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Baroness Warwick of Undercliffe
To ask His Majesty’s Government what assessment they have made of the case for providing more supported housing, given its impact on homelessness prevention, health and well-being.
Baroness Warwick of Undercliffe (Lab)
My Lords, I have no interests to declare as I recently stepped down as chair of the National Housing Federation. In that role, I was fortunate to visit a large number of supported housing providers and was incredibly impressed by their work. The tragedy is that there is not enough of it. When I think of what can be achieved for those who benefit from supported housing and the savings to the public purse, it is heartbreaking that we do not do more.
A definition might be helpful. Supported housing is accommodation provided alongside support and supervision to help people live as independently as possible in the community. It might be a shared house for people with learning disabilities, a hostel for people who have experienced homelessness or specialist housing for people transitioning out of psychiatric care. Housing associations are the main providers, with more than 400,000 of these homes.
I feel so passionate about this because I have seen that good-quality, suitable supported housing can have significant positive—indeed, life-changing—outcomes for the people it supports. Research has shown that it also plays a key role in relieving pressures on the NHS and social care, criminal justice and housing systems, saving the public purse around £940 per resident per year. I will say a bit more about this, look at some of the challenges facing this service and highlight some potential solutions that I hope the Minister can respond to.
Earlier this month, research was published by Imogen Blood & Associates in partnership with the Centre for Housing Policy at the University of York. It was commissioned by the National Housing Federation and a number of housing associations to understand better the ways in which supported housing supports and interacts with the NHS, social care, the justice system and other public services and its impact on homelessness, health and well-being. Significantly, the research found that good-quality supported housing is shown to aid its residents in building healthy relationships, higher esteem and independence and in developing a greater sense of agency over their lives. It shines a light on how supported housing relieves pressures on the social care, health, criminal justice and housing sectors, ultimately lessening demands on the public purse.
The complexity of need of those living in supported housing is striking. It offers a more person-centred package that can offer greater safety or security than mainstream housing, because multiple needs can most effectively be met as part of a combined housing and support package. The report’s survey of service users found clear evidence to back up this approach; 84% of respondents who had at least five identified needs had made some progress during their stay in supported housing.
The impact of supported housing on homelessness prevention cannot be overlooked. Short-term and transitional supported housing plays a key role in reducing and preventing high-risk forms of homelessness. In 2019-20, housing associations housed more than 57,000 former homeless households, nearly 35,000 of which had been found to be statutorily homeless. Of course, as people benefit, they can move on to independent tenancies, but often that is not possible and they have to stay longer than necessary because there is no affordable and suitable housing. In her response, I hope the Minister will say something about this wider problem facing the country.
The research is also clear that supported housing makes a substantial contribution in helping residents to access primary care and specialist treatment and diagnosis from partner services to maintain their health and well-being. One in four residents across all types of schemes has a physical or sensory disability or a limiting long-term health condition. Effective partnership working with the NHS and social services is therefore critical. Supported housing enables hard-to-reach individuals to access timely preventive healthcare, reducing avoidable emergencies and admissions.
This point was amply demonstrated by the Adult Social Care Committee in its recent report on the state of the adult social care system in England. It called for
“a fundamental rethinking of how we understand, approach and design social care”,
including
“the solutions offered by accessible and inclusive housing”.
I am a member of the committee, so excellently chaired by my noble friend Lady Andrews. Our report sets out what we think needs to change to make this possible—
“to enable every citizen to live a ‘gloriously ordinary life’, regardless of their age or disability.”
Indeed, it is being debated today in the Chamber as we speak. I hope we will have the Government’s response soon.
It will be obvious by now that there are challenges. Despite its significant benefits to the NHS, social care, criminal justice, and housing systems, supported housing is hindered by a lack of government investment and focus. Supported housing in the social rented sector operates on very tight margins and inflationary pressures are pushing up the cost of all aspects of managing schemes.
One of the biggest challenges facing supported housing has been the reduction in funding over time. This is amplified by cuts right across the public sector, especially for local authorities. Inevitably, rationing has followed, with social care resources concentrated on the highest-need individuals. A procurement-driven, contractual relationship between local authorities and the supported housing sector has led to a lack of long-term security for providers. In the absence of a national strategy and a secure funding stream, a shift towards localism has led to a fragmented approach. As local authority spending on housing-related support has reduced over the past decade, there has been an increase in non-commissioned provision. Profit-seeking landlords have been able to exploit this part of the market by providing dangerously inadequate housing and support services for vulnerable people.
