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 [email protected] If you require this document in alternative formats please [email protected] Communities and Local Government Publications PO Box 236 Wetherby West Yorkshire LS23 7NB Tel: Fax: Textphone: [email protected] 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

27 Evaluation of Tenancy Sustainment Teams Many of the organisations participating in the study voiced serious concern that any move towards the funding of TSTs via Supporting People might place these services at risk. Strategic relationships with key partners In addition to RSLs, TST partner agencies include CATs and Pre-Tenancy Teams (PTTs). To a large extent, the management of relationships with partner agencies working with TST clients/rsi tenants is achieved through service protocols and service level agreements between agencies. The Clearing House also has an important role in continuing to develop and improve systems to support the interaction between agencies supporting rough sleepers within the RSI framework. Recent examples here include improvements in the way that TSTs are notified of nominations to RSI tenancies, revisions to the application form to expand on applicant information, and the monitoring of the handover process from CATs and PTTs Particular concerns or disputes are discussed either directly with partners through regular monitoring meetings between the TST and the specific agency, or through more strategic, quarterly forums of RSLs and TSTs, organised by Homeless Link. An example of minutes from one such meeting included access to mutual exchange lists, trends in the pursuit of rent arrears by RSLs, work on good practice guidance on liaison between TSTs and RSLs, and the development of formal procedures and standard forms requesting suspension or restriction of lettings to specific blocks or properties Maintenance of good relationships with RSLs continued to be a key concern for TSTs, which regularly met with RSLs to discuss issues such as rent arrears and anti-social behaviour involving RSI tenants. TSTs also undertake briefing sessions for new housing officers to raise awareness of TST-provided support services, as well as liaison and communication procedures. This was seen as especially important for RSLs with only a few RSI tenancies. 26

28 CHAPTER 4 Tenancy support Introduction 4.1 Drawing on evidence from service user focus groups, and from TST interviews and documentary information, this chapter examines the support provided to RSI tenants. Clients views on this support, including support planning and the role of generic and specialist support workers are discussed. The chapter also considers the quality of the service, client involvement in service planning, and problems and gaps in support provision. Tenant satisfaction with their accommodation, with the area in which they live, and problems with access to move-on accommodation are also discussed. Key findings The delivery of tenancy sustainment services begins at tenancy commencement. Support is provided flexibly according to the needs of the individual, in accordance with agreed protocols and procedures, using support planning and goal setting to establish tenant needs and action plans. A range of practical and emotional support is provided. Agreed goals having been achieved, the support service becomes dormant, although client needs are reviewed annually, and there is provision for support to be re-activated quickly if needed. Focus group participants were, on the whole, very appreciative and positive about the support they received. Most TST service users said that they were able to contact their support workers easily. Specialist support in dealing with substance abuse, mental health problems and gaining meaningful occupation was valued, but some users said that it could be hard to access. There were some specific concerns about access to support for meaningful occupation at the right time for the client. A group of male users said they sometimes found it difficult to ask for help, and said that while there were specific services for younger and older men, there was a gap in provision for those of middle age. 27

29 Evaluation of Tenancy Sustainment Teams Participants views about their accommodation were mixed, with varying levels of satisfaction. Many service users identified problems in getting repairs done, blaming both the RSL and TST support workers. Service users complained about a lack of choice of area in which RSI properties are located, and a lack of options for move on or exchange. The targeting of some properties by drug dealers was also experienced as problematic. A great deal of work remains to be done in involving service users in service planning, development and monitoring, although efforts are being made to engage tenants in planning events, and to obtain feedback on TST services. Support planning 4.2 Support planning underpins the assessment and delivery of tenancy sustainment services, with support workers responsible for assessing support needs and carrying out risk assessments, sometimes jointly with specialist workers. Generic support workers work with a core group of clients. For example, in the South West TST, each support worker manages around clients. A support or action plan is drawn up in agreement with the RSI tenant, and is then subject to joint review with the tenant on the progress of actions taken or goals achieved. 4.3 Drawing up a support plan was reported by participants to be helpful in enabling them to set their own goals with their support workers. This was identified as a a two-way process. Personal goal setting was recognised as important: helps with independence helps you become more aware of what you don t know, take things more seriously. Illustrating the importance of this, one participant reported that he had encountered difficulties with a support worker who wanted him to move too quickly into education and training. 4.4 An individual s assessment may also influence which staff are allocated to them in order to encourage successful engagement. In the South West TST, there is scope for matching clients with particular workers according to gender, religion or cultural need, and the type of support they require. 4.5 Support plans may be developed around dealing with a crisis, such as a mental health breakdown or debt accumulation. 4.6 Other support plans might involve the ending of a tenancy due to a planned move or transfer, addressing drug or alcohol abuse, or making/improving connections with families. Staff said that action plans drawn up with clients contributed to the effectiveness of the service by helping clients to stay focused. 28

30 Tenancy support 4.7 Support plans are also used to identify the intensity of support that is provided. When asked about the frequency of contact with support workers, focus group participants responses varied but they agreed that it depended on the amount of support they needed: First you re assessed If you don t need support, it s my decision. 4.8 Those who need less support receive fewer home visits than those with high and intensive support needs, who may require several visits each week. 4.9 Generally, the need for support is high when people first move into their tenancies, and decreases over time. Support at the resettlement stage is jointly co-ordinated with pre-tenancy workers and RSLs. Initial support needs tend to include arranging benefits, furniture and other practical help with moving in. Most focus group participants reported that support was provided as soon as they had seen the flat, although there were exceptions to this. Some found the process confusing and did not always know who to ask for help: Too many hostels and housing associations. Like too many biscuits and you don t know which one to go for. Too much of a mess Illustrating the need for high support at initial stages, some participants acknowledged difficulties in adjusting to living in their own accommodation. One participant with alcohol problems reported that it had been difficult for him to stay in his flat after he had first come off the street, although he welcomed the privacy that his own flat afforded. Another participant who had had mental health problems said he had previously been allocated private sector accommodation but had lost his tenancy and returned to sleeping rough within six months Another participant reported that moving into a training flat, where he could practice living more independently before moving into his current tenancy, had helped him enormously: Now each time there is a problem, I am not too shy to ask. I used to hold back, ashamed. There are different ways to tackle a problem. REVIEWING SUPPORT NEEDS 4.12 All cases are reviewed at intervals in terms of the level and intensity of support required, and support plans are changed accordingly. Cases receiving intensive support may be reviewed once or twice a week. Action plans are used to check on the progress of both client and support worker. Discussion of progress against the plan can be used to encourage clients to review their own development and to take on more when appropriate, for example to take up opportunities for training, a course at college, or voluntary work Through case management meetings, staff share experience and expertise, and re-distribute workloads if necessary. Information systems provide notification about the review schedule for clients and keep support workers up to date with 29

31 Evaluation of Tenancy Sustainment Teams current concerns and needs of clients. Team leaders and managers reported that these measures enabled them to stay up to date on the needs of clients Efforts are made to remind tenants who have not required support for some time that TST services are still available, for example by letter or visit. Unless clients make planned moves into accommodation in other areas, cases are not formally closed. This is so that clients have an ongoing safety net. Different types of support 4.15 The support provided can be broadly classified into generic support, covering a wide range of services essential for maintaining the tenancy, and specialist support for tenants with particular problems, such as managing drug and alcohol problems, coping with mental health problems, and access to meaningful occupation The different types of support, and tenants views of this support, are discussed in this section. GENERIC SUPPORT 4.17 Generic support work typically involves helping tenants with a wide range of issues including management of rent arrears and housing benefit, budgeting and money management. Tenancy rescue for example, intervening when rent arrears are beginning to accumulate is also an important component of generic support work Service user focus group participants were generally very positive about the service they receive. For instance, one participant reported that his support worker had pulled out all the stops Supporting clients to manage their finances is a frequent role. For example, one young female participant who had got heavily into debt through credit card misuse, reported that her support worker had accompanied her to court four times, stopped a bailiff from removing her furniture, and had helped her set up a bank account Another tenant described help received in applying for Disability Living Allowance and expressed appreciation of the persistence of her support worker: She kept on and on and would not take no for an answer. She s a lot of help The amount of time that support workers needed to spend dealing with Housing Benefit claims was seen as a problem, reducing the capacity for providing other forms of support to clients. In contrast, others were satisfied with the system, commenting that they had: good rapport and contact and that support workers were always asking if everything was done Others described the support as a befriending service, with workers taking on the role of confidantes over time. One participant described the service as 30

