Specialist and Supported Housing Strategy 2023 to 2033

Gateshead Council has a strategic vision to 'make Gateshead a place where everyone thrives'. Our five challenges include:

• put people and families at the heart of everything we do
• tackle inequality so people have a fair chance
• support our communities to support themselves and each other
• invest in our economy to provide opportunities for employment, innovation and growth
• work together and fight for a better future for Gateshead

Having a range of high quality specialist and supported housing is an essential part of delivering these commitments. This Specialist and Supported Housing Strategy contributes to our overall vision and, together with other council strategies and plans, it is the framework through which our specialist and supported housing aims and delivery priorities are set out.

This strategy covers the council's approach to specialist, supported and accessible homes for

• older people
• people with learning disabilities and autistic people
• people with mental-health needs
• people at risk of homelessness, including people experiencing domestic abuse, young people (including 16-to-17-year-olds, care experienced young people, young parents), people with multiple and complex needs (including rough sleepers, offenders, people with drug or alcohol related needs), refugees, and veterans
• people with physical disabilities or long-term conditions

The council seeks to work with a range of partners to meet its specialist and supported housing objectives. The council will ensure that the best use is made of existing provision, enabling additional development and brokering strong relationships with providers, to ensure it is of a high quality and that it meets the needs of local people.

This strategy is aimed at:

• housing organisations that provide supported, specialist and mainstream housing, including those currently operating in Gateshead and those who may consider operating here
• support and care organisations that provide services in supported housing
• community organisations in Gateshead with an interest in specialist and supported housing

The provision of good-quality specialist supported and accessible homes is a part of creating a place where people can live well and thrive in Gateshead. Our vision is to secure the best quality of life we can for older people and people with support needs both now and in the future. This means delivering a range of specialist, supported and accessible homes that enable people to live independently, with support and care where necessary.

We will deliver our ambitions through:

• developing a range of new build specialist, supported and accessible homes over the next 10 years and beyond, that is tailored to reflect the identified needs within our local communities
• ensuring that support and care services, delivered by registered providers and other organisations, to people within supported housing as well as those living in mainstream housing, are effective in promoting people's wellbeing and independence

Our ambition is to develop an extensive range of specialist and supported housing options, to cater for the wide-ranging needs of people in Gateshead.

This vision means that through this strategy we will commission and enable a wide range of specialist and supported housing that enables adults and young people to live independently in their communities, including:

• an increase in housing suited to older citizens, including access to support and assistance to remain living in their own homes and access to a wider range of high-quality specialist accommodation that is suited to ageing well in later life
• reducing homelessness through the provision of high-quality supported accommodation and 'move on' housing opportunities 
• range of supported housing and move-on accommodation options for young people
• safe accommodation for people experiencing domestic abuse
• the provision of a mix of supported housing options for people with learning disabilities and autistic people and people with mental-health needs
• the development of additional accessible and adapted homes that are suited to adults and children with physical disabilities and long-term health conditions
• making effective use of technology to secure effective support and independent living

The purpose of this strategy and the background work that has been undertaken, is in recognition of the council's need to understand its supported and specialist housing requirements and to ensure that there is a sufficiency of appropriate and good-quality supported housing to meet the needs of the growing numbers of older people, people with disabilities and people with support needs in Gateshead.

This specialist and supported housing strategy is influenced and informed by a range of local and national policies, summarised below.

National context

There are a number of national policy factors affecting the supported housing sector and which will influence the delivery of this strategy.

In October 2020 the Government published the Supported housing: national statement of expectations. This set out the expectations of local authorities and of providers of supported housing in relation to, for example, understanding the need for supported housing and ensuring that supported housing is of a good quality, both in terms of the accommodation and the service. This was for guidance only. However, since this was published, the Government has set out its intention to legislate to deliver improvements in supported housing.

More recently the Government has established the Supported Housing Improvement Programme (SHIP) and made available funding to a number of councils to deliver this programme locally. The programme is intended to support councils to improve the quality of supported housing, both the accommodation and support services, through greater local scrutiny. Gateshead Council is participating in the Supported Housing Improvement Programme. Aligned with this work, the council is establishing a gateway for access to all housing and support services for people experiencing homelessness and a 'marketplace' for commissioning and procuring supported housing services.

The Government is currently supporting a private members' bill, Supported Housing (Regulatory Oversight) Bill. The bill makes provision about the regulation of supported exempt accommodation, and makes provision about local authority oversight of, and enforcement powers relating to, the provision of supported exempt accommodation. Once this bill becomes law it is expected that the council will have new statutory powers and duties to regulate supported housing locally.

Over recent years long lease-based models of supported housing have come under scrutiny by the Regulator of Social Housing, particularly the governance and financial arrangements of some Registered Providers that lease all or most of their supported housing stock from other organisations. The council will take account of the regulatory status of providers of supported housing in its approach to managing the quality of supported housing services (section 5).

The Adult Social Care Reform White Paper includes a focus on housing, new models of care, digital and technology. A series of measures have been announced that specifically target the housing, housing with care, and technology markets with the aim of helping all people with care and support needs to live well, safely and independently. The council will work with providers of supported accommodation to ensure that preventative approaches, such as the more extensive use of technology enabled care, are used to support older people and other people with support needs to live independently, both in supported housing and in general-needs housing.

