Specialist and Supported Housing Needs Assessment

Gateshead Council undertook a Statutory Homelessness Review in 2021 and subsequently developed a Homelessness and Rough Sleeping strategy, which was approved in January 2022. It is part of the brief for this specialist and supported housing need assessment that it does not duplicate evidence, including evidence of need for supported housing, from the Homelessness Review 2021.

This specialist and supported housing need assessment has reviewed work commissioned by Gateshead Council from Campbell Tickell (outlined below) to identify the specialist and supported housing need requirements and to project these identified needs into the future, and to identify the supported housing needs of other cohorts who may be at risk of homelessness including people who are armed forces veterans or who are refugees/asylum seekers.

Gateshead Council has commissioned Campbell Tickell to complete an assessment of need for supported housing and housing related support services for people who are homeless or at risk of homelessness, and subsequent commissioning and procurement plans. Three 'clusters' of customer groups have been defined as being included in this need assessment:

• Vulnerable people subject to or fleeing domestic abuse (DA).
• Homelessness and multiple complex needs (for example, households having the following range of support needs recorded: Mental Health, Substance Misuse, Offending and/or Rough sleeping).
• Young People.

Work undertaken by consultancy Campbell Tickell in relation to the 'cohorts' above at risk of or recovering from homelessness has been reviewed and used as appropriate to identify need for specialist and supported housing. We have added evidence from qualitative work undertaken by the Housing LIN with a sample of people who have experienced homelessness and other local stakeholders in Gateshead.

As requested by the council, this section provides a summary of the identified specialist and supported housing needs, as appropriate, of these three cohorts.

Vulnerable people subject to or fleeing domestic abuse

A. Population baseline

1. The Commissioning and Procurement Plan for Domestic Abuse produced by Campbell Tickell states that, an analysis of demand has been carried out based on the H-CLIC data analysed by Gateshead, as well as other data. The H-CLIC data has been analysed over a two-year period.
2. Domestic abuse has been defined as those households whose main reason for homelessness or threat of homelessness is related to Domestic Abuse, where a homelessness duty is owned. On average there are 443 households annually whose main reason for homelessness or threat of homelessness is domestic abuse. There is a wider cohort who have a history of domestic abuse but whose main reason for homelessness or threat of homelessness is not domestic abuse - this cohort has been included in the other pathways.
3. The composition of these households is as follows:
   • 194 women with children
   • 187 women without children
   • 79 men with children
   • seven men without children

The Gateshead homelessness review report 2021 (opens new window) identified that across the four quarters, Gateshead had the highest proportion (22%) of households who were homeless due to domestic abuse when compared to England (12%), North East (14%), Darlington (14%), North Tyneside (12%) and South Tyneside (12%) as of July to September 2020. The level is consistently higher in Gateshead than the average in England and the North East. Similarly, the proportion of households owed a duty with support needs due to domestic abuse was also higher in Gateshead (21.2%) when compared to England (10.9%), North East (15.4%), Darlington (17%), North Tyneside (16.9%) and South Tyneside (12.7%) as of July to September 2020.

B. Current housing/accommodation status

The Commissioning and Procurement Plan for Domestic Abuse produced by Campbell Tickell states that the accommodation outcomes of DA households where a prevention intervention ended is as follows (based on 2020 to 2021 data):

• 64% council tenancy
• 14% in private sector
• 10% registered provider tenancy
• 3% supported housing or hostel
• 9% unknown

This means that the accommodation outcomes for prevention are likely to have resulted in most of these households remaining in their current accommodation, with some being placed in a supported housing/refuge accommodation.

The accommodation outcomes of DA households where a relief duty is brought to an end is as follows (based on 2020 to 2021):

• 71% local authority tenancy
• 8.6% private tenancy
• 2% housing association tenancy
• 13% supported housing or hostel
• 5.4% unknown

There is an existing commissioned DA refuge with six units. This refuge also has two non-commissioned units. There is a further nine units of dispersed accommodation for DA - which were part funded by the local authority using the 21/22 safe accommodation funding to be delivered within 2022 to 2023, as a temporary measure to increase capacity pending the council's review of accommodation and support, with no ongoing commitment.

Although other supported housing provision accepts individuals with a history of domestic abuse, the demand analysis is specifically focused on DA provision for those whose main reason for homelessness is DA.