32 Tenancy support providing back-up, with the role of the tenancy worker being to see if I was coping alright. Another participant, a young man who had experienced schizophrenia, reported that frequent visits from his support worker had helped him to come back to normal life Focus group participants testified to improvements in their own confidence, abilities to manage their tenancies, and to deal with other problems, noting that support provided by TSTs in contributing to their sense of self-worth had literally been life-saving: I would have been floating down the river, no way I would have picked stuff from a dust-bin. You can only let your self-esteem go down so far One particularly challenging aspect of support work identified by the South West TST concerned supporting tenants to engage in social networks. Integration into local areas or communities is a slow process since clients often face prejudice and may understandably feel reluctant. One TST reported that their tenants had been subjected to harassment, and staff had had to tackle this by meeting with other (non RSI) tenants in the area. Another group of clients had initiated their own neighbourhood watch scheme with assistance from their TST, landlord, and the local police officer A few case study examples illustrate the work undertaken by TSTs to help former rough sleepers to resume social networks. Resuming Social Networks Contacting the Salvation Army s family locating service which enabled a client to regain contact with his two sons and siblings Work with a client wishing to make contact with his son who was adopted Assisting a client to transfer into accommodation nearer to his family to help care for his ageing parents Encouraging clients to establish networks in their locality through relevant support groups or hobby based groups. SPECIALIST SUPPORT 4.26 The RSU specification of requirements for TSTs identified that TSTs would need to provide specialist support for drug, alcohol and mental health needs: Arrangements for drug, alcohol and mental health work will need to be identified as a separate strand within each bid to provide a TST. This is in line with the Unit s strategy for slotting specialist workers into each of the services it is commissioning. Proposals for work with young people should also be separately identified, whether this entails arrangements for bringing specialist workers into the TST or proposals for links with specialist agencies (DETR/RSU, 1999a, p.37) Specialist support staff work very closely with generic support workers, taking referrals from them and, where necessary, making joint visits or providing 31

33 Evaluation of Tenancy Sustainment Teams information via generic support workers. TSTs made very different arrangements for specialist workers to provide support to TST clients. For example: Thames Reach Bondway had developed a team of TST support staff working generically but each had an area of specialist expertise. North TST had set up a specialist team to ensure that expert help on substance misuse and mental health was available within the TST. Other TSTs had either appointed specialist staff or purchased such services from other agencies. The North TST used this approach to purchase support for meaningful occupation The following sections cover three areas of specialist support: Meaningful occupation Mental health and substance misuse Youth specialist support work MEANINGFUL OCCUPATION 4.29 One of the key proposals for change in the RSU strategy was the provision of: opportunities for meaningful occupation, to help give people self-esteem and life skills needed to sustain a lifestyle away from the streets, (DETR/RSU, 1999, p.37) Meaningful occupation was intended to provide day time occupation, such as training, education, volunteering or some other form of activity to help RSI tenants adjust to a lifestyle away from the streets, and eventually to encourage many clients to find paid employment The North TST Specialist Team Manager argued that planned leisure is an important aspect of meaningful occupation for clients unable to take up education, training or employment, and North TST had appointed a specialist working in community arts. In addition, North TST had purchased a range of services from Broadway including vocational guidance work and access to Basic Skills packages for tenants. Look Ahead East TST had appointed a meaningful occupation specialist, who worked closely with local education and employment agencies One participant described how he was encouraged into voluntary work. Although initially sceptical about working for no money, the benefits of volunteering became clear: Voluntary work on Sundays has helped me. I believe and hope that it makes me feel better. Voluntary work, being around people now I understand. 32

34 Tenancy support 4.33 Another participant reported that the TST had helped him to apply for college courses, by making phone calls and accompanying him to college: I got help with getting more qualifications in the last two years than ever before A few participants from one TST said they had found it difficult to obtain specialist support, particularly in relation to education, training and employment, and that this was frustrating when they felt ready to find employment One participant saw generic support workers as gatekeepers for access to meaningful occupation workers: You re referred on through the key worker. If the key worker doesn t do their job, then the whole system falls apart Focus group participants attributed some of the above difficulties to heavy staff workloads. Many were of the view that there should be more staff to reduce workload for both key workers and specialists: The specialist workers are overworked. If the worker is ill or on holiday no one is covering that sector. This was a point made more generally about specialist support in addition to a specific reference to meaningful occupation support. MENTAL HEALTH AND SUBSTANCE MISUSE 4.37 Arrangements for the delivery of specialist support for mental health and substance misuse varied across TSTs. North TST had established a specialist team to provide in house support to clients and to facilitate access to more formal specialist teams working locally. Thames Reach Bondway adopted an approach using generic workers with specialist skills and knowledge, who could be matched to clients. St Mungo s North West TST could draw on specialist staff within the parent organisation for further support A number of focus group participants identified their own significant and ongoing support needs for mental health and/or substance misuse problems, and made very positive comments on the support received from specialist workers One participant described how he had been able to overcome his drug addiction and become involved in voluntary work. Others identified positive support, but expressed concern that remaining in RSI accommodation made it more difficult to reduce or stop drug use, since they had neighbours who continued to use drugs. 33

35 Evaluation of Tenancy Sustainment Teams YOUTH SPECIALIST SUPPORT WORK 4.40 The Youth Specialist Tenancy Support Team (YSTST), works with RSI tenants aged under 25 years. The core team is based at The Connection, St Martin s. Youth support workers are seconded to the area based TSTs to support their younger clients. Seconded support workers are integrated within their area TST, whilst also having access to more specialist advice, and case and line management support from The Connection based core team Regular casework meetings and a system of shared supervision notes between TST managers (YSTST and area TST) provide the basis for sharing expertise and support from the core YSTST and the day to day management of the youth worker by the area TST The following case study, drawn from a quarterly YSTST report to ODPM illustrates both the nature and extent of the support required by some young tenants, the role of the youth worker and the difficulty, in some cases, of achieving positive outcomes. Young Person Case Study Young Person (YP) had settled well into his flat after a period of rough sleeping. His drinking had become negligible and he had taken up a full-time job. Unfortunately his neighbour had begun to threaten and harass him, but when he asked his housing association for a transfer they were unable to help. As a result YP became very frustrated with the RSL and began withholding his rent. His TST Youth Specialist Worker tried to encourage him to pay his rent whilst working to secure a transfer, but YP would not change his strategy for dealing with the RSL. The RSL went to court regarding the rent arrears. The Youth Specialist Worker was able to get the court to adjourn the case. Although YP was glad that his Youth Specialist Worker had achieved this, and said he would resume paying his rent and arrears because he had no legal defence against being evicted otherwise, he still failed to pay his rent. The RSL obtained a bailiff s warrant for eviction. The Youth Specialist Worker, on behalf of the Connection, paid the 25 fee to request a court hearing to stay the bailiff s order. Although YP told the YSW that he would attend the hearing and would pay some rent, he did neither and was subsequently evicted. Maintaining relationships with tenants 4.43 In this section we discuss how contact between tenants and TST workers is maintained. ACCESS TO SUPPORT WORKERS 4.44 After clients have moved into their tenancies, contact is generally made via home visits, although clients can also contact TST staff at resource centres or offices, and are encouraged to take some responsibility for making contact. Visits can also be arranged elsewhere than the home if that is preferable to the client Most service user focus group participants thought that TST workers were, on the whole, very accessible, and were positive about the ease of contact: 34