The Domestic Abuse Act (2021) places a duty on local authorities to provide support in safe accommodation for domestic abuse victims/survivors. Safe accommodation is: refuge accommodation; specialist safe accommodation; dispersed accommodation; Sanctuary schemes (Safe at Home); move-on accommodation; other forms of domestic abuse emergency accommodation. The associated statutory guidance recognises that alternative housing options, whether refuges, social housing, or private accommodation, are key to ensuring victims and survivors are able to escape domestic abuse, and factor strongly in a victim's or survivor's decision-making about whether they stay or leave a perpetrator.

Government policy on Housing for older and disabled people guides councils in preparing planning policies on housing for older and disabled people. This policy is reflected in the council's Specialist and Supported Housing Supplementary Planning Document and further reinforced through this strategy.

Local context

This strategy is both informed by and supports the delivery of a range of other local policies set out below.

• Thrive: The council has an overall strategic vision to 'make Gateshead a place where everyone thrives'. This strategy is intended to assist older people, disabled people and people with care/ support needs to thrive and to live independently
• Health and Wellbeing Strategy: Give every child the best start in life; enable all children, young people and adults to maximise their capabilities and have control over their lives; create fair employment and good work for all; ensure a healthy standard of living for all; create and develop healthy and sustainable places and communities; strengthen the role and impact of ill health prevention. This strategy is intended to deliver good quality specialist and accessible homes for local people as part of improving health and wellbeing
• Market Position Statement: This strategy will support delivery of the market position statement through, for example, provision of additional extra care housing and supported living services, that provide early intervention and preventative services that, for example, reduce the use of care homes
• Integrated Adults and Social Care Services - Living Thriving Lives Plan: This five-year plan sets out the vision and ambitions for adult social care to enable residents to live thriving lives, be independent and have access to personalised quality support when they need it. It focused on eight key areas: information and advice, enablement, home first principle, caregivers, technology, workforce, strengths based practice and commissioning. There is an associated delivery plan
• Homelessness and Rough Sleeping Strategy. This strategy sets out the commissioning intentions for a range of supported housing services that support delivery of the Homelessness and Rough Sleeping Strategy, including preventative support services
• Housing Strategy. This strategy will help to deliver a range of supported and specialist housing consistent with increasing the local housing supply
• Planning Policy. This strategy summarises the evidence base of need for specialist, supported and accessible homes, and it complements the council's Specialist and Supported Housing Supplementary Planning Document, which sets out how the council encourages, and where possible requires, development of accessible and specialist homes
• Safe Accommodation Strategy. This strategy sets out how Gateshead Council will meet the duty to provide support in safe accommodation for domestic abuse victims and survivors
• Placement Sufficiency and Commissioning Strategy for Children in Care in Gateshead. This strategy sets out the commissioning intentions for a range of supported housing services for young people in the context of the corporate parenting responsibilities of the council towards young people in care/care experienced. Gateshead's Corporate Parenting Pledge sets out Gateshead's commitment and responsibilities as a corporate parent, which is to provide the best possible care and protection for children and young people in care, in terms of the council's responsibilities as part of the Children Act
• Youth Strategy. This is in development. It will include the roles of supported accommodation for young people with support needs
• the council is part of the Government's Supported Housing Improvement Programme (SHIP)

The strategic aims of this strategy are influenced and informed by the national and local policy context, the views and perspectives of local stakeholders, people with lived experience and Council Officers and their local partners, and the identified needs of local people for specialist and supported housing.

The strategic aims of this strategy are set out below.

A.   To develop and enable the provision of a wide range of homes, including supported and specialist homes, that are suited to the needs of an ageing population.

This will include the commissioning and delivery of specialist housing of different tenures suited to older people, including extra care housing and retirement housing for affordable rent and for sale, new build mainstream (non-age designated) homes for sale and for affordable rent that are better suited to the needs of older people, and the provision of adaptations that enable older people to remain living in their existing homes.

B.    To commission and develop a range of specialist and supported housing, with associated care and support services, that enable adults with longer term care and support needs to have a home in the community.

This will involve the commissioning and delivery of supported housing that reflects the needs and preferences of people with learning disabilities, autistic people, and people with serious and enduring mental ill health. This will include a range of homes, for example, self-contained supported housing, shared supported housing, home ownership options, and, for some people, bespoke housing arrangements.

C.   To commission and develop a range of specialist and supported housing, with associated support services, for young people and adults who are homeless, or who are at risk of homelessness; and homes for young people who are care experienced.

This is intended to be for people who need generally supported housing as a consequence of being homeless or being at risk of homelessness; this is closely aligned with the aims of the council's Homelessness and Rough Sleeping Strategy. This includes supported housing for young people with a support need (such as care leavers), people experiencing domestic abuse, and people who may have multiple and complex needs linked to, for example, drug or alcohol dependence, offending and/or rough sleeping.

D.   To enable and provide a range of accessible and adapted homes suited to the needs of people with physical disabilities and/or long-term conditions.

This is to ensure that there are sufficient homes for sale and for affordable rent that are adapted to accessibility standards (M4(2) and M4(3)) including for people who are wheelchair users, in line with the council's Specialist and Supported Housing Supplementary Planning Document.

E.    To maintain and raise the standard and quality of supported housing services

The council will work with providers of supported housing services to ensure that both the quality of accommodation used for supported housing and the support services provided in supported housing are of good quality and offer a range of housing choices for people.

The delivery plan (section 7) summarises actions to deliver these strategic aims.

