Evaluation of Tenancy Sustainment Teams

Transcription

1 Evaluation of Tenancy Sustainment Teams

2 Evaluation of Tenancy Sustainment Teams Delia Lomax and Gina Netto School of the Built Environment, Heriot-Watt University January 2007 Department for Communities and Local Government: London

3 Acknowledgements The research team would like to thank those who contributed to the evaluation from: The Clearing House, Homeless Link, Homelessness and Housing Support Directorate Tenancy Sustainment Team Managers and Staff from: Thames Reach Bondway Mosaic Homes Look Ahead Housing and Care Ltd St Mungo s Youth Specialist Tenancy Sustainment Team Hyde Housing Association Family Housing London and Quadrant Housing Association Toynbee Housing Association Particular thanks to the participants in the focus group meetings, tenants who use TST services, for engaging with this study with enthusiasm and generosity. We hope that you find your support for the work of the TSTs, your reflective and constructive comments, appropriately reflected in this report. Department for Communities and Local Government Eland House Bressenden Place London SW1E 5DU Telephone: Website: Crown Copyright, 2007 Copyright in the typographical arrangement rests with the Crown. This publication, excluding logos, may be reproduced free of charge in any format or medium for research, private study or for internal circulation within an organisation. This is subject to it being reproduced accurately and not used in a misleading context. The material must be acknowledged as Crown copyright and the title of the publication specified. Any other use of the contents of this publication would require a copyright licence. Please apply for a Click-Use Licence for core material at or by writing to the Office of Public Sector Information, Information Policy Team, St Clements House, 2-16 Colegate, Norwich, NR3 1BQ. Fax: or HMSOlicensing@cabinet-office.x.gsi.gov.uk If you require this document in alternative formats please alternativeformats@communities.gsi.gov.uk Communities and Local Government Publications PO Box 236 Wetherby West Yorkshire LS23 7NB Tel: Fax: Textphone: communities@twoten.com or online via the website: Printed in the UK on material containing no less than 75% post-consumer waste. January 2007 Product Code: 06 ASD 04026/a

4 CONTENTS RESEARCH SUMMARY 5 CHAPTER 1 11 Introduction CHAPTER 2 15 The evaluation CHAPTER 3 23 Strategic aims and management of TSTs CHAPTER 4 27 Tenancy support CHAPTER 5 40 Monitoring TST effectiveness CHAPTER 6 45 Working with partner agencies CHAPTER 7 50 Elements of good practice and recommendations for future development REFERENCES 55 APPENDIX 1 56 Research methods APPENDIX 2 60 The case study TSTs

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6 RESEARCH SUMMARY Introduction Tenancy Sustainment Teams (TSTs) were set up by the former Department of the Environment, Transport and the Regions (DETR) in 2000 to provide resettlement and continuing support to former rough sleepers living in accommodation funded by the Rough Sleepers Unit (RSU; formerly the Rough Sleepers Initiative, RSI). Tenancy Sustainment Teams were intended to contribute to the overall aim of the RSU to reduce rough sleeping through the prevention of tenancy breakdown amongst former rough sleepers rehoused in RSU designated housing. The Office of the Deputy Prime Minister (ODPM, now Communities and Local Government) commissioned the School of the Built Environment, Heriot-Watt University, to undertake an evaluation of TSTs in the summer of The main aim of the evaluation was to assess the effectiveness of Tenancy Sustainment Teams in meeting aims and objectives set by ODPM. Key findings TSTs perform well on government tenancy sustainment targets. The number of abandonments and evictions from RSI properties has fallen since the introduction of TSTs in There is evidence of shared understanding, aims and objectives across TSTs and amongst RSI landlords and tenants. TST parent organisations all have involvement in providing services to this client group, which enables the sharing of good practice in service delivery, and facilitates staff training, staff support and management. Tenancy support is provided flexibly according to tenants needs and according to agreed protocols and procedures, such as support planning and goal setting. Both practical and emotional support is provided. Support becomes dormant once agreed goals are met, although there is provision for support to be re-activated if needed. Tenants were generally very positive about the support they received. Most service users said they were able to contact support workers easily. Specialist support to deal with substance abuse, mental health problems and gaining meaningful occupation was valued, but some service users said that it could be hard to access. 5