The noble Lord, Lord Best, who I am delighted has chosen to speak in this debate, will bring forward the Supported Housing (Regulatory Oversight) Bill for its Second Reading after the Easter Recess. I strongly support this legislation’s intention to drive rogue landlords out of the supported housing market. However, alongside improved regulation must also come greater security of funding for good providers so that rogue operators cannot exploit this unmet housing need.
I will conclude by touching on some of the potential solutions to the challenges facing supported housing. In their 2021 White Paper, People at the Heart of Care, the Government made a welcome commitment to make
“every decision about care a decision about housing.”
To turn this commitment into a reality, supported housing must play a critical and enhanced role. First, this could be achieved through substantial investment in social housing to improve the short-term supported housing sector’s ability to move people into suitable independent tenancies. I would be grateful if the Minister could set out what the Government are doing to deliver this much-needed social housing.
The Government could also ring-fence the long-term revenue funding for housing-related support to ensure that spending matches, at the very least, the £1.6 billion per year allocated in 2010. Revenue funding for support would help local authorities to commission more effective and better-quality supported housing, as rogue landlords are driven out of this market. What assessment has the Minister made of current levels of revenue funding for support and its impact on supported housing providers?
Gathering better data about the profile and needs of people living in support housing would allow providers, local authorities and central government to deliver better policy solutions for vulnerable and marginalised groups. Does the Minister agree that there is a clear need to improve data and information about the supported housing sector?
Finally, the Government could secure a quick win by allocating the £300 million committed in the Department of Health and Social Care’s strategic housing fund, so that supported housing can continue to support the NHS and social care services. Can the Minister tell us if, and when, this will be done?
Lord Young of Cookham (Con)
My Lords, we are grateful to the noble Baroness for initiating this debate, which complements the one taking place in the Chamber. We are also grateful to her for raising the concerns of many housing associations and their clients, who come under the broad umbrella of “supported housing”. Many of these groups are vulnerable: they are rough sleepers, refugees, young offenders and those recovering from alcohol and drug issues.
I remember going to visit, nearly 50 years ago, the first women’s refuge in Chiswick, run by the formidable Erin Pizzey. I listened to the problems that confronted her: it was not just that the local residents were not entirely happy about the refuge but that Hounslow council was trying to close the operation. Principally, she had to juggle a range of revenue streams simply to keep the show on the road.
Since then, we have had a whole variety of funding regimes. In the consultative Funding Supported Housing policy statement, the funding regimes were summed up with some beautiful Civil Service-speak:
“Funding for supported housing is complex and comes from a variety of sources, with ‘housing’ costs and ‘support’ costs being met separately.”
I pause there because none of the institutions from which some of the residents have come—young offender institutions, prison or NHS in-patient support for drug addiction—has to grapple with separate funding regimes. Indeed, those running them would be horrified if they had to do what the voluntary sector has to do and run the organisation using a whole range of streams.
In my view, the most successful regime was the supporting people regime, introduced in 2003, with £1.8 billion ring-fenced for local authorities to support people who wanted to live independently. Since then, we have progressively moved away from that regime. In 2009, the ring-fence was removed, despite warnings from the Select Committee down the other end that this would expose “electorally unpopular” groups. Once the ring-fence was removed, the institutions and support organisations had to compete with more electorally popular bids for local authority funds.
We have now arrived at the position that the noble Baroness explained, where exempt housing benefit meets the management costs of these projectsand the top-up for the extra support comes from the local authorities. Both those legs are subject to criticism. As the noble Baroness explained, the top-up has been progressively squeezed, with the pressure on local authorities leaving no support for the one-to-one help that is often needed for these clients and with the exempt housing benefit being exploited, as was explained. The noble Lord, Lord Best, may talk a little more about the less scrupulous providers, who come to the local authority armed with lawyers to argue their case. If care is provided in some of those institutions, it comes out of the universal credit of the person claiming, not out of the other resources.
The basic question for the Minister is: is she satisfied with the current regime and how it is working? If not, is she prepared to look at options for reform? There is some concern, which we heard, that where we are at the moment is not the optimum way of running supported housing.
Lord Best (CB)
My Lords, I thank the noble Baroness, Lady Warwick, for initiating this debate and I am delighted to follow the noble Lord, Lord Young of Cookham. I declare a strong interest in the debate as the sponsor in the Lords of the Supported Housing (Regulatory Oversight) Bill, the Private Member’s Bill from Bob Blackman MP, which has cleared its House of Commons stages and comes to your Lordships’ House with the backing of government next month.
