Contents
- Introduction
- National Direction
- The Homeless Reduction Act 2017
- Ending Rough Sleeping for Good
- Nationally
- Locally
- Funding
- Local Housing need and supply
- Challenges
- Conclusion
- Priority 1 Preventing rough sleeping at the earliest opportunity
- Priority 2: Intervention
- Priority 3: Recovery
- Priority 4: Transparent and joined up system of working
- Priority 5: Assist more people to sustain private rented accommodation
- Priority 6: Support supported living particularly for young and vulnerable people to live independently
- Appendix 1: Delivery Plan – Homeless and Rough Sleeping Prevention Strategy (2023 - 2028)
Introduction
The Homeless Act 2002 requires Local Authorities to publish a Homelessness and Rough Sleeping Prevention Strategy based on a review of homelessness in their area.
Homelessness and Rough Sleeping is a very complex area with multiple reasons behind the cause. Finding solutions requires a flexible multi-discipline approach. We must work with statutory, voluntary, and charitable organisations, alongside the private sector to ensure we can deliver effective and early intervention.
Households experiencing or who are threatened with homelessness, are often trapped in cycles that impact on their health and emotional well-being. The effects on children within households experiencing or who are threatened with homelessness can be lifelong. However, we do not always see the impact, as homeless households can sometimes be ‘hidden’ as whilst they may have access to some sort of temporary shelter, they lack a stable, long term, settled home, often moving from one form of temporary accommodation to another with consequential impacts on health and wellbeing and children’s education. With the cost-of-living crisis we can also see this instability increasing as people have to make a choice between housing, energy, or food.
The term homelessness is sometimes only applied to those who are found to be rough sleeping, however, if you compare the figures between the cause of homelessness, the vast majority are from the Private Rented Sector and who have been issued with a notice to leave. Reasons for this include, landlords selling the property, rent arrears, anti-social behaviour, and disrepair disputes.
Bassetlaw District Council aim to prevent this from happening and want to offer greater security for all residents irrespective of tenure.
This is why the vision for the Bassetlaw District Council’s Homelessness and Rough Sleeping Prevention Strategy is “Prevention” rather than cure.
We will endeavour to offer early help, support and intervention that ensure people in Bassetlaw do not become homeless or face the possibility of homelessness. We want to eradicate rough sleeping by providing the accommodation and support needed but also to offer a long-term solution to people who often have very complex needs and spiral from one housing crisis to the next. The emphasis will be on prevention and support.
National Direction
The Government is committed to ending rough sleeping by the end of this Parliament (2024) and their manifesto stated “we will end the blight of rough sleeping by the end of the next Parliament (Conservative Manifesto 2019). They have announced plans to spend £2billion to tackle homelessness and rough sleeping over this Parliament - a funding increase of 85% when compared to 2019/20 levels. This direction from Government follows on from the introduction of the Homeless Reduction Act 2017.
The Homeless Reduction Act 2017
The Act came into force in April 2018 and amended the Housing Act 1996 Part 7. In preparing this legislation, the Government looked to address homelessness across the United Kingdom by clearly defining what is expected of Local Authorities, as there was an indication that services such as free advice and support differed greatly from region to region. The Government wanted to deal with this issue and see Local Authorities duty bound to assist those in need regardless of priority or local connection.
The Homeless Reduction Act 2017 extended the provision for ‘threatened with homelessness’ from 28 days to 56 days; granting a much earlier period of assistance and intervention and Local Authorities have a duty to provide advisory assistance, regardless of eligibility.
The legislation was designed to enable Local Authorities to place a greater focus on prevention, so that more people receive help before they reach a crisis, increase early intervention to enable rough sleepers off the streets quickly, and give greater specialist support for entrenched rough sleepers.
The national rough sleeper statistics show that in 2010 there were 1768 compared to 4266 in 2019. This peaked at 4751 in 2017 just prior to the implementation of the Homeless Reduction Act 2017. The latest figures show 3069 are recorded as being homeless, so the impact has not reduced back to 2010 figures, but there is a downward trend that needs to be continued.