7 Evaluation of Tenancy Sustainment Teams Participants had mixed views about their accommodation. Some felt there was insufficient choice of area and a lack of options for move on or exchange. More should be done to involve tenants in service planning and development. Where there is information on levels of meaningful occupation for tenants, this shows effective performance, although reporting is often inconsistent. TSTs are involved in extensive partnership working with other agencies, and make considerable effort to develop and maintain such relationships. Much has been done to build and maintain effective working relationships with RSLs. This is regarded as crucial to the effectiveness of the TSTs, although the experience of TSTs in working with RSLs remains variable. TSTs work closely with local agencies, such as health services. This work is mainly in relation to particular clients, rather than at a strategic level. There is evidence that some RSI flats and tenants are targeted by drug dealers. Liaison between the police and RSLs has improved in order to tackle this, but there can be difficulties regarding their respective roles. Specialist support workers share good practice with other agencies and other TSTs, but there is no evidence that generic support workers do. About this research The study was carried out in two stages. The first involved the development of an evaluative framework based on a literature review, interviews with key informants (including the Homelessness and Housing Support Directorate (ODPM, now Communities and Local Government), Homeless Link and the Clearing House), and the selection of case study TSTs. The second stage comprised detailed case study work in three of the seven area-based teams operating in London. This included interviews with staff from case study TSTs, the Youth Specialist TST (YSTST) and key partners, in particular Rough Sleepers Initiative (RSI) accommodation landlords. Focus groups with service users for each of the case study TSTs were also organised. Information was supplemented by the collection and analysis of relevant documentary and statistical information, including that provided by the Clearing House, case study TSTs, and accommodation providers. Strategic aims and management of TSTs TSTs were established in 2000 to provide resettlement and continuing support to former rough sleepers living in accommodation funded by the Rough Sleepers Unit (RSU). Although a main aim was to help former rough sleepers sustain their tenancies, the other identified element within the tenancy sustainment function involves promoting meaningful occupation i.e. volunteering, training, employment and planned leisure. 6

8 Research summary There is evidence of shared understanding, aims and objectives across TSTs about tenancy sustainment. Landlords of RSI accommodation have a good understanding of these aims, as do tenants. However, the research team encountered difficulties in identifying appropriate local authority contacts to interview for this study, suggesting that Housing and Social Services Departments in the London Boroughs were not generally well-informed about TSTs and their work. In general TSTs appear to be well-integrated with their parent organisations, all of which have had previous involvement with this client group, through the provision of a range of services and projects, such as hostels, Contact and Assessment Teams, Pre-tenancy Teams, Floating Support Teams and, for two of the agencies, as landlords for RSI tenancies. This strong fit enables the sharing of good practice in delivering services, and in staff training, staff support and management. This is supplemented by expertise from specialist agencies for tenant and staff support, which is brought in by TSTs when required. Providing support to tenants Under the TST regime support is provided from the outset, with formal protocols, procedures, guidance and standard forms, developed for assessing support needs and risk, drawing up support plans and setting goals. Support is provided flexibly according to the needs of the individual, varying for example in the regularity of contact or visits, and involvement of generic and/or specialist staff, and is based on support or action plans jointly agreed with tenants. A range of support is provided, including financial, practical and emotional support. Whilst short term support may involve help with benefits, rent arrears and debt, longer-term support might also focus on quality of life, such as improving self esteem and confidence, improving health through harm reduction, and providing opportunities for training, work and leisure, and for developing social networks. Once tenants have reached identified goals, support services may become dormant, apart from an annual review or contact with a tenant to assess if support needs to be reinstated. It is common practice across all services for support to be quickly reactivated at times of crisis, when intervention is required to avoid loss of tenancy or to assist with other problems. Focus group participants were, generally, very appreciative of the support provided by TSTs. Most service users said it was easy to reach their support workers, although some had at times encountered difficulties in doing so. There was a perception that some of this was due to heavy staff workloads and an absence of adequate holiday cover. Particular comment was made about the amount of time that generic support staff had to spend resolving Housing Benefit problems. 7

9 Evaluation of Tenancy Sustainment Teams Focus group participants testified to improvements in their own confidence, ability to manage their tenancies, and to deal with other problems. Specialist support was valued, but some focus group participants indicated it was sometimes hard to access. Again, there was a perception that this was due to staff workloads and, at times, due to a gate-keeping role by generic support staff. Some male service users in particular said they sometimes found it difficult to ask for help, particularly those from middle-aged groups, who felt that they were expected by society in general to manage their difficulties and cope better than younger or older people. There were a number of concerns about a lack of housing opportunity, such as the initial lack of choice of RSI accommodation and area, and difficulty in moving on from RSI housing. Some service users also expressed concern about finding employment, which some perceived to be related to the stigma of being a former rough sleeper. In a few cases, these concerns also related to access to sufficient, specialist, employment-related services. TSTs try to involve tenants with support services by a variety of means. In addition to contact by letter, visits and newsletters, various activities and opportunities for involvement are organised. Questionnaires and customer satisfaction surveys had been used to obtain feedback from service users. Focus group meetings had also been tried, but participation had not always been good. One TST had set up a women s group and a black and ethnic minority forum. Monitoring performance TSTs generally achieve or out-perform government targets on tenancy sustainment. Evidence from Clearing House data also indicates a good record from TSTs on managing abandonment and evictions. Reporting on government targets on engagement with meaningful occupation was not carried out consistently across the TSTs, with some reporting case study, rather than quantitative information. However, TSTs mainly appear to meet targets for tenant engagement in meaningful occupation, and the one team reporting quantitatively on the targets had performed well. TSTs have developed mechanisms for internal performance assessment and their own databases to collate tenant information covering a wide range of indicators. Some managers are keen to develop systems to measure softer outcomes and longitudinal changes. These are resources that could be further analysed to provide more detailed information on the effectiveness of the TSTs, although this was outside the scope of this evaluation. Working with partner agencies At the point of referral to the TST, the relationship between TSTs and Contact and Assessment Teams (CATs) and with Pre-tenancy Teams (PTTs) generally works well. Improved joint working has been facilitated by protocols and standard forms which have been developed with the Clearing House. Although 8