There is a caseload capacity of 60 to 80 units within existing floating support services for those living in dispersed accommodation. The floating support service is able to effectively support survivors of domestic abuse. This is provided across three different teams currently, each with slightly different remits.

Gateshead also has two in-house Domestic Abuse Services, delivered by Children's Services and the Housing department. These provide direct support to victim-survivors, children, and perpetrators of domestic abuse. This service generally works with victims who are at high levels of risk but may take those at lower levels of risk such as where there are child protection concerns.

Gateshead also has a number of non-commissioned, charitable services such as Oasis Community Housing's Empower programme, which provides emotional support and counselling to survivors of domestic abuse. However, as this service is discretionary and non-commissioned (and may be withdrawn by the provider at any time dependent on funding) it has not been included within the proposals for accommodation/support services to meet a homelessness duty.

C. Assumptions about the need for different housing/supported accommodation types

The Commissioning and Procurement Plan for Domestic Abuse produced by Campbell Tickell states the demand analysis has been carried out on the basis that 80% of domestic abuse households will either remain in their existing tenancy or be placed directly into a tenancy if they are homeless, with some needing floating support, and 20% requiring supported housing/refuge accommodation.

The Commissioning and Procurement Plan for Domestic Abuse produced by Campbell Tickell states the demand analysis found that there is a significant undersupply of suitable safe accommodation for this cohort. About 66 households need to be placed in safe accommodation annually and, taking into account existing 31 placements, there is shortfall of 38 placements each year. Allowing for turnover based on length of stay 61 to 65 units of safe accommodation are required.

D. Evidence from vulnerable people subject to or fleeing domestic abuse and local stakeholders

The Housing LIN has undertaken qualitative research with people subject to or fleeing domestic abuse and with organisations that support them in other regions which indicates that:

• While refuge services are an essential part of the response to domestic abuse for many victims/survivors who are in crisis and need a place of safety, it should be offered amongst the other options available including temporary accommodation.
• A range of housing choices are needed; for some this might be single occupancy units whereas others might require shared supported accommodation.
• Support to remain at home safely and safe self contained 'dispersed' properties (rather than 'refuge' provision) where this is not possible is desirable. This is consistent with the policy direction for perpetrators to be moved rather than victim/survivors.
• There is a need to increase tenancy sustainment options so that people experiencing domestic abuse can remain safely in their home when it is their choice.
• There is a need to increase supply of genuinely affordable accommodation and move on options from refuge services, supported accommodation and any other type of temporary accommodation.

E. Identifying estimated future housing and accommodation need for vulnerable people subject to or fleeing domestic abuse

The Commissioning and Procurement Plan for Domestic Abuse produced by Campbell Tickell identifies:

• Allowing for turnover based on the length of stay an additional 61 to 65 units of safe accommodation is required.
• 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 20 to 35 units.

Campbell Tickell completed an exercise to identify the profile of service types required which takes account of the assessed need for additional units (in addition to the existing refuge (six units) and the nine existing dispersed units). This is summarised in the table below.

Table 31. Profile of service types required for people subject to or escaping domestic abuse, by number of units and length of stay. (Campbell Tickell)

From table 31 the proposed additional supported housing, excluding dispersed housing (Housing LIN bold highlight), has been identified:

• supported housing 18 to 25
• refuge 25 to 55 24/7
• single property for complex needs 24/7

Based on analysis of Campbell Tickell's proposals, it is assessed that 26 units of additional supported housing are required as at 2023 (excluding dispersed accommodation).