Ending Rough Sleeping for Good
In September 2022 the Government (Department for Levelling Up, Housing and Communities - DHLUC) produced its vision and commitment for ending rough sleeping for good.
The document emphasises the need to prevent first and for Local Authorities to fully embed the Homeless Reduction Act 2017 in all its practices. It confirms future funding for single homeless people through the Rough Sleeper Initiative, Night Shelter Transformation Fund, and the Single Homeless Accommodation Programme. It also reiterates the need for all agencies involved in homelessness to have a closer working relationship.
Nationally
By the end of 2022, 75,860 households were assessed as homeless or threatened with homelessness and owed a statutory homelessness duty, up 4.4% from 2021. 99,270 households were in temporary accommodation, which is an increase of 3.9% from 2021. Temporary accommodation figures for households with children increased by 6.0% to 61,820, and single households increased by 0.6% to 37,450.
2022 data from DLUHC confirmed that 52.8% of all applications identified as having one or more support needs. The most common support need was a history of mental health problems, accounting for 26.8%. 18.4% of all households owed a duty, had a support need relating to physical ill health or disability. Other notable groups included those with experience of or at risk of domestic abuse, 12.1%; and those with offending history, 8.6%.
Locally
In 2022/23 Bassetlaw District Council opened 153 homeless applications compared to 288 in 2021/22. 82 of these applications were prevented and the risk of homelessness alleviated compared to 36 in 21/22. This highlights that the prevention and early intervention work being undertaken is having a positive impact. In 2022/23 we placed 167 applicants in temporary accommodation including families with children compared to 154 in 2021/22. Overall, in 2022/23 there were 108 cases that were advice only and closed at first contact.
The end of a private rented tenancy at 49.6% is still the main reason for homeless approaches in Bassetlaw with relationship breakdown the 2nd highest group at 7.7%. Overall Bassetlaw had an average of 3-4 Rough Sleepers in any month throughout 2022/23.
Funding
Over the past few years there has been a commitment by all to eradicate rough sleeping. This has been driven by Government policy and has been supported by funding that has been made available through numerous projects. The Rough Sleeper Accommodation Programme (RSAP) 2021-24 administered by Department for Levelling Up, Housing & Communities amounts to £435million nationally.
Bassetlaw were successful in its bid to secure funding from this project and with match funded have delivered 6 individual flats for independent living supported by dedicated Sustainment Officers. These will accommodate rough sleepers and will be the first step in providing intensive support to try and eradicate the cycle of rough sleeping.
The Rough Sleeper Initiative (RSI) again administered by Department for Housing; Levelling Up & Communities has provided funding to support dedicated intervention through providing extra staff to support in all areas of homelessness amounts to a further £500 million nationally from 2022-2025.
The funding has been shared throughout Nottinghamshire as a joint project and has provided Bassetlaw with a dedicated team hosted by Framework Housing. The Project is co-ordinated in mid-Nottinghamshire and team consists of a Street Outreach Team, Housing Navigators for Prison release and Hospital discharge.
Despite this, we need to continue and build upon all the current work, whilst identifying long term solutions. “A recent poll of Homeless Link members showed that 75% of responding members find short-term funding negatively impacts on the quality of the service they provide, and a further 83% stating that it leads to inconsistent support for people experiencing homelessness”.
Challenges
Over the past few years people have lived through the Covid Pandemic and now face a cost-of-living crisis. Families are reaching out for assistance, with record numbers attending Foodbanks. Local support services are reporting a surge in approaches from all areas of Bassetlaw and have expressed the need for further support to maintain service provision.