10 Research summary a few concerns were raised about support needs assessments, procedures were subject to ongoing improvement and monitoring through the Clearing House. A lot of work has been done to build working relationships between TSTs and RSLs, which was identified as a key aim of TSTs in the first two years after their set up. It was felt that these relationships are very important in ensuring the effectiveness of TSTs, whose work can otherwise be undermined. The experience of TSTs in working with RSLs is variable. There is some evidence of good work in setting up Service Level Agreements and better communication, which made services more effective and broke down barriers between agencies by defining their respective roles and responsibilities. Other RSLs appeared to lack understanding of the needs of tenants in RSI properties. Many service users reported that there were problems in getting repairs done. They felt this was partly due to support workers not being persistent enough with landlords, and that they sometimes lacked power in their relationship with the RSL when advocating on behalf of tenants. Service users sometimes felt that TSTs should be empowered to deal more effectively with RSLs. Housing officers appreciate the support provided by TST staff in helping them with housing management issues such as rent arrears and anti-social behaviour. Other factors which increase the effectiveness of tenancy sustainment from the perspective of RSLs are high quality information at the referral point, and access to specialist and crisis intervention workers. There is evidence of some RSI flats and tenants being targeted by drug dealers, which can increase the vulnerability of tenants being exploited, and put their tenancies at risk. There was evidence of better liaison between Police and RSLs to help deal with this, but there appeared to be some issues around clarifying the appropriate division of roles in dealing with this problem. Contact with local authorities in relation to TSTs appears to be mainly instigated by referral of clients by support workers for specific support, for example in relation to social work services. Consequently, at a strategic level, local authorities are not generally well aware of the work of TSTs. Liaison between TSTs and other partner agencies, such as health services and the police appears to be more at an individual level, in relation to the needs of particular clients, rather than at the organisational level. There is evidence of a great deal of networking with local agencies and projects. Meaningful occupation workers across TSTs share good practice through regular meetings organized with similar workers across a range of agencies. There is no evidence that generic support workers do, although some thought this might be helpful. Other specialist workers use a range of mechanisms and contacts for updating and sharing good practice with a range of agencies, but not necessarily with other TSTs. Support workers indicated an interest in opportunities to share ideas and good practice in this way. 9

11 Evaluation of Tenancy Sustainment Teams Conclusions The findings from this evaluation provide evidence of services that are successful in meeting the aims and targets relating to tenancy sustainment, and strongly indicate that these services are highly valued by key partner agencies and service users. Most participants in agency and focus group interviews presented very positive views of the role of TSTs in reducing abandonment and eviction, and supporting people in the longer term to manage difficult problems and become more independent. On occasion, critical points about specific situations were made. Some focus group participants raised concerns about access to specialist support, the need for more support in finding employment, and the extent to which TST staff could act more effectively to advocate on their behalf with RSL housing management. Key recommendations Key recommendations emerging from the study include the need for TSTs to: Further encourage the participation and involvement of service users Continue to work with RSLs to increase understanding of their aims and objectives and how their work can support RSLs in maintaining tenancies Develop a more systematic and consistent approach towards reporting and supporting meaningful occupation Provide opportunities for sharing information and good practice, in particular with other TSTs Develop better monitoring mechanisms, including qualitative indicators and those which would support longitudinal analysis of the support needs and profile of rough sleepers Work with local authorities at the strategic level to ensure that the special skills and good practice of TSTs is more widely known and understood. Additionally, there is a need for: RSI Landlords and the Clearing House to consider a choice-based approach to the allocation of RSI accommodation and to open up opportunities for transfers and exchanges for RSI tenants, in conjunction with RSI support teams (CATs, PTTS and TSTs). Communities and Local Government and TST managing organisations to continue to monitor levels of funding for TSTs to ensure that there are adequate staff resources to support and further develop tenancy sustainment services. Dedicated funding for TST services should be maintained. 10

12 CHAPTER 1 Introduction Introduction 1.1. Tenancy Sustainment Teams (TSTs) were set up by the former Department of the Environment, Transport and the Regions (DETR) in 2000 to provide resettlement and continuing support to former rough sleepers living in accommodation funded by the Rough Sleepers Unit (RSU). Previous research (Randall and Brown, 2002) evaluated the work of the RSU, including that of Contact and Assessment Teams (CATs), hostels, day centres and pre-tenancy work The Office of the Deputy Prime Minister (ODPM, now Communities and Local Government) commissioned the School of the Built Environment, Heriot-Watt University, to undertake an evaluation of TSTs in the summer of This report presents the findings. Tenancy Sustainment Teams 1.3. Tenancy Sustainment Teams were planned to contribute to the RSU overall aim of reducing rough sleeping through the prevention of tenancy breakdown for former rough sleepers who had been rehoused in RSU designated housing To qualify for such accommodation, referrals of rough sleepers have to meet specific criteria. They have to: be currently sleeping on the streets of London; or have a clear history of sleeping rough on the streets of London 1.5. Referrals must also be non-priority homeless households TSTs provide a rationalised provision of support to tenants of RSI accommodation, based on geographic area, and have been directly funded by central government since Previously, support to RSI tenants had been undertaken by a range of service providers, and funded by Supported Housing Management Grant (SHMG). Some of these support providers opted out of the TST scheme but continue to provide the same service with Supporting People funding. 11