The council wants to ensure that all supported housing in Gateshead is of good quality. This means both the accommodation and related support services (and care services where applicable) being of good quality.

This will include supported housing providers meeting legislative, regulatory requirements as applicable (Charity Commission, Regulator of Social Housing, the Care Quality Commission, Community Interest Companies regulated by the Financial Conduct Authority, Housing Act 2004 minimum standard for housing, and OFSTED).

The council will draw on the Government's current guidance National Statement of Expectations for Supported Housing as a basis for expectations of supported housing providers in terms of good practice in the delivery and management of supported housing services.

However, the council's approach to ensuring that supported housing is of a good quality anticipates the intent of the Supported Housing (Regulatory Oversight) Bill that is supported by the Government. When this becomes law the council anticipates that its approach to ensuring the quality of supported housing will likely include:

• a licensing scheme for all supported housing providers. All providers of supported housing in Gateshead will be required to be licensed by the council in order to provide supported housing
• only providers of supported housing that are licensed by the council will be able to access specified and exempt accommodation housing benefit status
• inspections and reviews of all supported housing in Gateshead by council officers to ensure that the accommodation is safe, fit for purpose and of a good standard. This will include housing in multiple occupation (HMOs) that are being used to provide supported housing
• the council will also inspect and review the quality of the provision of support in supported housing services to ensure customers are getting the support they need and require, for example, as part of the council's approach to safeguarding vulnerable adults
• assessment of the value for money provided by specialist and supported housing services, ensuring they are affordable for the council and for the people who live in them
• due diligence checks on supported housing providers
• any previously 'noncommissioned' supported housing will need to be licensed in the future in order to be treated as supported housing under housing benefit regulations; this will in effect mean that all supported housing in Gateshead will need to be licensed and commissioned by the council
• application of new OFSTED regulations for supported accommodation for 16 to 17 year-olds.

In the meantime, before the Supported Housing (Regulatory Oversight) Bill becomes law, the council is part of the Government's Supported Housing Improvement Programme (SHIP) and will be working with providers of supported housing services to ensure that both the quality of accommodation used for supported housing and the support services provided in supported housing are of good quality.

As part of the delivery of this strategy, the council wants to work closely with a range of providers of supported housing. The council's Specialist and Supported Housing Supplementary Planning Document also sets out our expectations of developers and providers of supported and accessible homes.

We are seeking innovative approaches from our partners, for example, delivering a range of housing sizes, types and tenures that will be appropriate to the needs of various groups in the community, in line with our strategic aims.

The council would like:

• to be involved at an early stage in considerations and discussions regarding the reconfiguration or disposal of existing supported accommodation provision
• to agree priority notification and nomination rights on existing and new specialist and supported accommodation within the borough
• you to sign up to our DPS framework so we can ensure your organisation has all of the relevant policies and procedures in place and we can be assured that you will deliver quality accommodation and/or support
• to understand whether you own and/or lease housing for the purposes of providing supported accommodation and to understand your funding model. Where housing is leased, we want to be satisfied that this model is sustainable and in the interests of the intended residents
• providers to develop proposals for specialist and supported accommodation which are effectively tailored to meet local need and to consult with local communities prior to and during the implementation of these proposals
• supported housing providers who are not currently operating in Gateshead to get in touch with us and talk through their plans for development of supported or specialist housing in the borough so we can advise on what our needs are and how you might be able to meet them
• supported housing providers to help to contribute to the wider health and wellbeing of all residents, and to work with the council and others to support community safety through their specialist and supported accommodation services
• you to be willing to work with other partners and agencies to help facilitate the delivery of intergenerational and diverse communities

The council will undertake ongoing market engagement to:

• build strong relationships with supported housing providers
• stimulate and encourage the local supported housing market
• work with supported housing providers in a collaborative way
• understand how the council can work with supported housing providers to manage market risks and challenges

The council welcomes enquiries from supported housing providers, including from providers who are new to Gateshead.

The delivery plan sets out actions for each of the four strategic aims. It includes in relation to each of the group of citizens covered by this strategy:

• what is required, drawing on local policy and plans, stakeholder views, commissioner insights and the specialist and the supported housing need assessment
• a summary of need from the specialist and supported housing need assessment
• identified requirements for specialised and supported housing in the short - medium term (the period to 2030) and likely requirements in the longer term (from 2030)
• a summary of actions
• a summary of measures of success

Whilst the delivery plan is shown in relation to different 'cohorts' of people covered by the strategic aims, it is recognised that people's needs are often complex and that innovative approaches to housing and support that go beyond these 'cohort' definitions will be required and indeed desirable:

• an assumption that mainstream housing suitably designed and/or adapted will be appropriate for many people with support and/or care needs
• opportunities for intergenerational living will form part of the required housing solutions
• housing solutions may be multi-functional, for example providing a mix of mainstream housing, supported housing and potentially other facilities
• all housing and supported accommodation for people with support and/or care needs should assist and facilitate inclusion in community life
• this is consistent with current national policy (for example from the Social Care White Paper) which places a strong emphasis on the role of preventative approaches, for example the use of home adaptations, digital technology, and support services to support and promote the independence of older people and other people with support or care needs

In relation to the need for different tenure options, for most cohorts of people covered by this strategy this is a need for affordable rented supported housing (although it is recognised that supported housing rents are typically higher, sometimes considerably higher, than general-needs housing for affordable rent). However, for older people and people with physical disabilities, a mix of tenure types is identified,

For example, for sale as well as for affordable rent. For some people with long-term care needs, such as some people with learning disabilities or people with enduring mental health needs, home ownership through the HOLD Programme is a potential option.