This is not confined to people in the private and social housing sector. As energy prices have increased dramatically to an average of £2500 per household per year and interest rates have risen to new heights, homeowners are also reaching out for assistance with many facing the uncertainty of having the financial means to maintain their mortgages. Inflation peaked at 11.1% in February 2023 but is not expected to decrease until the end of 2023. The Office of National Statistics also confirmed that on average, poorer households spend more of their income on essentials. The Resolution Foundation estimates that the inflation rate for the poorest 10% of households is 12.5%, in contrast, it's 9.6% for the richest 10%.
In recent years, changes to the benefit system, that have been described as the most radical for 60 years, are continuing to play a part. One of the most significant being Universal Credit where working-age tenants receive a single monthly payment directly from the Department for Work and Pensions (DWP), including their support for housing costs.
This has continued to cause issues with many failing to pass on the payments to landlords, which has ultimately led to a threat of homelessness.
In addition, there has been a reduction in Housing Benefit for Spare Bedrooms in Social Housing where it has been determined that occupants have more bedrooms than they need. Households under occupying by one bedroom have their Housing Benefit reduced by 14%, for two or more bedrooms the reduction is 25%. There is a concern about the potential ongoing impact on rent arrears and eviction, especially where tenants are trying to meet the benefit shortfall from their own financial resources. The long-term solution is by providing the housing that meets the need of residents.
Local Housing need and supply
The overall housing stock, including home ownership and Registered Provider accommodation has grown in Bassetlaw.
There is currently the highest number of Housing Association properties than previously with 1817 units. However, the number of Council properties available to let has continued to reduce over recent years. With Right to Buy playing a significant part, 190 Council properties have been lost in the past 5 years.
Bassetlaw District Council currently own and manage approx. 6,600 dwellings in council ownership and have 3903 applicants on our waiting list. There has been a dramatic shift in applicants requiring smaller dwellings because of affordability with 1807 applicants registered as requiring a 1-bedroom dwelling, with only 251 requiring 3 or more bedrooms.
In 2021/22 there were 428 council dwellings that became available for letting with only 213 of these available to general needs groups. 215 were available to supported housing groups, including older persons.
Whilst the waiting list for properties remains very high, with demand outstripping supply in all areas of need. Alongside this we have assisted with 61 adaptions for owner occupiers and 15 for private tenants so that people can remain in their current homes. Registered Providers have 1817 Dwellings in Bassetlaw and in 2021/22 the Council made 149 nominations to Registered Providers direct from the Council waiting list to new dwellings.
Rural housing remains a concern with many people requesting town living because of affordability. It has been highlighted by the Rural Services Network that there could be an unreported homeless crisis in this area.
Bassetlaw District Council currently has 17 units of fully furnished temporary accommodation along with 6 independent flats for rough sleepers. This includes a mix of family accommodation, bungalows, and single bedroom units. Demand remains high, with full occupancy at most times. The use of Bed and Breakfast units is also required to house applicants in need.
Finally, the private rented housing sector continues to be an issue as prices have increased dramatically. The average rental value in Bassetlaw is currently £609pcm with landlords also requiring bonds and rent in advance to secure a tenancy. This puts this option out of the reach of many. Alongside this, landlords can be reluctant to consider anyone in receipt of benefits and require references and credit checks, making it almost impossible to re-house anyone who has had any housing issues in the past.
We have seen a large increase in Houses of Multiple Occupation within Bassetlaw in recent years, with 171 licenced dwellings recorded in 2022. This type of ‘shared accommodation’ is often the only affordable option to single people on low incomes but it has shown that it is not ideal.
Bassetlaw currently has a strong supported housing sector offering housing to those in the greatest need. Alongside housing for older people through residential / care homes and independent living units. Women’s Aid, Hope Services, YMCA, NCHA, New Roots and Framework are some of the providers offering specialist housing. Data shows that as a District, alongside the units provided by Bassetlaw District Council we have enough capacity through other providers for our homeless and rough sleeping needs. However, it is also clear that we need to work together to support these services, so these units remain available.