13 Evaluation of Tenancy Sustainment Teams AREA DISTRIBUTION AND MANAGEMENT OF TENANCY SUSTAINMENT TEAMS 1.7. Six area-based TSTs were set up to cover all London boroughs with RSU funded permanent accommodation: North: Hackney, Islington, Barnet, Enfield and Haringey; North West: Westminster, Brent and Camden; East: City, Tower Hamlets, Newham and Waltham Forest; South: Lambeth, Wandsworth, Merton and Croydon; South East: Southwark, Lewisham, Greenwich, Bexley and Bromley; West: Ealing, Hounslow, Hillingdon, Kensington & Chelsea and Hammersmith & Fulham At the time of this research, four agencies managed the six TSTs: Thames Reach Bondway (South and South East); Look Ahead Housing and Care (West and East), St Mungo s (North West) and Mosaic Homes (North) 1. A Youth Specialist Tenancy Support Team (YSTST) was also set up to focus on young RSI tenants. This team, managed by The Connection at St. Martins, provides a core support team and specialist youth support workers seconded to area TSTs. Thames Reach Bondway has since reorganised its TST operation into three areas (South, South East and South West), bringing the number of TSTs to eight at the time of this research. Aims and objectives of Tenancy Sustainment Teams 1.9. The aims of the TST initiative are two-fold. Firstly, the service is intended to provide a consistent and improved quality of support service to RSI tenants with the overarching aim of tenancy sustainment. A particular aim was to promote planned moves in place of abandonments or evictions (potentially resulting in repeat homelessness) A further aim of the TSTs was to: ensure that former rough sleepers, who have moved in to RSU funded permanent accommodation, are helped to sustain their tenancies through meaningful occupation, as well [as] through more traditional life skills training and resettlement. (DETR/RSU, 1999a, Annex D, p36) TSTs were established in line with a drive towards a more assertive and proactive approach towards supporting former rough sleepers. To meet the specific needs of this client group, TST staff included generic support workers 1 Formerly known as New Islington and Hackney Housing Association 12

14 Introduction as well as others with specialist skills: meaningful occupation workers, specialists in substance misuse, mental health problems, and support for young people. In addition, supplementary specialist services were also made available to TSTs, either through secondment or purchasing specific provision The key areas of support provision proposed by the RSU strategy documents (DETR/RSU, 1999; 1999a) were to: Provide tenants with resettlement support in their new homes after the handover from hostels, CATs and pre-tenancy teams (PTTs) Provide generic support to help tenants manage their tenancies and assist them with gaining skills for independent living; Help tenants to access specialist support where needed, to reduce dependency on drugs and alcohol, to manage mental health problems and to provide specific support for young people; and to Help tenants to engage in meaningful occupation to reduce potential isolation and boredom, and to establish social and community networks. Meaningful occupation is defined as including volunteering, training, education and employment, as well as social or leisure activities. Research methods This evaluation was conducted over the summer of Its main aim was to assess the effectiveness of Tenancy Sustainment Teams in meeting the aims and objectives set by ODPM. The first stage of this study entailed: Literature review: of previous research and documents relating to the RSI, and the work of TSTs. Key informant interviews: with representatives from the three key agencies within the RSI/TST framework: the Homelessness and Housing Support Directorate, Homeless Link, and the Clearing House (Broadway). Development of evaluation framework and selection of case study TSTs: The development of the evaluative framework was informed by the literature review and key informant interviews, including the performance indicators set by central government for the TSTs. This is presented in Chapter The second stage comprised detailed case study work from three of the seven area-based teams operating in London: South East TST (managed by Thames Reach Bondway TRB); East TST (managed by Look Ahead Housing and Care); and, North TST (managed by Mosaic Homes). 13