The supported housing story is one of two halves: first, the story of supported housing brilliantly provided for very vulnerable and homeless people by highly effective and sensitive teams from housing associations and charities; and, secondly, the story of the ghastly, so-called “supported” housing, exploited by some unscrupulous private operators. These two extremes require contrasting responses: first, a significant boost to the wonderful work being done by some exemplary non-profit and charitable bodies; and, secondly, some fierce regulation, diligently enforced, to rid the country of appalling private providers abusing the system to make substantial, undeserved profits at the expense of both the taxpayer and people in desperate need of somewhere to live.
The National Housing Federation and the reputable providers have given strong support for weeding out the private operators who have discovered a loophole enabling rents to be paid by housing benefit, often for overcrowded and substandard properties, without regard to the local housing allowance ceilings, by claiming untruthfully to supply proper care and support. One MP in the debate on Bob Blackman’s Bill suggested that returns on this investment are more profitable than dealing drugs. Mostly the activity is not commissioned by the local authority, but councils have been forced to make use of these lettings by a shortage of genuine supported housing. It is clear that a robust regulatory regime is overdue and the forthcoming Bill is intended to put this right.
Nevertheless, I see the danger that much-needed regulatory measures, if handled without sufficient care, could make life more difficult for commendable providers. This comes at a time when we need the proper provision of supported housing to be boosted following loss of funding from the old supporting people grants, to which the noble Lord, Lord Young, referred, and while the freeze on local housing allowances means that the option of normal private renting is increasingly unattainable. The worst possible outcome from new regulation would be to deter action by the bona fide organisations by adding excess cost or bureaucracy. Already there are anxieties that this vital sector has been diminished by cost pressures over recent years and its insecure and inadequate funding means that any deterrent to continuing to provide good supported housing could be disastrous. We absolutely must not throw out the baby with the bathwater.
The forthcoming Bill does not rigidly prescribe the new regulatory system but rather enables this to emerge from consultation with an expert new advisory panel. I hope that this approach will ensure that a licensing regime emerges with national standards that can end the abuses while enabling growth in this Cinderella sector to produce more of the superb supported housing projects that are clearly so badly needed.
The Lord Bishop of Leicester
My Lords, I am grateful to the noble Baroness for securing this debate and bringing to the Committee’s attention the excellent report by Imogen Blood and the University of York for the National Housing Federation.
I would like to use this opportunity to highlight in particular the work of one organisation in Leicester, with which I have had the privilege of working. I will highlight some of the points made in the aforementioned report and also in Homeful, a report by Professor Jo Richardson of De Montfort University in Leicester.
For several years, One Roof Leicester operated a night shelter, providing emergency accommodation for those who would otherwise be sleeping rough. Indeed, it was credited as running the first interfaith night shelter in the UK; for three months, it rotated between multiple places of worship. It then began to offer supported housing for people experiencing homelessness, and the outcomes have been so positive that it has now moved over fully to that model.
As the Housing First approach suggests, once people have a safe and secure place to call home, they are in a much better position to engage with support services. But to also help residents navigate the complexity of the various different agencies and services that they might need, each One Roof Leicester resident has a key worker who helps them access benefits, housing, employment or training, and health services. Residents are also supported by local volunteers, who offer befriending and practical help. This means that residents feel they have a community where they belong, as a well as a physical home.
All of this makes it possible for residents to get back on their feet and live independently. Between 2020 and 2022, 32 of One Roof’s residents successfully moved into their own accommodation, and 100% of them have been able to maintain their tenancy. Those numbers would be higher if it were not for the shortage of social housing, as the National Housing Federation report highlights. Years-long waits for council-owned properties and the impossibly high cost of privately rented accommodation mean that residents stay with One Roof longer than they need. That, in turn, means that people whose lives could be changed by that one-to-one support have been turned away. Just last Monday, three people looking for a space with One Roof were turned away; it is clear that the need is great.
We are doing what we can in my diocese. I have the honour of chairing the city’s homelessness charter, which brings together agencies, charities and businesses with an interest in ending homelessness so that they can work together more effectively. A couple of our churches in Leicester are also making plans to build or convert accommodation for people who would otherwise be homeless. But there are limits to what the charity, voluntary and faith sector can do without government support.