Conclusion
At this time of high cost of living and squeezed resources, Bassetlaw faces challenges in tackling all threats of homelessness and rough sleeping and understanding the reasons behind it. No single issue creates homelessness or rough sleeping, and no single solution will solve it. This Strategy sets out how we are going to approach these challenges, and work to reduce homelessness together by introducing initiatives that produce results for all, so that nobody in Bassetlaw is faced with the threat of homelessness.
It is clear the barriers faced by single homeless people are a contributor for generating homelessness and rough sleeping. Single people are often polarized and left behind by a system that prioritises people in priority need.
It is imperative we implement Priority 1 “Preventing rough sleeping at the earliest opportunity” by identifying individuals at risk through intensive partnership working and lead direct into Priority 2 “Intervention” without delay.
We understand that the threat is not just faced by single homeless people, as one of the main approaches to the Council is because of the loss of private rented accommodation. Priority 2 Intervention at the earliest opportunity will provide the professional support needed at this time, that will endeavour to prevent in all cases.
We fully understand that homelessness and rough sleeping can be traumatising. When required we will work with all involved to implement Priority 3 “Recovery”. This could be through providing interim/temporary housing, specialist housing, addressing poor quality housing, supporting drug and alcohol and mental health service and offer sustainment when required.
A key fact is that as an authority we cannot solve issues alone and require the assistance of all stakeholders. We will implement Priority 4 “A transparent and joined up system of working” that will enable all services to work seamlessly and reduce any delay in assistance. We will collate and share detailed, relevant information with all partners through a joint multi-discipline approach, including a fully working partnership with the voluntary sector and all health partners.
A combination of factors from within the housing market effects the ability to access suitable, stable, safe accommodation for those facing homelessness in Bassetlaw. Single person accommodation is in short supply, high numbers of workers are unable to afford to buy a home and an unwillingness from Landlords to consider tenants who are claiming benefits creates a backlog of applicants requiring housing. High rental values and up-front costs through bonds and rent in advance is challenging for all. By implementing Priority 5 “Assist more people to sustain private rented accommodation” we can face these challenges by providing intensive support, help though bonds and rent in advance, work closer with landlords to reduce the threat of eviction, and improve housing conditions.
Finally, younger people face challenges in the housing sector for multiple reasons. By implementing Priority 6 “Support supported living particularly for young and vulnerable people to live independently we will offer early advice through Schools and College intervention, offer up-to-date data via printed information and digital media, work with all partners to where possible offer supported living and tenancy support to all people under 25.
Ultimately our aim is to prevent homelessness occurring in the first instance, but when this fails, we have the support and expertise in place to provide a professional joined up approach to resolve issues as quickly as possible.
Priority 1: Preventing rough sleeping at the earliest opportunity
How we will deliver the Priority 1 within the Homeless and Rough Sleeping Prevention Strategy.
- Work to increase affordability and security of housing.
- We will ensure that no-one leaves the armed forces or is released from a public institution or prison to the streets.
- Young people leaving care will receive the support they need to secure and maintain suitable accommodation.
- We will continue to operate SWEP in extreme weather.
- Provide advice and assistance to all through housing needs and partnership working.
- Work with Outreach Teams to identify rough sleepers at the earliest opportunity.
- Work pro-actively and in partnership to develop a Financial Inclusion Policy for Bassetlaw. This will seek to reduce debt related homelessness.
Priority 2: Intervention
How we will deliver the Priority 2 within the Homeless and Rough Sleeper Prevention Strategy.
We will.
- We will continue to work extensively with the Outreach Teams and staff employed through the Governments Rough Sleeping Initiative scheme 2022-25
- We will establish a clear pathway for non-UK nationals sleeping rough to make sure those who have restricted eligibility for public funds have a clear pathway off the streets.
- Provide clear contact details for all services and public to receive advice at the earliest opportunity through the Bassetlaw website and printed material.
- Process all Homeless applications quickly and without delay along with providing detailed personalised housing plans for all.
- Have clear policies and pathways for integrated working with all stakeholders.