15 Evaluation of Tenancy Sustainment Teams This included: Interviews with case study Tenancy Sustainment Teams: semistructured interviews with the team manager, support workers and specialist workers for all three teams. Interviews with the Youth Specialist TST (YSTST): semi-structured interviews with two youth specialist support workers seconded from the YSTST to local TSTs, and with the YSTST Deputy Manager. Interviews with St Mungo s: semi-structured interviews with managers at St Mungo s and the North West TST which it manages. Key partner interviews: semi-structured interviews with partner agency representatives, in particular RSI accommodation landlords. Focus groups: with service users for each of the three case study TSTs. Collection and analysis of documentary and statistical information: provided by the Clearing House, the TST case studies, and accommodation providers. This included data from the Clearing House and landlords relating to tenancy sustainment, abandonment and evictions, quarterly and annual reports from TSTs to ODPM, minutes of liaison meetings between TSTs and RSLs, and client satisfaction surveys Some examples of client case studies that TSTs also provided are included to further illustrate the nature of the difficulties faced by RSI tenants and the nature of the support provided by TSTs Further details of the research methods can be found in Appendix 1. Report structure The remaining seven chapters of this report are as follows: Chapter 2 details the policy and operational context of the evaluation, findings from the literature review, and the development of criteria upon which the TSTs were evaluated. Chapter 3 discusses the strategic aims of Tenancy Sustainment Teams. Chapter 4 examines the support provided to RSI tenants, including the views of service users. Chapter 5 describes the monitoring mechanisms and outcomes of the work of TSTs in terms of tenancy sustainment and meaningful occupation. Chapter 6 discusses the relationships between TSTs and their partner agencies such as pre-tenancy teams and the landlords of RSU properties. Chapter 7 presents recommendations for further development of the TSTs.

16 CHAPTER 2 The evaluation Introduction 2.1 This chapter discusses the development of the evaluative framework for this study. This includes identifying the policy and operational context of Tenancy Sustainment Teams, which was informed by a review of key policy documents, and discussions with key informants including the Homelessness and Housing Support Directorate at ODPM (now Communities and Local Government), Homeless Link and the Clearing House. The chapter also reviews relevant literature relating to rough sleepers, identifying criteria used to assess the effectiveness of work in this area. It then outlines the evaluative framework used for this study. The policy context 2.2 The Rough Sleepers Unit (RSU) was set up by Central Government in 1999 with the aim of reducing the number of people sleeping rough in England by two thirds by April In order to reduce levels of rough sleeping, the Rough Sleepers Initiative (which preceded the RSU) initiated a capital development programme that introduced around 4,000 housing association tenancies intended as permanent accommodation for former rough sleepers. There are currently 3,700 self-contained and 250 shared RSI properties in London. Access to these homes is managed by a central agency, the Clearing House. 2.3 Contact and Assessment Teams (CATS) identify and contact rough sleepers on the street to offer them immediate support, including moving into temporary accommodation, such as rolling shelters and hostels. After a period of stabilisation, a further option for them is to access permanent RSI accommodation via the Clearing House. 2.4 Pre-tenancy teams (PTTs) provide support to prepare people for rehousing into RSI accommodation. A range of agencies may provide pre-tenancy support. Occasionally this support may be provided by CATs, as in some instances, rough sleepers move directly from the street into RSI accommodation. 2.5 Whist CATs generally co-ordinate and are gatekeepers for referrals for RSI accommodation, PTTs are the lead agency from the point of nomination through to the sign-up of the tenancy. From then on, the lead role is handed over to Tenancy Sustainment Teams (TSTs). 2.6 Most former rough sleepers living in RSI properties are supported by Tenancy Sustainment Teams, which are funded by central government to help people maintain their tenancies and avoid a return to rough sleeping. 15

17 Evaluation of Tenancy Sustainment Teams 2.7 Following on from the earlier evaluation of the RSU (Randall and Brown, 2002), this study meets a need for Tenancy Sustainment Teams to be evaluated in terms of the service and support they provide to RSI tenants both in the short and longer term. 2.8 The main aim in establishing TSTs was to improve the quality of tenancy support services provided to former rough sleepers living in RSI accommodation, and to reduce levels of abandonment and eviction from these tenancies. Key actor interviews carried out by the research team highlighted the key areas upon which to focus this evaluation, which were identified as: The handover of support from partner agencies within the RSI framework e.g. CATS and Pre-Tenancy Teams. The relationship between TSTs and the landlords of RSI accommodation. The importance of long term engagement and ongoing support for RSI tenants. The role of TSTs in facilitating specialist formal support and networks of social and informal support through links with other local agencies. These issues have a bearing upon the effectiveness of tenancy sustainment work, and outcomes for RSI tenants. Meeting the needs of former rough sleepers the work of the RSU 2.9 Randall and Brown (1999) in their evaluation of the Rough Sleepers Initiative, provided a profile of rough sleepers and their support needs. Rough sleepers were found to be predominantly male and of white UK or Irish ethnic origin, and most were unemployed Over half of them had mental health problems, and about half had alcohol problems. Around 20% had drug problems, with this figure higher among younger age groups. A combination of poor mental health and substance abuse was identified for more than a third of rough sleepers. Physical health problems were also two or three times higher for rough sleepers than for the general population. Previous life experiences common among rough sleepers included: having been in local authority care incarceration in prison service in the armed forces problematic family relationships and backgrounds, including parental violence. 16