Homelessness and multiple complex needs and Rough Sleeper Initiative

1. Multiple and complex needs (MCN) is defined as a households having 3 or more support needs recorded out of Mental Health, Substance Misuse, Domestic Abuse, Offending or Rough sleeping.
2. Population baseline
   1. The Commissioning and Procurement Plan for Homelessness and multiple complex needs and rough sleepers produced by Campbell Tickell states that an analysis of demand has been carried out based on the H-CLIC data analysed by Gateshead, as well as other data. The H-CLIC data has been analysed over a two year period.
   2. On average there are 198 households annually with multiple and complex needs, who are homeless or threatened with homelessness
   3. The total number of households with MCN has been reduced for this pathway, to take account of the fact that some needs will be met by other pathways. 41 households with MCN whose main reason for homelessness or threat of homelessness is DA will have their needs taken into account by the DA pathway. 21 households with MCN who aged under 25 will have their needs taken into account by the YP pathway. This results in a net figure of 136 people with MCN.
   4. There is a wider cohort of households who have 3+ support needs recorded, but do not meet the criteria for multiple and complex needs. There are on average 156 households who comprise this cohort and they have been included within the homeless and multiple and complex needs accommodation pathway. This particular cohort does overlap to some extent with the needs identified for the other pathways.
   5. The composition of the households with MCN is as follows:
      • 66% male without children
      • 29% female without children
      • less than 1% female with children
      • 3% couple without children
      • less than 1% male with children
3. Support profile and current housing/accommodation status
   1. The accommodation at the time of application for cases of MCN where a duty was as follows (based on the top three):
      • 15% council tenancy
      • 16% homeless on departure from an institution: custody
      • 17% No Fixed Abode (mainly 'sofa surfing')
   2. A number of people were recorded as rough sleeping. It is estimated that there are about 49 people p.a. who are either rough sleeping or at risk of rough sleeping (for example, homeless on departure from custody or NFA). In addition to the 49 with MCN who approached Housing Solutions and who are either rough sleeping or at risk of rough sleeping, there is a cohort who directly approach rough sleeper services. It is estimated that approximately 78 direct referrals p.a. are accepted by the rough sleepers 58:7 assessment (six units for males) based on the level of referrals during the first four months of the service.
   3. The support needs of cases where a households with MCN were owed a duty was a follows:
      • 83% history of mental health
      • 82% substance misuse needs
      • 41% history of domestic abuse
      • 77% offending needs
      • 55% rough sleeper needs
   4. Although some households were prevented from losing their council tenancies, or were allocated a council tenancy through a relief duty, the vast majority of housing outcomes resulted in temporary accommodation, including supported housing.
   5. Currently there are 84 units existing commissioned supported housing units and about 95 non-commissioned units, many of which are located in the same properties as the commissioned units. In addition there is specific accommodation for rough sleepers funded in Gateshead - there are 4 units of RSAP dispersed properties through Tyne Housing and 15 units of NSAP dispersed properties provided as an inhouse service.
   6. There are currently six RSI funded direct access beds (four for Gateshead and two for South Tyneside) and 10 RSI funded supported accommodation beds based on Housing First principles (four for Gateshead and two for South Tyneside).
4. Assumptions about the need for different housing/supported accommodation types
   1. The demand analysis found that a combination of Housing First, 24/7 supported housing; semi-independent supported housing and dispersed supported housing will be required to meet the needs of households with MCN. Those households with 3+ support needs (but who do not have MCN) will also require access to supported housing, although they will have other housing options including the DA and YP pathways.
5. Evidence from people at risk of homelessness with multiple complex needs and local stakeholders
   1. The Housing LIN has undertaken qualitative research with people at risk of homelessness with multiple complex needs and with organisations that support them in other regions and with a sample of organisations in Gateshead which indicates that:
      • There is a need for an increased range of housing options for people with multiple complex needs.
      • The majority of people are seeking self-contained accommodation with support.
      • There needs to be a clear 'housing pathway' for this cohort with access to a range of housing options from 24/7 supported housing, semi-independent supported housing, mainstream independent housing with floating support and Housing First for people with the most complex support needs.
6. Identifying estimated future housing and accommodation need for homelessness with multiple complex needs/rough sleepers
   1. Altogether 20 units of Housing First and 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.
   2. Access to the existing 82 units of Temporary Accommodation (TA) is not included as part of this pathway, although those with MCN could be diverted from needing to access TA or bed and breakfast accommodation.
   3. Campbell Tickell also completed an exercise to identify 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. This is summarised in the table below.

Table 32. Profile of the service types required, by units and length of stay, for homeless people/people with multiple or complex needs/rough sleepers. (Campbell Tickell)

1. There are 80 units of supported housing units currently commissioned for homelessness in 9 properties. Some of the properties have a combination of commissioned and non-commissioned units.
2. The table below shows that the commissioning exercise will result in 90 units of commissioned supported housing, plus another 25 units if the SHAP bid is successful.
3. Based on analysis of Campbell Tickell's proposals, it is assessed that the need for additional supported housing is 35 units at 2023 (assuming the SHAP funding bis is successful).