The specialist and supported housing need assessment sets out where it is possible for identified need to be disaggregated by locality, specifically for specialist housing for older people and accessible housing for people with physical disabilities. The population sizes of the other cohorts are typically smaller, making disaggregation by locality less feasible and meaningful.

A. To develop and enable the provision of a wide range of homes, including supported and specialist homes, that are suited to the needs of an ageing population (people aged 55+).

What is required?

Drawing on evidence of need based on the views of older people and other local stakeholders including registered providers and other housing providers, as well as commissioner insights:

The council wishes to work with its RP partners and other housing providers to develop new age-designated housing for older people that is attractive and offers a range of tenures including for sale, shared ownership and for affordable rent.

Specifically, there is a need for an increased range of choices for older people, including:

• a need for further provision of extra-care housing, for affordable rent and for shared ownership
• a need for modern age-designated retirement housing without care on site and without large communal facilities, for affordable rent, for shared ownership and for outright sale

There is a requirement for development of additional extra-care housing, in part to meet the need for an alternative to the use of residential care.

There is a need for flexible housing with care models that enable people to remain in situ should their care needs change, for example in relation to living with dementia; an example is Watergate Court extra-care housing scheme which includes homes for people living with dementia.

There is a requirement for new-build mainstream (non age-designated) homes for sale and for affordable rent that are better suited to the needs of older people, for example through the provision of bungalows.

There is a need for the development of modern nursing care homes that can provide high-quality accommodation and support people with complex care and health needs. The council will engage with the local care home market to achieve this.

There is a recognition that older sheltered housing stock needs to be reviewed, both by the council and by its RP partners, and updated where this is feasible and cost effective in order to provide a more contemporary housing offer for older people.

The council wishes to work with registered providers in relation to the impact of the analogue to digital switchover in 2025 and how technology can better support the independence of older people, both in specialist and general needs housing.

Summary of evidence of need for specialised and supported housing

The table below summarises the need for different types of specialist housing and accommodation for older people in Gateshead.

Housing for older people (retirement housing for sale and for social/affordable rent)

The estimated need for housing for older people to 2040 is around 670 homes of which around 270 homes are estimated to be required for social or affordable rent and around 400 are estimated to be required for shared ownership or sale.

Based on the qualitative evidence about older people's housing preferences it is assumed that potentially up to 50% of this estimated need could be met through the provision of mainstream housing that is designed for and accessible to older people even if it is not technically 'designated' for older people, for example housing that is 'care ready' and suited to ageing as distinct from 'retirement housing'. This may include mainstream housing to accessible and adaptable standards M4(2) and M4(3).

Housing with care (extra care housing)

The estimated housing with care net need to 2040 is around 435 homes of which around 305 homes are estimated to be required for social or affordable rent and around 130 homes are estimated to be required for shared ownership or sale.

This will meet the housing and care needs of older people who are self-funders as well as older people who need rented accommodation and are eligible for social care funded by the council. This need could be met in part through mixed tenure development of extra care housing.

Residential care and nursing care

The estimated residential care net need is not anticipated to increase significantly over the period to 2040. It is likely that residential care bed capacity will need to be increasingly focused on older people with more complex social care needs, such as people living with dementia.

The estimated nursing care net need to 2040 is around 230 bedspaces. It is likely that nursing care bed capacity will need to be increasingly focussed on older people with more complex health and social care needs, including people living with dementia. This is aligned with the council's integrated residential or nursing care delivery model.

Delivery

In the short-to-medium term, by 2025, based on the summary of need in the table above, the requirements for additional specialist housing are:

• around 1-2 additional extra care housing schemes
• around 1 retirement housing scheme for affordable rent/shared ownership
• around 2-3 retirement housing schemes for shared ownership/sale
• around 1 additional nursing care home

In the medium term (by 2030) to longer term, based on the summary of need, the requirements for additional specialist housing are:

• around 1 additional extra care housing scheme
• around 2 retirement housing schemes for affordable rent/shared ownership
• around 2-3 retirement housing schemes for shared ownership/sale
• around 1 additional nursing care home

Summary of actions

1. The council will commission extra care housing that is identified as being required in the short-to-medium term.
2. The council will work with registered providers and private housing developers to develop and enable contemporary retirement housing for sale, shared ownership and for affordable rent.
3. The council will review its own sheltered housing stock and associated services and work with its RP partners to do the same.
4. The council will work with its RP partners to ensure that switch to digital technology is planned for and delivered in specialised housing for older people.
5. The council will use the Specialist and Supported SPD to encourage and require, as appropriate, developers of mainstream housing, for sale and for affordable rent, to provide housing that is better suited to the needs of older people, for example in terms of adaptability of homes; providing bungalows as part of a mix of housing types.
6. The council will work with care home operators to develop new, modern nursing care provision that can support people with complex health and care needs. The council will work with providers of existing care homes to ensure they are positioned to meet the increasing complexity of care and health needs amongst the local older population.
7. The council will consider the potential for increasing the scale of its provision of disabled facilities grants to enable more older people to be able to adapt their existing homes to meet their needs.

Indicators of success

More people will have access to extra care housing, both for shared ownership and for affordable rent.