18 The evaluation 2.11 The support needs of persistent rough sleepers (people who had slept rough for at least most of the previous month) were found to be even greater. Three quarters had spent time in one or more institutions. Many were long term rough sleepers, having slept rough for two or more years, a quarter for ten or more years. Randall and Brown (1999) recommended that account needed to be taken of what were identified by some long term rough sleepers as the positive aspects of rough sleeping, such as having friends on the streets, freedom from commitments, and not having to deal with authority. In addition to a need for accommodation, this group identified a need for regular support, help to access benefits and find work, and help to deal with drug and alcohol abuse Following its establishment in 1999, the RSU published its programme in Coming in from the Cold (DETR/RSU, 1999). The aim of the RSU was to put in place a step change in tackling rough sleeping, to focus policies, initiatives and funding on the most vulnerable rough sleepers From April 2000, the RSU instigated an intense period of significant policy intervention, which included funding the development of: Contact and Assessment Teams (CATs) in London, to undertake street work in specific locations specialist workers to help rough sleepers with drug, alcohol, mental health and multiple needs find accommodation in hostels and then tenancies Tenancy Sustainment Teams in London, to support the resettlement of former rough sleepers opportunities for rough sleepers to engage in meaningful occupation at each stage of the process of moving from the street into permanent accommodation. (Randall and Brown, 2002) 2.14 In their evaluation of the work of the RSU, Randall and Brown (2002) concluded that whilst government targets to reduce the number of rough sleepers had been met, remaining rough sleepers tended to have high levels of support needs, including mental health and substance abuse problems, particularly the use of hard drugs Contact and Assessment Teams (CATs) were found to have been crucial to the reduction in rough sleeping. Several factors were identified as instrumental in the work of CATs, and these may also be relevant to the work of Tenancy Sustainment Teams: an assertive and persistent style detailed action plans and daily contact for individual clients close joint working with other agencies, including police and hostels strong management with a focus on achieving targets. 17

19 Evaluation of Tenancy Sustainment Teams 2.16 The report also recommended that pre-tenancy work should include early needs assessments and care plans to identify key issues such as the level of support needed, skills for tenancy sustainment, help with drug or alcohol addiction, and joint work with Tenancy Sustainment Teams (TSTs) around move-on housing Randall and Brown (2002) concluded that TSTs had achieved very impressive success rates in helping clients to sustain tenancies and suggested that tenancy support could be developed to include: Closer and more structured links between TSTs and pre-tenancy work. Extending tenancy support to all tenants at risk of homelessness. Support to tenants living in the private rented sector, funded by Supporting People post The further development of meaningful occupation, employment and training schemes. A more effective use of resources achieved by withdrawing support from tenants assessed as not needing it. Ensuring that all referrals for permanent housing are made via TSTs (who might also carry out pre-tenancy work), and that these are accompanied by a comprehensive needs assessment and support plan The authors were concerned about the exclusion of rough sleepers from local authority housing registers, which made it difficult for rough sleepers to move into social housing, and recommended that specialist panels review excluded applications. They also suggested that in areas of high housing demand, schemes should be extended to help with moves to temporary and permanent accommodation in other areas, in both the social rented and private rented sectors In a more recent report, Randall and Brown (2005) noted the profile of people being referred through the Clearing House in terms of support needs, gender, age, ethnic group and level of support needs It is clear that rough sleepers referred to RSI accommodation have substantial support needs, but that these are not as high as levels of support needs amongst rough sleepers on the street, as recorded by CHAIN. Over a third (37%) of Clearing House referrals had support needs relating to drug, alcohol and mental health problems and: Taking account of all support needs, not just those related to drugs, alcohol or mental health, two thirds (66%) of waiting list applicants had needs of sufficient intensity to require visiting support (ODPM, 2005, p.20) Randall and Brown (2005) also noted that the incidence of support needs recorded amongst Clearing House referrals was generally higher for White British rough sleepers than for Black/British African and Black/British Caribbean referrals. 18

20 The evaluation Findings from evaluations of other types of tenancy sustainment service 2.22 Tenancy sustainment can be provided to any person who needs help to manage independent living. A review of existing literature on tenancy sustainment helped to identify issues to be explored in this evaluation Typically, tenancy sustainment comprises a wide range of support activities, from initial resettlement support through to ongoing support on a range of potential areas of work with individual tenants, such as: On-going housing needs such as help with finding and applying for move on accommodation Budgeting and debt management Help with claiming benefits Support with accessing health services Support with accessing specialist services related to drug and alcohol abuse Help with establishing social contact with family and friends and forming new social networks Help with accessing and maintaining meaningful occupation (training, education, volunteering, employment and leisure) 2.24 At times, specific risks to the tenancy, for example, rent arrears, leading to potential eviction, may require rapid intervention Although there is little evidence on the effectiveness of tenancy support with former rough sleepers, the literature is useful in helping to identify criteria for this evaluation. Key factors in creating sustainable tenancies for former rough sleepers were identified in a Housing Corporation report (Dane, 1998). These included getting tenancies off to a good start by ensuring that the process of sign-up and offer was planned and that tenants were properly equipped with basic essentials such as furniture. Other factors included alleviating loneliness by placing tenants where they had access to social networks, and helping tenants to budget Dane highlighted the importance of providing exit routes for former rough sleepers unhappy with their accommodation, because in some cases this had been identified as the main reason for tenancy abandonment. Dane reported that the policies of RSI housing providers on transferring people out of RSI stock varied greatly, with some making no distinction between RSI and other tenants, whilst others adopted a once an RSI tenant, always an RSI tenant approach (Dane, 1998, p.92). Dane emphasized a need for flexible support together with adequate needs assessment, and a good working relationship between referral agencies and housing providers. 19