36 Tenancy support TST workers are very helpful. You can talk to anyone. No problem, as long as you have access to a phone, they always answer back your call There were some concerns about access due to staff workloads or absence due to holidays or sickness. One participant reported that cold calling at the office was pointless and that sometimes it was necessary to wait two or three days, even when there was an urgent matter. In contrast, another participant thought that the TST functioned effectively as a unit, and was confident of being able to call on another worker if necessary. Asked about alternative sources of support, several participants mentioned previous hostel workers that they could still approach. MAINTAINING ENGAGEMENT WITH RSI TENANTS 4.47 RSI tenants are not compelled to engage with TST services, and tenants may need encouragement to engage with the service. Both staff and service users recognised the potential difficulties in engaging with tenants after initial resettlement, and initiating contact with RSI tenants who had moved into RSI accommodation prior to the establishment of the TSTs. Engaging with tenants was seen as important in enabling support to be provided when needed, including when crisis intervention is required To support the need for ongoing tenancy sustainment support, one team manager noted that: In terms of timescales most of our tenancy breakdowns in the last three years (88%) are taking place after tenants have been in their flats for more than two years; a third have happened after clients have lived in their flats for more than four years. Our clients need the ongoing support we offer support which is able to vary quickly and very widely in level, kind and intensity A range of mechanisms for encouraging continuing contact between tenants and TSTs have been developed, such as annual contact with people who are dormant in terms of receiving support, newsletters, and social events involving tenants and staff. North and South-West TSTs work with tenants on planning holidays or residential courses. For example, North TST had organised a cultural awareness day and were working with a tenants black and minority ethnic forum and a women s group A sense of rapport between support workers and RSI tenants is also essential for maintaining engagement A couple of focus group participants, in their 30s and 40s, thought that support workers sometimes lacked experience, or can even be complacent: It s an issue of maturity. At 25 years old what do they know about the problem? How can they give advice? 35

37 Evaluation of Tenancy Sustainment Teams The workers are too relaxed, not serious enough There s no urgency. I can t stir them up One participant related this to the importance of recruiting people who had the necessary skills and attitude: It s a vocation not a 9.00 to 5.00 job. It all stems from the recruiting, to get the right results. Not- looked- at- and -done attitude They tend to dress down so that they don t look out of place. It doesn t help. I want to get up to their level, not have them come down to me. You need people who focus the heart as well as the head. Gaps in support 4.53 Provision of support for meaningful occupation needs to be available at the point when tenants are ready to take up opportunities. Action plans are used to assist clients and support workers in identifying when it is appropriate to move on to greater challenges. However, focus group participants identified some areas where they were ready to move on, for example, into employment but felt that the appropriate level of support was not always immediately available One (all-male) focus group discussed difficulties for men in asking for help. It was suggested that tenants should not be ashamed of admitting a problem, but another member of the group thought that some RSL housing officers mock you and put pressure on you due to having been a rough sleeper The group felt that, in general, more help was currently focused on the needs of younger and older people but that men aged also needed help to prevent recurrent homelessness. Satisfaction with accommodation and area 4.56 Views about accommodation and area were mixed. In the words of participants who were positive about the accommodation: If some one had told me that one day, I would be living in my own onebedroom flat all those years when I was sleeping rough, I would have told them, they were dreaming. I ve got my own set of keys. That is the main thing One tenant favourably contrasted living in an RSI tenancy to their experiences of living in a hostel, where rooms and property might be searched and where there was likely to be restricted access In contrast, some participants in two focus group meetings expressed considerable dissatisfaction with their accommodation and/or the services provided by the landlord RSL. Delays in repairs being undertaken were major concerns: 36

38 Tenancy support Problems with accommodation rats, the neighbourhood, roof leaking Whilst acknowledging that repairs problems were generally landlord matters some felt strongly that support workers had a vital advocacy role. There was some agreement that TST staff needed to be empowered in their relationship with the landlord on behalf of RSI tenants. These issues are discussed further in Chapter Six. Although expectations of service users appear to be relatively high in terms of what TSTs can achieve with partner agencies, this might be indicative of confidence and self-esteem amongst the client group, thus reflecting positively on the achievements of TSTs. TSTs may need to clarify the advocacy role of support workers with their clients, particularly when the parent organisation is the client s landlord A further area of dissatisfaction linked to accommodation was when a number of particularly vulnerable drug users were accommodated in blocks, leading to them being targeted by drug dealers, with flats being used as crack dens. Both TST support workers and landlord representatives from different TST areas raised this as a problem. One focus group participant noted that: I ve been in RSI accommodation for five years. For the first few years there were problems with neighbours. They were bringing in people with problems. Recently, they have tried to evict people. The rest of the tenants had problems with this but were not believed. They have not had the support they needed A number of the focus group participants had previously used drugs, and had been through rehab and agreed that this was a problem for the neighbours in a block, and for tenants trying to stay off drugs: There were two or three other addicts. I couldn t get away. I have sympathy with this problem, even though I am a user Other complaints included a perceived lack of choice in terms of tenancy location: What you re given is what you get. No option. You may be stuck in an area you don t like. One choice you can t refuse. They tend to ghettoise us. Moving on from RSI accommodation 4.63 Participants reported that options for moving on from RSI tenancies were highly constrained, and also felt that their status, as former rough sleepers living in RSI accommodation, was a barrier to accessing transfer or mutual exchange lists: You can t move, no chance of an exchange. Problem when you ve been resettled for two or three years. You re still stigmatised. Rough sleepers accommodation needs to be redefined, so that people can transfer. 37

39 Evaluation of Tenancy Sustainment Teams 4.64 Some expressed concern that being trapped in RSI accommodation might contribute to difficulties in finding employment due to potential stereotyping as former rough sleepers by prospective employers, and that they might be disadvantaged in obtaining work placements or accessing other training and employment Interviews with TST staff identified mixed developments, of RSI and general needs tenants, as a positive move for their potential in reducing the stigmatisation experienced by rough sleepers Difficulties in resolving these longer-term issues resulted in a few participants feeling vulnerable to a recurrence of homelessness in the future. One participant indicated the need for mentoring as an approach to providing ongoing support: Someone who is strong, to help pick you up. Getting a house is not the end of the problem. A mentor to talk to about life. To check without you calling on them Not everyone felt they should rely solely on the TST workers for this kind of help but acknowledged the need for ongoing TST support: It s twelve months and now I m settled. Now I m ready to move on. The issue is how to go forward. It s not up to them to get me settled. I have to be looking outside TST, at other avenues, to get back into a normal tenancy. I need to get myself supported. I need more key worker visits to keep the impetus going, to find something else to do. Complaints procedures and tenant involvement in developing TST services COMPLAINTS PROCEDURES 4.68 Service user focus group participants had varying views on complaints processes. They were aware of various methods for communicating dissatisfaction, from forms and a box in the office to customer feedback surveys. Some participants were not convinced that complaints were dealt with, commenting that complaints stayed in the box or that support workers were there as a sponge to absorb complaints. INVOLVING RSI TENANTS IN SERVICE DEVELOPMENT AND PLANNING 4.69 This is an area that TSTs identified as requiring more work and development. TSTs had tried to involve their clients in service development. Methods had included satisfaction surveys, either across the whole organisation or specifically for RSI clients. East TST had attempted to develop focus group meetings as a way of obtaining service user views but attendance had been poor. 38