More people will have access to new retirement housing for sale, for shared ownership and for affordable rent.

The standard of existing forms of sheltered housing will be improved where this is feasible and viable.

Extra-care housing will be designed to support people with high or complex care needs (for example, people living with dementia), catering for both older people and working age people with high or complex care needs (for example, people with learning disabilities).

More mainstream housing for sale and for affordable rent will be developed that is attractive to older people.

There will be increased provision of new-build and repurposed nursing care homes that can support people with complex health and care needs.

More older people will have access to technology-enabled care to support them to live independently, both in mainstream housing and in specialised housing.

B. To commission and develop a range of specialist and supported housing, with associated care and support services, that enable adults with longer term care and support needs to have a home in the community.

This will involve the commissioning and delivery of supported housing that reflect the needs and preferences of people with learning disabilities, autistic people, and people with serious and enduring mental ill health. This will include a range of homes, for example, self-contained supported housing, shared supported housing, home ownership options, and, for some people, bespoke housing arrangements.

B1. Specialist and supported housing for people with learning disabilities and autistic people

What is required?

The council's vision for housing for people with learning disabilities, autistic people and people with neurodiversity related needs, drawing on the views of people with learning disabilities and autistic people, local evidence of need for supported accommodation, stakeholder views and commissioners' insights is that there is a desire to develop a housing pathway which includes a mix of housing and supported accommodation options, which offer people different housing choices, from housing options with 24/7 support through to mainstream housing with packages of care and support tailored to individuals' needs.

This pathway of housing and supported housing options is required, in part, to reduce the use of residential care, as well as to maximise the range of housing options for people with learning disabilities and autistic people. The council wishes to make it easier for people with learning disabilities and autistic people to access these housing options, as well as making available a range of assistive technology that enables people to live independently.

The specialist and supported housing need assessment indicates that the following 'components' of a housing pathway are required.

a)   There is a need for a small number of specialist supported housing schemes for people with complex care and support needs (around 5 to 6 self-contained units), with 24/7 support, which for example can also provide 'step down' accommodation for people being discharged from inpatient or care-home settings. However, some individuals with very complex housing and support needs may need individualised, bespoke one-to-one housing and support options.

b)   There is a need for additional small 'clusters' of self-contained supported housing both for people who need 24/7 support and for people with lower support needs (typically around 8 to 10 self-contained units). This is consistent with recent development of supported housing in Gateshead for people with learning disabilities, including 'concierge' developments of clusters of self-contained flats.

c)   There needs to be a mix of types of supported housing which enables people to have housing choices. This will include self-contained accommodation but shared supported housing will be preferred by some people. For example, it may be preferred by a group of younger people who are 'in transition' to adult social care and who may wish to share a home together. However, over time it is expected that the use of shared supported housing will decrease, as the majority of people are seeking self-contained housing.

d)   There is a need for fully wheelchair adapted homes for some people with learning disabilities who also have significant physical disabilities.

e)   There is a need for an increased range of tenure choices, such as home ownership through the Home Ownership for people with Long Term Disabilities (HOLD) scheme.

f)    Shared Lives options will increase as a complementary housing offer alongside supported housing or individuals accessing mainstream housing.

g)   People with learning disabilities need to be able to better access mainstream general-needs housing. This can be a realistic option for people where floating support or individualised care and support packages are provided.

Summary of evidence of need for specialist and supported housing

The specialist and supported housing need assessment identified that, in summary, an additional around 90 units of supported accommodation are estimated to be needed by 2030 for people with a learning disability or autistic people and an additional around 215 units of supported accommodation by 2040.

Of these additional around 215 units, around 25 units are estimated to be for Shared Lives accommodation and around 190 units are estimated to be for supported housing. This is summarised in the table below.

Net additional need for supported housing to 2040

Delivery

In the short term, by 2025, the requirements for additional supported housing are:

• 2 additional specialist supported housing developments for people with the most complex support needs. 5 to 6 s/c units. 24/7 support. (However, some individuals with very complex housing and support needs may need individualised, bespoke one-to-one housing and support options)

In the medium term (by 2030) and beyond, the requirements for additional supported housing are:

• 3 additional 'cluster' schemes of self-contained supported housing. 6 to 8 s/c units. 24/7 support
• 2 additional 'concierge' type schemes of self-contained supported housing. 8 to 10 s/c units. Support level to be determined (less than 24/7)

Summary of actions

1. Review the needs of people currently living in residential and nursing care homes to identify people whose needs can be better met in a supported housing alternative.
2. Commission supported housing that is identified as being required in the short-medium term. As part of the specification, confirm the number of units required to be adapted for wheelchair users.
3. Develop a specification for commissioning supported housing for people with very complex support needs which can provide alternative homes for people being discharged from inpatient settings or moving from care homes.
4. Review the sustainability of existing shared supported housing services and the extent to which tenants' needs may be better met in self-contained supported housing or in mainstream housing with support.
5. Identify people for whom home ownership through the HOLD programme is a feasible housing option.
6. Increase the number of Shared Lives carers who can support people with learning disabilities and autistic people.

Indicators of success

Fewer people with learning disabilities and autistic people will be living in residential and nursing care settings.

More people will have access to a wider range of types of supported housing.

People with very complex support needs will have access to supported housing to enable discharge from inpatient settings and as an alternative to care home placements.

Fewer people will live in shared supported housing settings.

Some people will become homeowners through the HOLD programme.

