quantitative findings, but their views have been reflected in the qualitative analysis.

1.18 In terms of qualitative material, the analysis identified the themes and issues which emerged in response to each question. The presentation of the qualitative material focuses on these themes and issues, and on highlighting the range and depth of views expressed. It would be inappropriate to attempt to quantify responses expressing particular views, other than at the broadest level, for several reasons, including that: respondents provided the information in different ways; some points were made at a number of different questions or overlapped more than one theme; some responses were submitted on behalf of organisations and/or represented the views of a number of respondents; and there was a need for judgement about where to include particular material in the report. The focus is therefore on the qualitative presentation of this information, giving only broad indications of respondents identifying overall themes, and using qualitative terms such as "many"; "a number"; "several"; "a few" etc.

1.19 In responding to some of the qualitative questions, similar views were sometimes expressed by different types of respondents. It would clearly be inappropriate to list these for each issue, but the report identifies overall variations by type of respondent where there appeared to be a clear difference of view related to this.

1.20 In presenting the qualitative data, the wording used in the report sometimes follows the wording used in a response, to preserve the sense of the point (even though it is not presented as a "quote") and to reflect respondents' intended messages. It is considered an appropriate approach, as it is generally clear to consultation respondents that their comments will form the basis of a report. Only one respondent requested that their material should remain confidential and their views have been included, but the source has not been identified at any point in the text. It should be noted that where the term "respondent" is used, this refers to one response, even where that response may represent the views of more than one contributor.

1.21 The report cannot present all of the individual points made by every respondent, nor can it provide a compendium of material. The responses can be viewed on the Scottish Government website⁴. The remainder of this report presents the findings of the consultation.

Summary of issues: The consultation

1.22 In summary, the main points relating to the consultation are as follows:

• A Scottish Government consultation on "Housing Support for Homeless Households" was carried out between January 2012 and 11^th April 2012.
• 66 written responses were received. The most common category of respondent was "local authorities or those representing local authorities" (45%). The other main categories of respondent were "voluntary sector" (29%), and "housing associations or associated" (14%). The remaining respondents were drawn from a wide variety of sectors. One response was received from an individual.
• The analysis of the data involved: design of an Access database; input of the responses; analysis of the closed questions; identification of key themes and sub-themes for each qualitative question; and preparation of a report.
• The report presents the quantitative findings and the detailed qualitative material, including the themes which emerged and the range and depth of views expressed.
• The full responses are available for inspection on the Scottish Government website.