21 Evaluation of Tenancy Sustainment Teams An evaluation of a tenancy sustainment service commissioned by the Housing Corporation provides some insight into the effectiveness of tenancy support services. The evaluation compared outcomes for a group of tenants who received the service with a group that did not over a 15 month period. The service provided a range of support, including establishing the tenancy, practical living skills, service brokerage issues and developing social and leisure activities. The single most common tenancy support task was help to address rent arrears or other debts, and help with budgeting Comparing the increase in rent arrears between the start and end of the project in both groups, the study found that this was lower for tenants who received the service. There were also lower rates of evictions and abandonments in the intervention group (eight per cent), compared to the non-intervention group (20%). The extent to which interventions were effective differed across client groups, being most effective with people above retirement age and least successful with those with mental health problems (Housing Corporation, 2002) People who have experienced long-term homelessness are usually regarded as requiring intensive and prolonged support to prevent repeat homelessness. Examples of interventions that specifically focus on this client group are rare. However, one study evaluated the effectiveness of a project that provided support to men who had been long term homeless and resettled into selfcontained housing. It found that after three years, 18 of the 21 tenants were still living in their homes (three had died). Although there had been problems with rent arrears and some complaints about noise nuisance, these had been overcome with social work intervention. The study concluded that even those considered to be risky tenants can be supported in ordinary housing provided there is appropriate support (Busch-Geertsema, 2002). Summary of literature review criteria for evaluating tenancy support services 2.30 The literature helped to identify a number of key criteria that have been used to evaluate the effectiveness of tenancy support services. These include the extent to which services: Engage with the target client group Result in tenants increased ability to manage money, and avoid or reduce rent arrears and debt Reduce evictions or abandonment of tenancies Enable people to participate in meaningful occupation Result in self-reported improvements in health (physical and mental), parenting skills and coping abilities Reduce risky behaviour such as drug-addiction or anti-social behaviour Increase contact with community/mainstream support services

22 The evaluation 2.31 In addition, the extent to which outcomes are sustained beyond contact with services has also been considered a measure of the effectiveness of the intervention. Evaluation framework for this study 2.32 The evaluative framework used to evaluate the TSTs in this study consisted of: Performance criteria established by ODPM Qualitative criteria developed on the basis of the literature review, official policy on the work of the TSTs, and key informant interviews. PERFORMANCE INDICATORS 2.33 The RSU established targets on tenancy abandonment and evictions, which TSTs report on, on a quarterly basis: 100% of tenancies to be successful in the first 6 months 98% of tenancies to be successful between 6 months and a year 95% of tenancies to be successful between 1 year and 2 years 90% of tenancies to be successful for more than 2 years 2.34 Targets for engagement in meaningful occupation were also set: 75% of tenants worked with who have been in accommodation more than six months, to be engaged in meaningful occupation At least 50% of tenants worked with who have been in accommodation up to six months, to be engaged in meaningful occupation 2. In practice, TSTs provide quantitative data on performance relating to tenancy sustainment, but qualitative data in relation to meaningful occupation. QUALITATIVE CRITERIA 2.35 Qualitative criteria developed for this evaluation included the extent of shared understandings of the aims and the role of the TSTs amongst staff, partner agencies, in particular RSLs, and RSI tenants the effectiveness of relationships with pre-tenancy support, i.e. with Contact and Assessment Teams (CATs), Pre-Tenancy Teams (PTTs), and the Clearing House 2 Information provided to the research team by Homelessness and Housing Support Directorate, Department for Communities and Local Government. 21

23 Evaluation of Tenancy Sustainment Teams the effectiveness of relationships with RSLs in addressing housing management issues such as rent arrears and anti-social behaviour, which impact on abandonment and eviction, and in arranging planned moves to more independent accommodation where appropriate the nature of engagement and the quality of support, both generic and specialist, provided to RSI tenants contact with local mainstream agencies such as social work departments, and assistance given to service users to obtain support from these agencies improvement in the confidence, tenancy management, coping skills, and health of tenants participation of RSI tenants in the provision of TST services, and their satisfaction with TST services. 22