40 Tenancy support 4.70 North and South West TSTs had involved tenants in the development and planning of events such as visits or residential holidays. These provided opportunities for small groups to meet with support workers in a different context and to meet with other RSI tenants in addition to providing some people with their first holiday ever or for many years North TST is developing work with a black and ethnic minority RSI tenants forum, and a women s group. Focus group participants in the current research generally viewed these initiatives as very positive but some were concerned that there had been insufficient information about such events, which they said had attracted few participants Focus group participants were keen to see the outcome of their involvement in this evaluation, and to be involved in further discussion about TST services and to meet other RSI tenants. PUBLICISING TST SERVICES 4.73 An ongoing need for TSTs to publicise their services was identified. Focus group participants were aware of different methods of providing information about services and events but identified some difficulties with accessing information, citing examples of events that were organised but did not attract many people The TST websites can be used as a source of information, although focus group participants highlighted difficulties associated with lack of access and unfamiliarity with using computers. 39

41 CHAPTER 5 Monitoring TST effectiveness Introduction 5.1. There are a range of mechanisms for assessing the performance of TSTs. TSTs return quarterly reports to Communities and Local Government which give information on the work of the team during that period. The Clearing House also provides reports on referrals for accommodation, lettings of RSI properties, and tenancy outcomes. TSTs have a range of internal monitoring mechanisms, which also provided information for this evaluation The RSU established targets for monitoring the performance of TSTs based on tenancy outcomes and meaningful occupation. The targets relate to percentages of tenancies sustained by length of tenancy, and percentages of tenants worked with who engage in meaningful occupation TSTs are themselves developing monitoring systems that provide more detailed information on their activities, and progress on their work with clients. They are also improving qualitative data collection to include outcomes on measures that are difficult to assess quantitatively, such as quality of life and self-esteem. Key findings TSTs perform well on central government tenancy sustainment targets. Clearing House data demonstrates falling numbers of abandonment and evictions since and a particularly good record from TSTs in relation to abandonment. Reporting to Communities and Local Government on targets for engagement with meaningful occupation is not carried out consistently across all TSTs, with some using case study information to evidence progress in this area. Where there is information against targets, this demonstrates effective performance. 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. This information could be further analysed to provide more detailed information on the effectiveness of TSTs in the future. 40

42 Monitoring TST effectiveness Tenancy outcomes 5.4. The measurement of successful tenancy outcomes is a key objective of both the RSU and TSTs The discussion in this section is based on data provided by RSI landlords to the Clearing House relating to the termination of tenancies for positive (planned move on) or negative reasons At the end of March 2004 there were 3,950 RSI bed-spaces under management across London. The annual turnover rate for these properties in 2003/04 was 13% only a little above the 11% national average tenancy turnover rate for mainstream local authority housing in 2002/03 (Wilcox, 2004). Bearing in mind the potential risk of tenancy failure amongst former rough sleepers, this can be seen as an achievement in itself During 2003/04, 493 Clearing House applicants were allocated tenancies in RSI dwellings, 89% in self-contained housing and 11% in shared accommodation. Just under half (48%) were housed in five London Boroughs: Hackney, Southwark, Lambeth, Islington and Tower Hamlets (Clearing House, 2004b: pp ii-iii) Table 5.1 below shows performance against tenancy sustainment targets. Tenancy success refers to tenancies that were either sustained or ended with a positive move. Tenancy failure refers to tenancies ending with either abandonment or eviction. Table 5.1 Case study TST performance against Communities and Local Government targets for tenancy success, Communities Target Mosaic Homes: North Look Ahead: East TRB: South, SE and SW Annual client throughput NA % of tenancies to be successful in first 6 months % of tenancies to be successful between 6 months and 1 year % of tenancies to be successful between 1 year after 2 years % of tenancies to be successful for more than 2 years 100% 100% 100% 100% 98% 100% 100% 99.8% 95% 98% 97% 99.1% 90% 95.7% 96% 99.1% Source: provided to the research team by the TSTs Notes: 1. For definition of tenancy success see text. 2. Annual client throughput represents the number of clients each TST worked with during the year including those who were evicted, those who abandoned and those who successfully moved on from their flats. 41

43 Evaluation of Tenancy Sustainment Teams 5.9. As Table 5.1 indicates, TSTs appear to outperform Communities and Local Government targets on tenancy sustainment. In 2003/04, case study TSTs achieved the 100% target for sustaining tenancies within the first six months of allocation. The table shows that the TSTs are also successful in exceeding the targets set for longer term tenancy sustainment The lower targets set for longer tenancy sustainment periods, beyond the first six months, were described by a TST worker as realistic, acknowledging that risk of tenancy failure continues into the longer term. A TST team leader commented that their clients responses to crisis (including relatively minor ones) can be to disengage and think about running away, leading to abandonment Clearing House Annual Statistics for detail trends in abandonment and evictions for all RSI tenants 3. From 1998/99, the trend was downward for combined abandonment and eviction figures, from 270 in that year to 176 in 2002/03, of which 96 tenancies were abandoned and 80 ended in eviction. There was a slight increase in the overall figure in 2003/04 (to 178; the number of evictions had increased to 104 against 74 abandoned tenancies) Table 5.2 sets abandonment and evictions figures within the context of the total number of tenancy terminations in 2003/04. This helps to demonstrate the proportion of total moves made for negative reasons. Interpreting transfers and planned moves as positive moves, and abandonment and eviction as negative moves, negative and positive moves are 41% and 47% respectively (see Table 5.2). Table 5.2 RSI stock: tenancy terminations in 2003/04 by reason Reason Total no. (combined selfcontained and shared housing) Percentage Abandoned by tenant 74 17% Evicted from property % Transferred to property in HA % Planned move out of property 75 17% Death of tenant 26 6% Into institution e.g. prison 9 2% Other 13 3% Total % Source: Clearing House (2004b) Figure 17, p14 3 This includes for tenants living in properties where the provision of tenancy sustainment support is no longer provided by TSTs but funded by other means. 42

44 Monitoring TST effectiveness Data from the Clearing House also gives the number of abandonments and evictions for each TST area as a proportion of the total number of RSI bedspaces (see Table 5.3). In making comparisons across TSTs, it should be noted that individual support service providers work with a range of different RSLs and in diverse areas of London. Nonetheless, the data indicates good performance on tenancy sustainment, particularly in terms of abandonment rates. Table 5.3 Abandonments and evictions relating to RSI tenancies 2003/04: breakdown by support provider Support/T ST No of RSI bedspaces Number Abandonments %of RSI bedspaces Number Evictions %of RSI bedspaces Opt Out TSTs: East North North West South South East South West West Total 3, Source: Clearing House (2004b) Figure 19, p15. Note: again, total figures include figures for RSI properties where support is not provided by TSTs funded directly by Communities and Local Government. Meaningful occupation The term meaningful occupation does not only refer to employment, but also to volunteering, training, education and planned leisure The ODPM/RSU set TSTs the following meaningful occupation targets for RSI tenants: 75% of tenants worked with who have been in accommodation for more than six months, to be engaged in meaningful occupation At least 50% of tenants worked with who have been in accommodation for up to six months, to be engaged in meaningful occupation 4. 4 Information provided to the research team by Homelessness and Housing Support Directorate, ODPM 43