More people will have access to Shared Lives.

More people will have the opportunity to move on from supported housing to independent housing with support.

Young people with learning disabilities and autistic people will have an improved experience of transition to adult social care eligibility.

B2. Specialist and supported housing for people with serious and enduring mental ill health.

What is required?

The council's and its NHS partners' vision is for a housing pathway for people with mental health needs, drawing on the views of people with mental health needs, evidence of need for specialist and supported housing, the views of local stakeholders and commissioner insights.

This pathway of housing and supported housing options is required to maximise the range of housing choices for people with mental health needs and, in part, to reduce the use of residential care. Where possible in future, people who may have used residential/nursing care, for example on discharge from inpatient settings, will ideally use supported housing with 24/7 support as an alternative. The intention is that there is a range of housing and supported housing options, which provide an 'enabling' model of support, which supports people's recovery and complements mental health clinical pathways.

The specialist and supported housing need assessment indicates that the following 'components' of a housing pathway are required.

a)   There is a need for a small number of specialist supported housing for people with complex mental health needs as short to medium term accommodation (for example for up to 2 years) consisting of a small number of self-contained flats (around 5 to 6 units). This is typically a small 'cluster' of flats with 24/7 support, which can also provide 'step down' accommodation for people being discharged from inpatient settings, to provide accommodation for people experiencing a crisis and to support young people with mental health needs who transition to adult services eligibility.

b)   There is a need for additional small 'clusters' of self-contained supported housing (similar to recent supported housing developments in Gateshead) that provides medium term supported housing (for example for up to 3 years), both for people who no longer need 24/7 supported housing and people who need a supportive environment before moving to independent housing. This is the equivalent of the 'concierge' type of supported housing schemes (typically 8 to 10 self-contained units) that have been developed recently in Gateshead.

c)   There is a need for people with significant mental health needs to have better access to mainstream general-needs accommodation and to be supported with floating support to enable people to live within the community. This is also necessary to facilitate 'move on' housing options from supported housing.

d)   This could include expanding community support networks as a model of support as this would enable people to live in mainstream accommodation as well as providing support for people to access community life.

Summary of evidence of need for specialist and supported housing

The specialist and supported housing need assessment identified that, in summary, there is an estimated net need for around 30 units of additional supported housing for people with significant mental health needs by 2030 and around 65 units of additional supported housing by 2040. This is summarised in the table below.
 

Net additional need for supported housing to 2040

Delivery

In the short term, by 2025, the requirements for additional supported housing are:

• 1 additional specialist supported housing scheme for people with complex mental health needs. Around 5 to 6 s/c units. 24/7 support
• 1 additional 'concierge' type scheme of supported housing. Around 8 to 10 s/c units. Support level to be determined (less than 24/7)

In the medium term, by 2030 and beyond, the requirements for additional supported housing are:

• 1 additional specialist supported housing scheme for people with complex mental health needs. around 5 to 6 s/c units. 24/7 support
• 1 additional 'concierge' type scheme of supported housing. 8 to 10 s/c units. Support level to be determined (less than 24/7)

Summary of actions

1. Review the needs of people currently living in residential or nursing care homes to identify people whose needs can be better met in a supported housing alternative.
2. Develop a specification for specialist supported housing for people with complex mental health needs, which can also provide 'step down' accommodation for people being discharged from inpatient settings.
3. Review the sustainability of existing shared supported housing services and the extent to which tenants' needs may be better met in self-contained supported housing or in mainstream housing with support.
4. Commission supported housing that is identified as being required in the short-medium term.
5. Identify a process for people to move on from supported housing to mainstream housing, with support where necessary.
6. Consider expanding community support networks as a model of support to enable people to live in mainstream housing, with tailored support where necessary. This will form part of the recommissioning of floating support which will offer step-down or move-on options from supported housing.

Indicators of success

Fewer people with mental health needs will be living in residential and nursing care settings.

More people will have access to different types of supported housing.

People who require 24/7 support will have access to supported housing to enable discharge from inpatient settings and as an alternative to care-home placements.

More people will have the opportunity to move on from supported housing to independent housing.

Fewer people will be living in shared supported housing settings.

C. To commission and develop a range of specialist and supported housing, with associated support services, for young people and adults who are homeless, or who are at risk of homelessness; and homes for young people who are care experienced.

This is intended to be for people who need supported housing on a shorter term basis linked with being homeless, or being at risk of homelessness. This is specifically aligned with the aims of the council's Homelessness and Rough Sleeping Strategy, specifically Aim 2: Homelessness to be as brief as possible and result in positive outcomes: Access to housing and support services.

What is required?

This includes supported housing for young people with a support need (such as care leavers), people experiencing domestic abuse, and people who may have multiple and complex needs linked to, for example, drug or alcohol dependence and offending.

An objective of this supported housing is to assist individuals to move to less intensive supported accommodation options (depending on level of need) or into mainstream general-needs housing.

Some individuals will be able to move directly into mainstream housing with the right level of support. Where individuals with support needs have moved into mainstream accommodation, or are already living in mainstream accommodation, the intention is to provide floating support services that incorporate comprehensive tenancy training. This will form part of the recommissioning of floating support which will offer step-down or move-on options from supported housing as well as support in mainstream housing.

For those with the most complex needs the council will commission Housing First accommodation as part of its homeless and multiple and complex needs workstream.

