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Indicator 21: Social Concern

Number of homeless households entitled to permanent accommodation

Source: Scottish Executive Development Department Analytical Services Division (Housing Statistics).

Notes: Prior to 2002, the figures given are estimates based on information from the authorities' individual case returns. Local authorities generally provided case returns for around 92% of the applications they received. The information from the case returns is grossed up to the total number of applications as recorded on the authorities' quarterly summary returns. Since the resulting figures are estimates the numbers are rounded to the nearest hundred. The applications figures quoted will include households which have applied more than once to the authority, and the number of repeat applications prior to 2002 is unknown. In December 2001, the Scottish Executive changed the data collection system for the case-based HL1 return to provide more detailed information on applications by individual households and to allow more timely reporting. This entailed changing to an electronic data capture system which allows cases to be registered and updated on a continuous basis, as well as enabling applications made by the same household to be linked. Figures which have been revised for this issue are shown in italic type.

The relevance of the indicator

Part of sustainable development is having regard for others who do not have access to the same level of resources. We are committed to tackling homelessness.

Choice of indicator

The figures shown relate to the number of applicant homeless households entitled to permanent accommodation, rather than homeless people.

Detailed definition and source details

The Housing (Homeless Persons) Act 1977, now consolidated into Part II of the Housing (Scotland) Act 1987 as amended by the Housing (Scotland) Act 2001, introduced statutory duties on housing authorities to assist those who are homeless or potentially homeless ( i.e. threatened with homelessness), including providing accommodation in certain circumstances. Only unintentionally homeless households that are in 'priority need' ¹ are entitled to permanent accommodation.

The legislation requires local authorities to make inquiries into the circumstances of applicants in order to satisfy themselves whether the applicant is homeless or potentially homeless. Section 24 of the Housing (Scotland) Act 1987 defines homelessness for the purposes of the Act as follows: A person is homeless if he/she has no accommodation in the United Kingdom or elsewhere. A person is also homeless if he/she has accommodation but cannot occupy it, for example because of a threat of violence. A person is potentially homeless ( i.e. threatened with homelessness) if it is likely that he/she will become homeless within 2 months.

Trends

The Homelessness etc (Scotland) Act 2003 requires that Scottish Ministers make a statement, by 31 December 2005, which sets out the measures to be taken to ensure that the priority need distinction is abolished by 2012, and that therefore all unintentionally homeless households are entitled to permanent accommodation at that time. The percentage of applicant households assessed as being unintentionally homeless and in priority need (and therefore entitled to permanent accommodation), has risen from 64% in 1990/91 to 71% in 2003/04. Over the same timescale the number of households assessed as homeless (excluding potentially homeless) has risen by 125% (from 15,400 to 34,581). In recent years the increases in levels of applications have primarily been due to the increase in the numbers of single-person households applying, with little or no variation in applications from other household types. This has coincided with the implementation of the homelessness provisions of the Housing (Scotland) Act 2001 which ensured that all homeless people are entitled to a minimum of temporary accommodation, advice and assistance. Previously many single homeless people had no entitlement to accommodation.

Further disaggregation

Full local authority breakdowns by assessment decision and action for 2003/04 can be found in the Homelessness Statistical Bulletin ( HSG/2004/5) published in September 2004 ².

The next chart and table show the number of households with dependent children who are assessed as homeless and the number of such households who are entitled to permanent accommodation - the difference being mainly homeless households with dependent children deemed to be intentionally homeless. In each year since 1990/91, over 85% of households with dependent children who are assessed to be homeless have been entitled to permanent accommodation rising to 95% in 2003/04.

Households with children assessed as homeless

Source: Scottish Executive Development Department Analytical Services Division (Housing Statistics).

Note: Figures which have been revised for this issue are shown in italic type.

Target

By 2012, local authorities will be required to find permanent accommodation for all households assessed as being homeless. This will be achieved in stages through the gradual expansion of the definition of priority need to the extent that, by the target date, the definition embraces everyone who is assessed as homeless. Where the right to permanent accommodation has been suspended because of a finding of intentionality, the local authority will have a duty to provide temporary accommodation. The definition of priority need will be expanded progressively as increased services and accommodation are provided. The precise timing of the progressive expansion will be decided in the light of progress, made on an assessment of local authorities' homelessness strategies and local housing strategies. The Homelessness Monitoring Group will advise Ministers on the timetable for expansion within the target of full expansion by 2012.

Action

We are tackling homelessness in a number of ways, including:

• Delivery of the recommendations of the First Report of the Homelessness Task Force³ through Part I of the Housing (Scotland) Act 2001 which expanded the rights of homeless people and increased the duties on local authorities. In particular local authorities are now required to make assessments of homelessness and establish strategies for preventing and alleviating homelessness in their area. Since September 2002 everyone assessed as homeless has had the right, as a minimum, to temporary accommodation, advice and assistance.

• Acceptance of the 59 recommendations of the Final Report of the Homelessness Task Force³, including both legislation proposals and a wide range of administrative and good practice recommendations to prevent and alleviate homelessness. A Homelessness Monitoring Group as been established to monitor the delivery of the Report.

• Legislative recommendations from the Task Force Report have been taken forward in the Homelessness etc. (Scotland) Act 2003, which affects the initial expansion of priority need; with a target date of 2012 for its eventual abolition; changes the current duty on local authorities to investigate intentionality to a power to do so; and ensures a continuing duty by local authorities for the provision of accommodation and support to households found to be intentionally homeless.

Footnotes

1 A household is regarded as having a priority need for accommodation if: a) it contains dependent children,

b) a member of the household is pregnant, c) a member of the household is vulnerable because of: old age, physical disability, mental illness or handicap, or other special reasons (as set out in the Code of Guidance on Homelessness), d) a young person under 21 is looked after by a local authority at school leaving age or later (formerly "in care"), e) the household is homeless in an emergency (e.g. because of fire or flood) (Housing (Scotland) Act 1987, Section 25).

2 Available on the Scottish Executive website at: www.scotland.gov.uk/stats/bulletins/00363-00.asp

3 Available on the Scottish Executive website at: www.scotland.gov.uk/homelessness/reports.asp

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