45 Evaluation of Tenancy Sustainment Teams Only one case study TST provided information on meaningful occupation in a way that enabled performance against the above targets to be easily measured, with figures for tenants worked with for more than six months at 73% and for more newly established tenants at 63%. General practice amongst TSTs is to provide reports outlining the work being done with tenants, detailing specific activities and case studies relating to client progress in meaningful occupation Collecting data on the progress of a client in engaging in meaningful occupation can be difficult given that indicators of progress may be gradual, and take place over time. For example, moving from withdrawal and isolation towards involvement in planned leisure activities is a measure of progress for the client. Growing self-esteem and self-confidence, essential for engagement in meaningful occupation, may be outwardly manifested through, for example, a more positive outlook, or care with personal appearance, but changes such as these are difficult to capture. TST self-assessment TSTs also carry out internal assessments of their work, using a number of tools such as tenant satisfaction surveys, support planning, and case management data. Teams have developed database systems for recording client information, and continue to develop systems to assist in recording and monitoring casework Mosaic Homes, for example, has developed a procedure for monitoring qualitative or softer outcomes for their work with tenants on substance misuse, including levels of engagement with community substance misuse services, and reduction in the use of emergency services and activities such as begging, street drinking and periods of rough sleeping. At the time of this research, the North TST was also seeking to develop ways of measuring softer outcomes Thames Reach Bondway (TRB) TSTs also use a range of indicators to assess service effectiveness, including levels of tenants skills in areas such as budgeting, substance misuse, engagement with group activities, knowledge and confidence in dealing with agencies and others, and quality of life indicators (e.g. positively changed aspirations and expectations). TRB performance data indicates that engagement with local services and re-connection with social networks are areas where many tenants face difficulties Systems of staff appraisal and performance targets for staff members are also used by some teams to encourage a deliberately cultivated sense of individual responsibility/ownership and creativity (TST manager). Mosaic Homes, for example, has a clear management structure of staff supervision and team meetings, which includes performance monitoring This study did not include analysis of TST databases but it is evident that, whilst they use different systems, TSTs collect a range of information relating to the use of their services and outcomes, which in the case of North TST for example may allow the organisation to monitor a client s progress over time. This capacity for tracking change could be used to analyse trends, for example, in tenancy breakdown, the reasons for moves or loss of tenancy, by length of time in the tenancy, and by the specific problems service users have, such as drug dependency. 44

46 CHAPTER 6 Working with partner agencies Introduction 6.1. This chapter discusses the relationship of Tenancy Sustainment Teams with their key partners. These include Contact and Assessment Teams (CATs) and Pretenancy Teams (PTTs) when individuals are referred to RSI housing. RSL housing management officers then become key partners once tenants move in to RSI accommodation Following resettlement, TSTs also work with local authorities, as the providers of housing and homelessness services, social care services and education and training Health services and a range of statutory and voluntary organisations also support clients with physical and/or mental health needs, and help tenants access meaningful occupation. The role of the Police as a partner agency is also discussed. Key findings In order to achieve tenancy sustainment, TSTs are involved in extensive partnership working with other agencies, and there is evidence that they make considerable effort to develop and maintain such relationships. Relationships with CATs/PTTs generally work well, with protocols and standard forms developed with the Clearing House, assisting in improving liaison and practice. Good working arrangements between TSTs and RSLs are recognised as crucial to the effectiveness of tenancy sustainment work. Much work has been done to build and maintain effective working relationships with RSLs. However, the experience of TSTs in working with RSLs remains variable. TSTs work closely with local mainstream agencies, such as health and support services tackling mental ill-health and substance abuse. Much of this work appears to be at the individual rather than organisational level, i.e. in relation to particular clients. Whilst relatively good relations exist between TSTs and service provider staff in local authorities, strategic local authority managers know little about the work of TSTs. 45

47 Evaluation of Tenancy Sustainment Teams There is evidence that some RSI flats and tenants are targeted by drug dealers, increasing the vulnerability of tenants and their tenancies. Liaison between the police and RSLs has improved but there are difficulties regarding their respective roles. 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. Other specialist workers use a range of mechanisms and contacts for updating and sharing good practice with a range of agencies, but not necessarily other TSTs. Relationships with Contact and Assessment Teams, hostels and Pre-Tenancy Teams 6.4. Contact and Assessment Teams (CATs), Hostels and Pre-Tenancy Teams (PTTs) are the main partners with whom TSTs work prior to and during the initial resettlement period The research team did not contact CATs, hostels and PTTs in order to discuss the work of TSTs, as this was not a focus of this study. Pre-tenancy work and liaison with TSTs is reported on elsewhere (Randall and Brown, 2002; 2005). The views presented here are those of TSTs and RSLs At the time of this research, the Clearing House was monitoring partnership working at the stage when RSI tenants sign up for new tenancies, having implemented a number of initiatives to support improvements, such as a more systematic approach to recording support needs, protocols covering the handover period from PTT to TST, move-in action plans for tenants, developing Service Level Agreements to ensure continued support for tenants, and staff training (Randall and Brown, 2005). The Clearing House has therefore played an important role in defining the relationship between TSTs and RSLs On the whole, TSTs and RSLs reported that relationships with CATs/PTTs worked well, although some interviewees referred to instances when they felt that support needs assessments of potential tenants could have been better. Relationships with RSLs 6.8. According to TST managers, relationships with RSLs can facilitate TST effectiveness, though RSLs vary in how they understand their role in relation to tenants. Building up good working relationships with RSLs was identified as a key initial TST aim. Although TST Managers meet in regular forums with RSLs and the Clearing House, the effectiveness of TST/RSL communication seems to vary RSLs, too, saw good relationships between themselves and TSTs as a key factor influencing the effectiveness of tenancy sustainment. Other factors identified included: 46

48 Working with partner agencies High quality information at referral, including client case history Access to specialist and crisis intervention workers Help with housing management issues such as rent arrears (see below) Factors identified as potentially damaging for TST effectiveness included poor communication with RSLs regarding housing management. For example, housing management officers need to communicate with TSTs if a tenant is to be served a Notice Seeking Possession, or if there are complaints from neighbours. Similarly, TST workers need to communicate with housing officers if, for example, clients have a crisis or are away from their tenancy for a prolonged period, for example in hospital TSTs profess to work closely with RSLs, but with varying experiences. In the words of one youth specialist worker, some appear to lack understanding of clients support needs Housing officers vary in how they work with TSTs. Service Level Agreements (SLA) developed with partner RSLs and other TSTs, which partner RSLs sign up to (with slight variations) have contributed significantly to defining roles and responsibilities: Service Level Agreements have considerably enhanced clarity about the TST role, improved day to day liaison with RSLs and helped to bridge gaps and reduce overlapping areas (TST team leader) In practice however, respective areas of responsibility may sometimes be blurred. According to support workers, repairs can be one such issue. The TST worker is responsible for supporting clients, not actioning repairs. Another reported example involved support with transfer applications. One client cited medical grounds for requesting a transfer and the housing officer expected the TST worker to contact the GP for more information One area where RSLs and TSTs appear to work well together is in relation to dealing with rent arrears. TSTs work with clients to try to work out payment arrangements with RSLs. RSLs usually send a monthly rent arrears sheet to TSTs, which shows if any RSI tenants are in arrears, and also inform TST workers when a Notice Seeking Possession is issued to a tenant. TSTs are seen by housing officers as providing a service to housing management by helping to reduce evictions and tenancy breakdowns, and as a resource to help work with their tenants: Housing officers have large patches and are monitored closely on rent arrears; they are largely office-based and therefore need to liaise with TST workers (Care and Support Manager, RSL) Housing managers recognise that TSTs play a pivotal role in helping to manage rent arrears and other problems such as anti-social behaviour. Generally, there is plenty of liaison there has to be for it to work and a need for relationship building. (Care and Support Manager, RSL). 47

49 Evaluation of Tenancy Sustainment Teams In addition, TSTs and RSLs agreed that the drug situation in parts of London was changing, with an increase in the number of flats used as crack dens. There are also problems for vulnerable RSI tenants around the cheapness and availability of drugs. There is some evidence that flats and individuals are targeted by drug dealers. While there is a need to ensure that tenancies are sustained, RSLs have management control and decide on police involvement, although TSTs are involved in liaison meetings with the police and RSL. There is evidence that links with the police have improved A TST support worker described their role as to provide support for tenants but not to collude with anti-social behaviour. They had to balance the needs of their clients with those of other tenants. Special lettings and nomination arrangements had been agreed with the Clearing House to reduce the number of more vulnerable tenants in specific RSI blocks where problems had been identified. Relationships with local authorities In attempting to identify appropriate council representatives for interview for this study, it was clear that at least at the strategic level TSTs tend to be somewhat isolated from local authorities There was evidence though that TSTs have regular contact with local authority departments about the needs of individual clients TSTs do not provide support to local authority tenants. Although TST managers may have been involved in discussions with strategic partners regarding the provision of housing support via Supporting People, or in relation to homelessness strategies, there seemed to be little strategic level contact between TSTs and local authorities, and the role of TSTs was often not well-known TST managers noted this lack of awareness with some concern, expressing anxiety that should funding arrangements be transferred to local authority management, funding services to rough sleepers from other parts of the UK might be a low priority There was lack of clarity about the role of TSTs amongst strategic managers in homelessness and social work departments, with some managers confusing their work with that of TST managing organisations contracted to provide support to the authority s own tenants. Local authority staff were generally hesitant about participating in the research due to their perceived lack of knowledge of the work of TSTs. 48