- Have quick and easy processes to enable applicants to be placed on the housing register.
Priority 3: Recovery
How we will deliver the Priority 3 within the Homeless and Rough Sleeping Prevention Strategy.
- We will support all housing-led approaches and encourage more specialist homes to be available for those experiencing rough sleeping.
- We will investigate and address unacceptable poor quality supported housing.
- We will improve the support available to help people with experience of rough sleeping into training and employment.
- We will support through partnership working all drug, alcohol, and mental health services to support people experiencing rough sleeping.
- Ensure all eligible applicants have access to emergency accommodation.
- Work with partners to establish greater numbers of emergency, supported accommodation.
- Provide ongoing support for clients through sustainability to prevent re-occurring homelessness.
Priority 4: Transparent and joined up system of working
How we will deliver the Priority 4 within the Homeless and Rough Sleeping Prevention Strategy.
- We will ensure robust accountability structures are in place.
- We will improve our evidence-base of what works to end rough sleeping.
- We will support the voluntary, community and faith sector to play their part.
- We will improve how different services work together for people sleeping rough, particularly bringing together housing & healthcare.
Priority 5: Assist more people to sustain private rented accommodation
How we will deliver the Priority 5 within the Homeless and Rough Sleeping Prevention Strategy
- Offer bond & rent in advance options to secure sustainable accommodation for homeless applicants.
- Build a database of preferred Landlords to work with homeless applicants and offer support around affordability and Government legislation.
- Offer tenancy support to newly housed private rented tenants for the first 3 months of the tenancy to assist sustainment.
- Work closely with Environmental Health to assess and improve property standards in the private rented sector and reduce empty homes.
- Maintain a Landlord Forum to allow the sharing of information with the private rented sector.
Priority 6: Support supported living particularly for young and vulnerable people to live independently
How we will deliver the Priority 6 within the Homeless and Rough Sleeping Prevention Strategy
- Develop a ‘Homeless Prevention Information Pack’ aimed at the under 25 age group and provide advice in Schools and colleges.
- Offer mediation within families to sustain accommodation wherever possible.
- Offer tenancy support to homeless applicants under the age of 25.
- Ensure people living in rural communities have equal access to housing & homeless services.
- Investigate a partnership approach in the provision of accommodation for young people with support needs.
The Homeless and Rough Sleeping Prevention Strategy will be monitored and reviewed on a quarterly basis via the Strategy Working Group to ensure delivery against the key priorities.
Bassetlaw District Council will work with all appropriate partners in the delivery of the Homeless and Rough Sleeping Prevention Strategy; this will include Public Bodies, Housing Providers, Charitable Organisations, Voluntary Organisations, and other Local Authorities. An exhaustive list has not been produced to avoid exclusion.
Appendix 1: Delivery Plan – Homeless and Rough Sleeping Prevention Strategy (2023 -2028)
How we will deliver the key priorities:
| Priority | Actions |
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Priority 1: Preventing rough sleeping at the earliest opportunity. We all understand that prevention is the best way to eliminated homelessness. By preventing at the earliest opportunity, we can eliminate many of the related issues that accompany homelessness. |
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Priority 2: Intervention We understand that by intervening at the earliest opportunity we can make the process more efficient and less intrusive for all homeless applicants. |
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Priority 3: Recovery. We understand that the trauma of homelessness can be reduced if the recovery process is improved and supported.
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Priority 4: Transparent and Joined system of working. We will improve our systems and ways of working to provide a more robust, streamlined approach that is both accountable and evidence based. |
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Priority 5: Assist more people to sustain private rented accommodation. The Private rented sector is facing unparalleled challenges. We will increase our focus on the sector and work to make it more robust and available. |
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Priority 6: Support supported living for young and vulnerable people to live independently. We will secure the accommodation required by maintaining up-to-date demand data and provide the support required to maintain this. |
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Last Updated on Wednesday, December 31, 2025