Young People

1. Young People at risk of homelessness are defined as a person aged 16 to 25 with support needs which mean they are at risk of homelessness.
2. Population baseline
   1. The Commissioning and Procurement Plan for Young People with Support Needs produced by Campbell Tickell states that an analysis of demand has been carried out based on the H-CLIC data for Gateshead, as well as other data. The H-CLIC data has been analysed over a two-year period.
   2. 783 young people (16 to 25 years) were assessed as being owed a duty over this two year period. The support needs of those who were owed a duty were as follows:
      • 34% with mental health support needs
      • 10 to 20% with offending needs
      • 20% with substance misuse needs
      • 10 to 20% with leaving care needs
      • 8% with multiple and complex needs
3. Current housing/accommodation status
   1. There are 43 units existing commissioned supported housing units under the Social and Independent Living (SAILS) programme and a further 25 units delivered by Oasis Aquila, 68 units in total.
   2. There are also 30 'taster flats' provided by Gateshead Council.
   3. Campbell Tickell assume that there are therefore 98 units of accommodation available for young people who are homeless.
4. Assumptions about the need for different housing/supported accommodation types
   1. The Campbell Tickell Commissioning and Procurement Plan assumes that some of the needs listed at 6.47 are overlapping, and there is a 75/25 split between low and medium needs, and high needs young people. It is assumed that low and medium needs young people will require a shorter stay in assessment provision before moving on to either the taster flats or private rented accommodation. It is assumed that high needs young people will require up to 14 months' stay in higher needs accommodation.
   2. In discussion with commissioners, greater flexibility is required in how existing and new services are used in order to more flexibly meet the changing needs of young people coming through the pathway (such as an increase in unaccompanied asylum-seeking children, who may require significant initial support but whose support needs after this initial period are likely to decrease) and fluctuating support for young people with medium needs.
   3. Floating support is subject to a separate review and not included in the Campbell Tickell Commissioning and Procurement Plan. It is anticipated that some shortfalls in accommodation supply may be able to be mitigated by the use of floating support into additional dispersed accommodation.
5. Evidence from young people at risk of homelessness and local stakeholders
   1. The Housing LIN has conducted light-touch engagement with council officers and providers of supported accommodation for young people in Gateshead. The following were the key findings:
      • There is a need for 24/7 supported housing for young people aged 17, 18, 19 with complex needs to live more independently.
      • There is an urgent need to provide better access to move-on accommodation (taster one-bed flats) for young people with floating support. At present people are staying in supported housing/residential care for longer than they need to.
      • There is scope to expand the Shared Lives offer for young people.
      • There are a number of good staying put foster arrangements that work really well for young people and have seen them move into their own accommodation and education/employment.
      • Young people are seeking to live in locations that are close to the city centre so they can be close to amenities, educational facilities, shops and public transport.
6. Identifying estimated future housing and accommodation need for young people at risk of homelessness
   1. The Campbell Tickell Commissioning and Procurement Plan assumes that around 50% of young people will have low to medium needs (for example, one or more support needs, which can be met in supported housing with staff on site daily and with on call support overnight, but not requiring 24 hour cover). Around 50% will likely have higher or multiple needs and require staff on site 24 hours per day. This could be provided in a wide range of settings which meet young people's varied needs.
   2. Campbell Tickell have assumed a nine month length of stay for over 18s with low to medium needs, and an 18 month length of stay for those with higher needs.
   3. Campbell Tickell's assessment is that there is an outstanding need for 76 bedspaces (plus taster flats) per year across a range of settings, and five additional units funded by Children's Services for 16/17-year-old looked after children
   4. It is proposed that this need is reflected in a requirement for 81 bedspaces per year, split into a mix of high, medium and low settings for support. This is summarised in the table below.

Table 33. Need for supported accommodation for young people at risk of homelessness. (Campbell Tickell)

1. Currently there are 43 units of supported housing within SAILS. Campbell Tickell's note that a matching exercise will need to take place to match the existing properties to the requirements for supported housing.
2. Based on analysis of Campbell Tickell's proposals, it is assessed that the need for supported housing is 38 units of additional supported housing are required (2023), if the dispersed accommodation units are included.
3. Campbell Tickell identify that this supported accommodation will need to meet the needs of young unaccompanied asylum seekers. Evidence from Children's Services suggests that approximately 30 young asylum seekers per annum from 2023 to 2024 may need to be accommodated in supported housing.