50 Working with partner agencies Relations with other partner agencies There is evidence that TSTs are active in networking and liaising with partner agencies in order to help their clients access services. From monitoring records, TST workers identified a number and range of different agencies contacted on behalf of clients, including health services, social work services, and prisons 5. Relations with other teams Specialists working on meaningful occupation met with other TST specialists and similar workers at regular meetings, including a forum set up for the purpose of sharing good practice organised by Homeless Link. Some of those working on mental health and substance misuse problems were able to use links within their managing organisations where there were other relevant specialist staff. Others had developed their own information sharing networks with both national and local services. However, other than regular meetings set up for meaningful occupation workers, there appeared to be no formal opportunities for specialist workers to meet with workers from TSTs based in other managing agencies. 5 Quarterly monitoring returns provided to ODPM 49

51 CHAPTER 7 Elements of good practice and recommendations for future development 7.1. Much of what TSTs do is successful in supporting service users to sustain their tenancies and improve the quality of their lives. There is a great deal of commitment and enthusiasm within TSTs to further develop their work and continue to improve their services. Some elements of good practice were: Shared understanding of the aims and objectives of TSTs with landlords and tenants Integration of TSTs with parent organisations which enables sharing of good practice in delivering services, staff training, support and management Flexible needs-centred provision of support, varying as agreed with the tenant, including the regularity of contact or visits and involvement of generic and specialist staff The availability of a wide range of support services, including financial, practical and emotional support Termination of support when not needed combined with the ability to reactivate support at a time of crisis Good joint working between TSTs and Contact and Assessment Teams and Pre-Tenancy Teams, facilitated by protocols developed by the Clearing House Evidence of networking between, for example, health services and the police around the needs of individual tenants The sharing of good practice between meaningful occupation workers based in different TSTs 7.2. However, the evaluation also identified some areas where practice could be improved, for example, the involvement of service users in the development of services. The remainder of this chapter presents the research team s recommendations on the work of the TSTs. 50

52 Elements of good practice and recommendations for future development Service user involvement Recommendation: Continued attention should be paid to encouraging the participation and involvement of service users in service development through a range of methods, such as: representation on management groups involving service users in seeking feedback about the service using independently facilitated focus group discussions 7.3. RSI tenants should be consulted on the relative effectiveness of one or more of these mechanisms for increasing their involvement. Informal means for obtaining tenant feedback, for instance while on organised trips, should also be more widely practised. Relationships with RSLs Recommendation: TSTs should continue to work with RSLs to increase understanding of their aims and objectives, and how their work can support RSLs in maintaining tenancies Although there was some evidence of good practice in sharing information with RSLs, for example by developing protocols for information sharing, more efforts should be made to increase the understanding of RSLs of the needs of former rough sleepers and the role that TSTs can play in supporting them. This should include considering the effectiveness of the advocacy role of TSTs on behalf of their clients with RSLs In terms of the targeting of flats and vulnerable tenants by drug-dealers, increased consideration should be given to clarifying the roles and responsibilities of the police, RSLs and TSTs in order to reduce or eradicate this problem. Achieving meaningful occupation Recommendation: TSTs should develop a more systematic and consistent approach towards meeting the specific needs and aspirations of tenants for meaningful occupation, including the provision of vocational guidance and support for gaining employment, where appropriate There is further scope in some TSTs for a more systematic and consistent approach to meeting the specific needs and aspirations of tenants in relation to meaningful occupation. This includes early identification of what would constitute meaningful occupation for different people. This would provide the basis for focused work in this area. Reliable provision needs to be made for accessing specialist support when required by clients. This might proceed 51

53 Evaluation of Tenancy Sustainment Teams alongside the development of specific qualitative and quantitative indicators for assessing meaningful occupation (see below). Information sharing and good practice Recommendation: TSTs should consider organising London-wide forums, seminars or training to enable generic support workers and specialists in substance misuse and mental health problems from the eight TSTs to network and share good practice and service development ideas There are opportunities for TSTs to share good practice within their parent agencies, and examples of good networking by specialists to improve their knowledge, skills and service. There is also a forum for meaningful occupation workers which includes workers beyond TSTs and partner organisations. However, there was no evidence of opportunities for generic and other specialist workers to meet other TSTs to discuss good practice and future service development. Accommodation needs of tenants Recommendation: Landlords and the Clearing House should discuss ways to implement 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) Although ODPM (now Communities and Local Government) commissioned a separate review of RSI provision, there was sufficiently strong concern from both TST workers and, more especially, service users to warrant mentioning accommodation needs. RSI tenants would welcome greater choice in the area in which they live, and greater opportunity for transfer or exchange to other areas or accommodation. In addition to an initial lack of choice, some focus group participants expressed frustration at what they perceived as barriers to moving on from RSI accommodation, through opportunities to transfer or exchange It is especially important to give RSI tenants choice and rights in this, due to difficulties experienced in recovering from drug and alcohol abuse if neighbours are still engaged in this activity, the need to move away from the stigma of being a rough sleeper, and to form new social networks. This approach would tie in with government goals for community cohesion and stability. Enhanced monitoring mechanisms Recommendation: TSTs and managing agencies should consider the development of monitoring practices including the shared development of qualitative indicators to develop good practice in performance monitoring, and assist in a consistent approach to data collection and analysis. 52

54 Elements of good practice and recommendations for future development Although TSTs use different database systems, a great deal of valuable information is collected and there are opportunities for further analysis of this information to assess the effectiveness of the service, including longitudinal analysis of service user development, patterns of service use, and the profile of service users (including ethnicity, gender, age etc). In addition, there is considerable scope for TSTs to develop both quantitative and qualitative indicators to assess meaningful occupation, in order to supplement the case study approach currently undertaken by some TSTs TSTs are currently working within their own organisations to develop qualitative indicators to reflect positive changes for clients such as increased ability to cope with independent living, increased self-esteem and engagement with social networks. This work could be shared across TSTs to facilitate consistency in monitoring their effectiveness. Staff resources and funding Recommendation: Communities and Local Government and TST managing organisations should continue to monitor levels of funding for TSTs to ensure that there are adequate resources to support and develop these services, which are highly valued by service users Whilst the remit of this evaluation did not specifically cover funding and resources, service users commented on the apparently heavy workloads of support workers, and the lack of holiday and sickness cover. This sometimes led to difficulty in accessing appropriate support, indicating that consideration should be given to staff resources and workload Tenants recognised and valued the skills and experience of support workers and the need to recruit people with appropriate attitudes and values to ensure continuing good quality support services to RSI tenants. This indicates that the recruitment and retention of staff with appropriate experience and expertise should be a high priority, with the capacity for ongoing development and improvement The support provided by specialist workers was valued by tenants but difficulties were reported in gaining access to such support, indicating the need for such provision to be increased, especially to gain training and employment. Related to this, some middle-aged tenants felt that there was insufficient recognition of their support needs, compared to the needs of younger and older men. Recommendation: TST services should continue to receive dedicated funding, whether provided directly through Communities and Local Government or through an alternative mechanism Given the complex needs of many former rough sleepers and the concerns raised by research participants about the possible lack of priority and recognition of their needs if TST work is funded in other ways, it is recommended that dedicated funding for support services for this client group continue to be maintained. 53