24 CHAPTER 3 Strategic aims and management of TSTs Introduction 3.1. This chapter examines the strategic aims and management of TSTs. It considers the extent of shared understanding of the aims and role of TSTs across the teams themselves, partner agencies, and among service users. The fit of TSTs within their parent agencies, and strategic relationships with partner agencies are also discussed. Key findings There is evidence of shared understanding, aims and objectives across the TSTs about the role of tenancy sustainment. Landlords of RSI accommodation and RSI tenants also have a good understanding of these aims. However, experience from the research process, aimed at identifying appropriate contacts for interview, suggests that Housing and Social Services Departments in the London Boroughs have somewhat less knowledge of TST services. There is evidence that TSTs fit well within their parent organisations, which have all had previous involvement with this client group from providing accommodation such as hostels, and services such as Contact and Assessment Teams, Pre-Tenancy Teams, and Floating Support Teams. This strong fit enables the sharing of good practice in delivering services to the client group, staff training, staff support and management. Nonetheless, TSTs also buy in expertise from specialist agencies for tenant and staff support when required. The aims and purpose of Tenancy Sustainment Teams 3.2. At the point at which they were set up, the initial objectives of TSTs were described by TST managers as (a) establishing engagement with tenants and (b) crisis intervention for tenancy rescue. The key to achieving this was seen as the partnership with housing associations (or Registered Social Landlords RSLs). 23

25 Evaluation of Tenancy Sustainment Teams 3.3. In the early days there was a need to identify a clear understanding of respective roles and responsibilities, potential gaps in services, and overlapping areas of concern. Considerable efforts were made to build and sustain good relationships with RSLs. The setting up of clear service level agreements played an important role in defining sound working arrangements, to ensure that the aims of TSTs, in reducing tenancy breakdowns and providing opportunities for meaningful occupation, could be addressed Case study participants shared an understanding of the broad aims of TSTs in reducing tenancy breakdown in RSI accommodation and assisting tenants into meaningful occupation, in both the short and long term: by improving the quality of life, you work towards these outcomes, slowly contributing to these key aims. Ensuring the tenant is OK, keeping on top of housing benefit and continuing to work on the longer term issues of risk and prevention (TST Manager) TSTs aim to help people to manage their lives, regain stability, and increase their sense of self-worth, bringing about a sense of permanency and contributing to the long-term sustainability of their tenancies. They also help people to rebuild or build new relationships with family and friends. For people with substance abuse problems, the aim is to begin the process of helping them to manage this, so that the stability of the tenancy is not threatened Focus group participants understood the role of the TST as advisory and providing mediation or advocacy. They described their support worker as acting as a buffer between the tenant and other agencies such as RSLs and local authorities. Liaison with the local authority was particularly important in dealing with housing benefit problems, and with landlord RSLs on questions of housing management Service users were also very aware of the role of TSTs in helping them look beyond RSI accommodation, for example in making planned moves elsewhere. This requires TST and RSI tenants to establish and maintain good relationships with RSLs Some service users and support workers thought that RSI tenants moving on to general needs housing would still need to have access to tenancy support, particularly for crisis intervention. Ultimately, tenancy sustainment support should be redundant but accessible when needed (TST Manager). TST organisation and position within parent organisations 3.9. There are differences between the organisational structures of TSTs in terms of management, location within parent organisations, and staffing, although similarities exist due to government specifications and funding. Arrangements for the provision of specialist support to clients varies, whether from generic 24

26 Strategic aims and management of TSTs workers with specialist skills, support contracted out to other service providers or from in-house specialist support teams. There are no clear indications that any one approach is more effective, though this can influence team structure, the way it approaches its work, and the activities it undertakes TSTs have very strong team identities within their managing organisations, and supportive working environments, which benefit their clients, and distinguish their role from that of housing management and other services. TST staff show great enthusiasm and commitment to their work To provide specialist support to clients aged under 25, youth workers from the Youth Specialist TST are seconded to area TSTs. Area TSTs and the YSTST had established effective systems for supporting secondees through supervision, training and management All TST aims appear to fit very well with those of their parent agencies, which were all already involved to some extent in providing support services to a range of vulnerable groups. In the case of TST East for example, the parent organisation, Look Ahead, already managed hostels for homeless people as well as pre-tenancy support and floating support services for other vulnerable tenants. Mosaic Homes North TST felt that being based in an RSL helped them to work better with RSI landlords, particularly when managing rent arrears and voids, and that this helped to provide a firm organisational framework for managing the TST However, asserting independence from parent agencies was perceived to be an important issue for TSTs where, as for example in the case of Mosaic Homes and Look Ahead, agencies were also RSI landlords for some of their clients. In these cases, TSTs had needed to establish a separate identity from the housing management role of the parent organisation. An example of how this was achieved visually was the use of separate logos and headed paper for the TST. However, this did not prevent TSTs from utilizing shared joint training and learning from good practice in the parent organisation and, in the case of St. Mungo s, benefiting from line management for specialist workers from other specialist teams working in mental health and substance misuse. Within the North TST there were opportunities to share training and expertise with the floating support team managed by Mosaic Homes. Similarly, the South West and East teams were able to share training and good practice with the other TST within their managing agency Parent organisations expertise in recording and monitoring systems was also found to be helpful in some cases, although separate databases of TST clients had been established. TRB South West TST used an electronic client recording system called Link, based on the CHAIN database of London rough sleepers. Similarly, Mosaic Homes North TST had a database of TST clients which could be interrogated to report on a range of performance measures. Funding and management of the TSTs There was a general consensus that current funding and management arrangements were appropriate for TST support for former rough sleepers. 25