The homelessness review has set out proposals for a new 'gateway' to housing and support services. This gateway is a single point of access for supported housing for people experiencing homelessness, and it will involve the assessment and placement of homeless households in commissioned housing and support services, and potentially internal services and, what are currently non-commissioned supported housing services.

The evidence from the specialist and supported housing need assessment suggests that there is no net additional need specifically for supported housing for refugees, former asylum seekers and/or people who have previously served in HM armed forces, but that existing or new supported housing services need to be sensitive to the specific support needs of refugee, former asylum seekers and/or people who have previously served in HM armed forces. The supported housing needs of unaccompanied asylum seeker children are accounted for within the young person's commissioning workstream.

C1. People with multiple and complex needs

Summary of evidence of need for specialist and supported housing

The specialist and supported housing need assessment identified that, in summary:

• 20 units of Housing First are required
• potentially 95 units of supported housing are estimated to be required for this pathway
• some of the supported accommodation needs to be provided for more than 12 months and some individuals will need intensive housing floating support when they move on

The profile of service types required which takes account of the assessed need for 20 Housing First and potentially 95 supported housing units for this pathway is summarised below:

Delivery

From the table above, it is assessed that the need for additional supported housing is 35 units at 2023 (assuming the Supported Housing Accommodation Programme (SHAP) funding bid is successful).

C2. People experiencing domestic abuse

Summary of evidence of need for specialist and supported housing

The specialist and supported housing need assessment identified that, in summary:

• experience of domestic abuse is the highest cause of homelessness in Gateshead
• based on the length of stay an additional 61-65 units of safe accommodation is required. This is to meet the need and demand in Gateshead and meet the statutory duty to provide safe accommodation for victim/survivors of domestic abuse, including for people from outside the borough
• although there is a substantial quantity of floating support available, and specialist domestic abuse support, the demand analysis found that there remains a shortfall of floating support of 20-35 units

The profile of service types required, which takes account of the assessed need for additional units (in addition to the existing refuge (6 units) and the 9 existing dispersed units), is:

• Supported Housing 18-25 - 6 units
• Refuge 25-55 24/7 - 8 units
• Dispersed accommodation - visiting support - 17 units
• Units for complex needs 24/7 - 12 units
• Dispersed units for over 55s - visiting support - 3 units
• Existing Refuge 24/7 - 6 units
• Existing dispersed accommodation - visiting support - 9 units

Delivery

From the table above, the proposed additional supported housing (in bold), excluding dispersed housing has been identified:

• supported housing 18 to 25
• refuge 25-55 24/7
• units for complex needs 24/7

It is assessed that 26 units of additional supported housing are required at 2023 to 2024 (excluding dispersed accommodation).

C3. Vulnerable young people

Summary of evidence of need for specialist and supported housing

The specialist and supported housing need assessment identified that, in summary:

There is an outstanding need for 76 bed spaces (plus taster flats - that is, units of accommodation that enable people to 'try out' living independently with support) per year across a range of settings, and 5 additional units funded by Children's Services for 16- to 17-year-old looked after children.

It is proposed that this need is reflected in a requirement for 81 bed spaces per year, split into a mix of high, medium and low settings for support:

• Short term or emergency provision 18 to 21 24/7 - 20 units
• Short term or emergency provision 18 to 21 24/7 - 8 units
• Supported housing 16/17s only 24/7 high level of need - 5 units
• Supported housing 16/17s only 24/7 non-intensive - 5 units
• Supported housing day cover - medium needs - 8 units
• Supported housing day cover - smaller setting - 5 units
• Dispersed accommodation with intensive visiting support - 30 units
• Total - 81 units

Delivery

Currently there are 43 units of supported housing within SAILS. A matching exercise will need to take place to match the existing properties to the requirements for supported housing.

From the list above, it is assessed that 38 units of additional supported housing are required (2023), if the dispersed accommodation units are included.

This supported accommodation will need to meet the needs of young unaccompanied asylum seekers. In addition, there is a need for:

• around 30 home adaptations per annum for children under 17 years with a disability
• additional children's home or residential care provision capacity of around 14 units required in Gateshead
• 16- to 18-year-olds who are looked after by the council for supported accommodation of around 3 to 5 units in Gateshead

Overall summary of actions (as part of the Homelessness and Rough Sleeping Strategy)

1. Review and remodel existing floating support services (both internal and commissioned) to match the levels of needs identified.
2. Review and remodel existing accommodation-based services (both internal and commissioned) to match the needs identified.
3. Consider introducing a Housing First model for those who have additional barriers to accessing accommodation/support, with wraparound support in independent housing.
4. Carry out a commissioning exercise to source the types of supported accommodation and support services required as a result of the needs analysis, in particular services for people with multiple complex needs including ex-offenders, young people and those experiencing domestic abuse.
5. Develop a pathway into commissioned accommodation and support services through a new Gateway to ensure that those most in need are targeted at appropriate services.
6. Develop service specifications for those services that are to be commissioned including Psychologically Information Environment (PIE) principles for those with complex needs to provide a trauma informed approach to support.
7. Develop a 'tenancy ready' framework for commissioned services to ensure that individuals remain in supported accommodation for right length of time with the right support to become tenancy ready.

Indicators of success

A greater proportion of homeless people with multiple disadvantage are placed in supported housing or are in receipt of support services.

An increase in the number of planned moves from supported housing to independent housing as a result of preparing individuals to become 'tenancy ready'.