55 Evaluation of Tenancy Sustainment Teams Strategic work with local authorities Recommendation: TST should consider further work with local authorities in terms of ensuring that the special skills and good practice of TSTs is more widely known and understood Knowledge of the role and services provided by TSTs to RSI tenants at the strategic level appears to be lacking, with much of the contact with local authorities restricted to liaison about the needs of individual clients. Strategic level work is needed to facilitate a co-ordinated and consistent approach in dealing with tenants with complex needs, including protocols for information sharing. 54

56 REFERENCES Busch-Geertsema, V. (2002) When homeless people are allowed to decide by themselves: Rehousing homeless people in Germany, European Journal of Social Work, 5(1) pp5-19. Clearing House (2004a) Policy and Procedure Guide Clearing House (2004b) Annual Statistics Dane, K. (1998) Making it Last: A Report on Research into Tenancy Outcomes for Rough Sleepers, London: Housing Corporation Department of the Environment, Transport & the Regions (1999) Coming in from the Cold: the Government s strategy on rough sleeping, Report by the Rough Sleepers Unit (RSU), London: DETR Department of the Environment, Transport & the Regions (1999a) Coming in from the Cold: delivering the strategy, Report by the Rough Sleepers Unit (RSU), London: DETR Housing Corporation (2002) An Evaluation of the Effectiveness of a Tenancy Support Service, London: Housing Corporation Pleace, N. and Quilgars, D. (2003) Supporting People: Guide to Accommodation and Support Options for Homeless Households, London: ODPM Randall, G and Brown, S (1999) Homes for Street Homeless People: An evaluation of the Rough Sleepers Initiative, London: DETR Randall, G and Brown, S (2002) Helping Rough Sleepers off the Streets A report to the Homelessness Directorate, London: ODPM Randall, G and Brown, S (2005) Review of Settled Housing for Former Rough Sleepers in London, London: ODPM Welsh Assembly Government (2004) Advice Note on the Prevention of Homelessness, Cardiff: Welsh Assembly Government Wilcox, S. (2004) UK Housing Review 2004/05, Coventry and London: Chartered Institute of Housing and Council of Mortgage Lenders. 55

57 APPENDIX 1 Research methods Introduction A1.1 This section provides more detailed information about the research methods used for this evaluation. The main methods were: a literature review interviews with key informants case studies of three Tenancy Sustainment Teams interviews with the Youth Specialist TST interviews with RSLs and other partner agencies three focus group meetings with TST service users Literature review A1.2 The literature review included a review of policy documents, research relating to RSI/RSU policy, and other relevant literature. Key informants A1.3 Semi-structured interviews were undertaken with three key agencies within the RSI/TST framework. These were with representatives from the Homelessness and Housing Support Directorate (HHSD) at ODPM, Homeless Link, and the Clearing House, Broadway. These interviews provided background information on the policy and operational context of the TSTs, and assisted in drawing up criteria for the evaluation. A1.4 HHSD manages the policy implementation, direct funding and monitoring of the TSTs. Homeless Link is a membership organisation for providers of frontline homelessness services in England and Wales. As such, TSTs are members of this organisation, which also provides support forum events for TSTs and RSLs managing RSI accommodation, and similar meetings for support providers. The Clearing House manages applications and nominations to vacant RSI accommodation, and is additionally responsible for the development of protocols with partner agencies, monitoring the handover process, and for 56

58 Research methods providing training and information on RSI tenancy outcomes for agencies working within the RSU framework. Case Studies of Tenancy Sustainment Teams A1.5 Case study TSTs were selected to provide examples of TSTs managed by different types of organisation: NIHHA North TST managed by an RSL which provides housing and support services East TST managed by Look Ahead Housing and Care, which provides hostels and supported accommodation for homeless people and other vulnerable groups, as well as pre-tenancy work, and floating support services. South-West TST managed by Thames Reach Bondway, which provides hostels and supported housing, and works with rough sleepers and other vulnerable homeless people in London. A1.6 Semi-structured interviews were undertaken with team managers, generic support workers, and specialist staff for all three teams. The number of interviews varied for each TST, depending on the availability of staff, and were either individual interviews, or interviews with small groups of staff, either generic workers or specialist teams. A1.7 Documents relating to the work of the TSTs were obtained, including copies of quarterly returns to ODPM, annual reports of their managing organisation, newsletters, user surveys and support need surveys, and management forms relating to assessment, support plans, staff targets and case monitoring. A1.8 Although not selected as one of the three case studies, an interview was held with two managers from St. Mungo s, which operates North West TST, to provide an opportunity for them to input into the evaluation, as the only managing agency not otherwise represented. Interviews with the Youth Specialist TST (YSTST) A1.9 Within two of the case studies, semi-structured interviews were conducted with youth specialist workers seconded from the YSTST, which provides specialist support for RSI tenants aged under 25 years. In one case the interview included the YSTST Deputy Manager, who provided further information on the services provided by the core YSTST. The youth support worker at the third case study team was not available at the time of the interviews. Further documentation was provided by the YSTST, including copies of their quarterly return to ODPM, and examples of client cases. 57

59 Evaluation of Tenancy Sustainment Teams Interviews with RSLs, local authorities and other partners A1.10 Semi-structured interviews were undertaken with partner agency representatives, in particular RSI landlords. In selecting RSLs, consideration was given to their size, the number of RSI properties they managed, and their correspondence to the areas covered by each of the case study TSTs. Interviews were undertaken with housing managers responsible for RSI properties. Area offices of the following four RSLs assisted with the research: Hyde Housing Association Family Housing London and Quadrant Housing Association Toynbee Housing Association A1.11 Even where named contacts in local authorities were provided by TSTs, it was difficult to arrange interviews. Staff had frequently moved on or changed roles, but more importantly, when contacted, felt that they had little knowledge of the work of the TSTs. However, a face-to-face interview and telephone discussion was held with representatives from LB Lewisham and LB Hackney. A1.12 The research initially intended to interview a range of potential partner agencies such as Social Services Departments, the police, probation services, specialist mental health services and Drug Action Teams. However, case study interviews revealed an approach to working with partners which was primarily based on the needs of individual tenants, and liaison with individual staff working with particular clients. Although some agencies were used regularly, the network of support partners was continuously developing and changing, contacted when required according to the needs of specific clients. A1.13 Rather than interview staff working with individual clients, it was decided to examine the level and range of networking involved in providing support to TST clients. This information was obtained from TSTs themselves, primarily from quarterly reports detailing casework numbers and agencies contacted. Focus groups with RSI tenants A1.14 Three focus groups were arranged with RSI tenants, one for each team. Contact with participants was made via TSTs, by letters to tenants and contact with support workers. Venues familiar to participants were arranged by the TSTs, i.e. an area housing office, a drop in centre and a TST meeting room. A flat rate expenses payment was offered to each participant to cover travel and other related costs. A1.15 Initial discussions with TSTs indicated that focus group meetings were difficult to arrange, and previous attempts at such meetings had resulted in few 58

60 Research methods participants. Fortunately this proved not to be the case, with more than expected numbers of participants attending all groups. A1.16 Although groups were arranged by case study TSTs and in each case participants were the clients of that particular team, the intention had not been to use these meetings to review the performance of individual teams. Participants were not representative of the service users of that team, and the methods used do not reflect that purpose. Rather, the groups were designed to gain the views of participants on the support services offered their effectiveness and appropriateness, and their benefits and constraints. A1.17 The three focus groups attracted eight, nine and eleven participants respectively, with a range of ages and ethnic backgrounds represented at each. Participants lived in properties belonging to a range of RSLs. A1.18 The only age group not represented by focus group participants was those under 25 years old, since this client group are supported by the YSTST and specialist youth workers. This was disappointing, as the TSTs had otherwise achieved a good mix of participants of varying age, background, gender and support needs. With hindsight, it would have been more appropriate to have worked through the YSTST to organise a focus group with young people rather than through area based teams. A1.19 Most of the participants had not met before, and were keen to share their views and experiences. They were also willing to discuss their views of other agencies such as RSLs, local authority housing benefit departments, hostel and previous support workers. A1.20 Some participants said that they would be prepared to participate in further focus groups as they had enjoyed the discussion with people who had dealt with or experienced similar problems, and wanted to know when they could obtain details of the evaluation report. 59

61 APPENDIX 2 The case study TSTs Introduction A2.1 This appendix provides background information on the three case study TSTs: South West, North and East, and for the Youth Specialist TST. The three area case study TSTs are managed by Thames Reach Bondway (TRB), Mosaic Homes and Look Ahead Housing and Care Ltd respectively. The Youth Specialist Team works from The Connection at St Martin s. Thames Reach Bondway: South West TST A2.2 TRB provides Tenancy Sustainment Team services in relevant London boroughs south of the Thames. The TRB TSTs grew from two teams, South and South East, to three, developing the South West TST, to target different geographical areas. The South West team works mainly in Lambeth and Wandsworth but supports a small number of units in Merton and Southwark, working with six landlords. TRB also has a centralised resettlement team. A2.3 All TRB TSTs have a team manager and a set number of workers. All have a specialist youth worker. One team has workers specialising in mental health and alcohol, who have a generic case load. The South West team has seven support workers, who work principally with a younger client group. The team does not have specialist workers, but rather has generic workers with specialisms. This is related to the view that there is a need to take a holistic view of clients, who have a broad range of needs. Mosaic Homes: North TST A2.4 Mosaic Homes is an RSL providing RSI funded accommodation, and a TST managing agency. It is a medium sized general needs housing association, based mainly in Islington and Hackney, and has always provided supported housing. Mosaic Homes is the largest RSI accommodation provider in the North area and across London. A2.5 Mosaic Homes provides supervision, management and financial structures for the North TST. As a new venture for the organisation, the TST was allowed to develop without baggage (TST Manager). The TST was established from a coalition of Mosaic Homes, Broadway (previously HSA) and Providence Row Housing Association and The Connection, St Martins, providing joint partnership and membership of the TST steering group. 60

62 The case study TSTs A2.6 The North TST is structured around two teams of support workers and a specialist worker team, each with a team manager. Two of the support workers spend part of their time with two specific RSI projects. Each support worker has a caseload that relates primarily to an RSI accommodation provider, and has responsibilities for liaison with that provider. A wide range of services are provided by staff. A2.7 In addition to the team manager, the specialist team includes two substance misuse workers, a mental health worker and two youth specialist support workers, seconded from Connection. The meaningful occupation team has been restructured, and the TST has one worker in community arts development located within the specialist team and two workers based at Broadway. Broadway provides vocational guidance for 30 clients a year, access to basic skills packages for a further 30 clients, and is contracted to provide dedicated casework to 30 clients a year with multiple debt problems. Look Ahead Housing and Care: East TST A2.8 Look Ahead Housing and Care is registered with the Housing Corporation, working with 3,000 people across London and the south. Accommodation includes hostel, foyers and supported housing, with tenancy support and outreach workers, working with former rough sleepers and single homeless people, as well as other groups needing support and care. A2.9 Look Ahead manages two Tenancy Sustainment Teams, covering boroughs to the west and east of London. A TST Manager works with both the west and east teams, with a Deputy Team Manager located in each office. The East TST works with RSI tenants in the City, Tower Hamlets, Newham and Waltham Forest. A2.10 The TST Manager has a strategic role in the development of the TST service, liaising with RSLs and other agencies. The Deputy Managers provide day to day management in their local office, supervising the support workers, allocating workloads and undertaking presentations to RSLs to inform housing officers about TST services. As well as generic support workers, each team includes specialist workers two specialising in alcohol and one in drug misuse, one employment and training worker, one mental health specialist and a youth worker seconded from The Connection, to work with under 25 year olds. The Youth Specialist TST, The Connection at St. Martins A2.11 The Youth Specialist TST (YSTST) is based at The Connection, St Martin s. The TST has eight youth support workers seconded to the area TSTs, and two project-based pre-tenancy workers. St Martin s also has a Contact and Assessment Team, street workers and a day centre, which support 50 to 200 people a day, providing youth work, showers and a safe place in the day. There is also a training and employment workspace and support for substance abuse, mental health and meaningful occupation. The aim is to provide a smooth handover to TSTs, supported by a signed protocol. 61

63 Evaluation of Tenancy Sustainment Teams A2.12 There is a specific demarcation between support from the YSTST and area TSTs. The youth worker has monthly meetings with The Connection for case work supervision, and to share ideas and different approaches. There are also quarterly meetings between the TST Manager and The Connection s supervisor. Supervision notes are shared and there is day to day support for the youth worker from the TST. This approach provides the best of both worlds, complimenting the work of the TSTs (Youth Specialist TST). A2.13 Duplication of training is avoided. In addition to providing training for TSTs, the YSTST provides regular courses on specialist issues for all YSTST workers. This helps to avoid isolation, as the youth workers are secondees with the area based TSTs. At the North TST, the two youth workers are based in the specialist team and are less isolated than single workers at other TSTs. A2.14 The model for the Youth Specialist TST is to be proactive, to avoid the need for crisis intervention, and to develop a relationship with the tenant. A2.15 Interviewees reported that there are specific issues for young people relating to adolescence and especially for care leavers of years. Additionally, a homelessness crisis may defer other issues relating for example to bereavement and loss but in the first months in a flat such issues may resurface and need support. Young RSI tenants often have multiple needs; half have problems with substance misuse and mental health problems, such as depression. A2.16 The youth workers develop a very strong relationship with tenants, to help them to identify goals and develop a positive approach towards resettlement and tenancy sustainment. A2.17 Weekly support is provided and this may include liaison with mental health workers, psychiatrists, prison and probation services and support with housing and other welfare benefits. For those with greater independence, there is less contact. A2.18 For tenancy rescue, support for tenants in court may be necessary as young tenants may be scared of appearing in court. The Connection court team provides support to the youth workers, so that they gain confidence and learn by experience. A2.19 The Youth Specialist TST reported that abandonment and eviction rates are very low for young people. Another key aspect is quality indicators : the development of the young person in making choices, taking responsibility and gaining empowerment, disengagement, multiple needs development and progress with support from psychiatrists and drug specialists. Hand over from CATs and PTTs A2.20 When a potential tenant is nominated to RSI permanent accommodation by the Clearing House, the TST is informed and arrangements are made for a handover from the Contact and Assessment Team (CAT) if the referral is from the street, 62

64 The case study TSTs and Pre-Tenancy Teams (PTTs) if the referral is from a hostel or other temporary accommodation provider. There is a specific protocol for this handover process which clarifies the lead agency and areas of responsibility at each stage: pre-tenancy; tenancy sign up; and post tenancy for a period of two to three months. A2.21 TST workers come into contact with clients when they have been nominated by the Clearing House to RSLs for permanent housing. They liaise with CATS/PTTs and arrange the initial interview with the client and the RSL. PTTs are the lead workers up to the point of sign up and three months into the tenancy. It is the role of TSTs to maintain tenancies once their clients have received accommodation. The work of PTTs and TSTs may overlap, for example, in arranging Community Care Grants (CCG). A2.22 At the first meeting with clients, RSL and PTT, the TST workers normally receive a risk assessment and a support needs indicator from the PTTs. An initial assessment is usually made on the basis of information in the risk assessment. Tenants sign a consent form and are kept aware of what information is made available to the RSLs and other partners. Some problems may arise at this point if, for example, the interview reveals different needs to those indicated by the initial risk assessment and the accommodation is therefore not appropriate. A2.23 The Clearing House has developed a more detailed referral form for nominations and a protocol on handover procedures to reduce these difficulties. 63