The introduction of a new homelessness 'gateway' and associated pathway that matches needs with accommodation and support and results in positive outcomes.

D. To enable and provide a range of accessible and adapted homes of different tenures suited to the needs of people with physical disabilities and/or long-term conditions.

This is to ensure that there are sufficient homes for sale and for affordable rent that are adapted to accessibility standards M4(2) and M4(3) (for people who are wheelchair users), in line with the requirements in the council's Specialist and Supported Housing Supplementary Planning Document.

What is required?

Drawing on evidence of the perspectives and views of people with a physical disability, commissioner insights, and the perspectives of other stakeholders, including registered providers and other housing providers, there are the following requirements:

• the majority of people with a physical disability would typically prefer to live in adapted mainstream housing with any care/support they require rather than in supported housing. There is a need for additional accessible housing in Gateshead, including fully wheelchair accessible housing
• however, for some people, extra-care housing will be an attractive housing option
• people are seeking properties that are a 'home for life' and enable them to live there as long as possible
• some people with physical disabilities are seeking larger properties as they need space to store equipment and some people may need an extra bedroom for an overnight carer
• there is a need for additional bungalow accommodation to be developed as part of the mix of housing types on general needs housing development sites
• there is an ongoing need for housing adapted to both M4(2) and M4(3) standards. However, there needs to be careful matching of people in need for fully wheelchair adapted homes. This reflects the current approach of the council, which has an ongoing planning policy for 25% of homes on new housing developments over 15 dwellings to be built to M4(2) standards

Summary of evidence of need for accessible and adapted housing

The specialist and supported housing need assessment identified that, in summary, that there is an estimated net need for around 15 fully wheelchair-adapted homes required per year to 2035 for the all-age population and a need for around 25 accessible and adaptable homes required per year to 2035, for the all-age population. The table below summarises the need for accessible homes in Gateshead.

Estimated need for accessible homes to 2035 for the all-age population and the population aged 0-64.

Based on the tenure breakdown of the population in Gateshead, it may be expected that this need would be approximately around 58% for home ownership and around 42% for social or affordable rent.

Delivery

In summary, by 2035, it is estimated that there will be around 480 people with an unmet need for accessible housing, of which:

• it is estimated that around 180 require fully wheelchair adapted homes, that is, similar to Part M(4) Category 3, broadly equivalent to the Wheelchair Housing Design standard
• this is the equivalent of a need for around 15 fully-wheelchair-adapted homes required per year to 2035 for the all-age population
• among the working-age population, this is the equivalent of a need for around 6 fully wheelchair-adapted homes required per year to 2035
• it is estimated that around 300 people require accessible and adaptable homes (that is, not fully-wheelchair-adapted dwellings), similar to Part M(4) Category 2, broadly equivalent to the Lifetime Homes standard
• this is the equivalent of a need for around 25 accessible and adaptable homes required per year to 2035, for the all-age population
• for the working age population, this is the equivalent of a need for around 10 accessible and adaptable homes required per year to 2035

Summary of actions

1. The council will seek to deliver around 15 fully-wheelchair-adapted homes per year to 2035 for the all-age population.

2. The council will seek to deliver around 25 accessible and adaptable homes per year to 2035, for the all-age population.

3. The council will use the Specialist and Supported Housing SPD and 'Making Spaces for Growing Places (MSGP) Policy 10 Accessible and adaptable dwellings' to require housing developers to deliver 25% of homes on new housing developments over 15 dwellings to be built to M4(2) standards.

4. The council will use the Specialist and Supported Housing SPD and 'Making Spaces for Growing Places (MSGP) Policy 10 Accessible and adaptable dwellings' to encourage developers to deliver homes on new housing developments to be built to M4(3) standards, where there is evidence to support this.

Indicators of success

More people with physical disabilities or long-term conditions will have access to homes built to M4(2) standards.

More people with physical disabilities or long-term conditions who are wheelchair users will have access to homes built to M4(3) standards.

More people with physical disabilities or long-term conditions with care needs, both older people and working-age people, will have access to extra-care housing.

We are a proactive organisation, focused on enabling the right developments within the borough to meet need. We pride ourselves on being solution focused, supportive and engaging.

The council will adopt a range of approaches to the delivery of the specialist and supported accommodation that is required in supporting a well-managed supported housing sector.

The council will work in partnership with its local partners from NHS services, the Probation service, and local community and voluntary groups and organisations to implement this strategy to ensure that the supported housing that is commissioned and provided is effective in meeting the needs of local people.

The council will work with registered providers and other housing developers and providers, including through our Housing Provider forums, to develop specialist and supported housing to achieve the requirements of this strategy.

The council will:

•     seek to align both relevant capital and revenue budget planning as part of its Medium Term Financial Strategy

•     given constraints on financial resources, prioritise and communicate these priorities accordingly, and keep these under regular review

•     maximise funding and investment opportunities provided by Government, the NHS, and the Integrated Care Board

•     work with key partners such as the voluntary and community sector, registered providers, developers, and other stakeholders to maximise inward investment and secure value for money

•     maximise the use of technology (alongside staff support) to provide cost-effective supported housing services

The council is committed to working alongside people who need supported housing. The council will co-produce with a range of people with lived experience of its commissioning of supported housing services and the approach to managing the quality of supported housing, including challenging where service quality does not meet acceptable standards.

This strategy is part of a dialogue with these organisations and individuals that are interested in delivering specialist and supported housing.