The Government are in a position to increase the social housing stock with capital investment and by ensuring that new developments dedicate at least 10% of the stock to affordable housing. By creating a ready supply of housing for people to move into from supported accommodation, that sector can achieve transformational outcomes for more and more people. The Government can also make joined-up working par for the course at local level through strategic use of their funding. The disadvantages and challenges that our most vulnerable citizens face rarely sit neatly within disciplinary silos, so it is vital that housing, justice, health and social care work together effectively, ideally following a Housing First approach.
It is fiscally sensible to invest more into social housing and supported accommodation. The Everybody In campaign of 2020 showed the strides that we can take against homelessness when there is the will and resource. Knowing that we can do better for our most vulnerable citizens, it is morally imperative that we do so.
Earl Effingham (Con)
My Lords, I thank the noble Baroness, Lady Warwick of Undercliffe, for proposing this debate. I am sure that everyone in this Room would agree that we should do everything in our power to ensure that people living in this country have a roof over their heads as a bare minimum.
The Government are trying to put an end to rough sleeping by the end of this Parliament, and this is a goal we should all be aiming for. One of the key ways we can achieve this goal is with supported housing, which provides crucial help to some of the most vulnerable people in our country. It can have an enormous positive impact on an individual’s quality of life, from their physical and mental health to the way they interact with everyone they encounter on a daily basis. We could actually say that good-quality and suitable supported housing saves lives. If individuals are able to access this, it protects them from rough sleeping and keeps them off the streets. This reduces their chances of ending up in hospital, undertaking criminal activity or using social services, which in turn helps to reduce the pressure on that type of support for others who are also in need.
Achieving such a system which works has multiple positive knock-on effects. Research shows that, every year, around 50,000 people are moved on to live independently from transitional supported housing. Around half of those people will have had a previous history of homelessness. We owe it to them to give them another chance of independence and a helping hand.
Supported housing provides the kinds of additional services that people in need acutely require. It can act as a one-stop shop to greatly help individuals move onwards and upwards with their lives. It links them up with their local GP. It helps them attend health appointments more consistently. It helps them engage professional help, whether for mental or physical conditions, and it helps them apply for benefits. In short, it gives them the kind of support that they desperately need to get their lives back on track and the kind of support they may never have previously experienced due to their circumstances.
Aside from the basic premise of an individual’s right to have a roof over their head, supported housing creates an environment where people can experience joy and fulfilment. How many of us take pleasure in preparing a meal for family and friends, enjoyed around a table where conversation flows and relationships blossom? That is exactly the kind of caring environment people experiencing homelessness should benefit from, and it is one that supported housing can provide.
Once the essentials have been covered, supported housing can help with what for many is the ultimate goal: help with job applications, which will enable them to stand on their own two feet, feel a sense of achievement and be able to live in their own accommodation one day and enjoy a happy and fulfilling life.
The community benefits speak for themselves, but from a financial perspective it also makes sense because of the additional cost it takes away from the state through reduced pressure on services. As we currently experience the cost of living crisis, supported housing plays an even more important role than before in helping people who are struggling and in need of assistance.
If the Government can commit to providing adequate funding for the sector, this will maintain the current level of support and will allow the development of new schemes which are needed to meet growing demand. I hope that, together, we can work to ensure that this hugely important area receives the focus and attention it deserves.
Baroness Uddin (Non-Afl)
My Lords, it is a privilege to follow the noble Earl and I thank my noble friend for her leadership in this debate.
Homelessness is not just about people sleeping rough on the streets. The lack of affordable, quality homes means that families and individuals endure poor-quality, privately managed, often cramped and unsanitary accommodation. For people with physical disabilities, there is often dangerously inadequate and unfit housing which is not sufficiently monitored, causing untold strain on their mental health and physical well-being.
I speak from two perspectives. The first is experience of leadership in a local authority and managing a housing association which provides an excellent quality of accommodation. The other is recently supporting a vulnerable adult on a journey through the maze of supported living.
If the system works well and a person is discharged into good-quality provision, it can be transformative, as noble Lords with far more expertise than I have said, with life-changing outcomes, an impact on individuals’ health and well-being and a reconnection to social interaction in the community—even a transition to independence.
While those are ideals, it is not the experience of many whom I have come across during the past 18 months, whether the supported accommodation is run by an independent residential care home or by a private landlord contracted to a local authority with a portfolio of housing that is often poorly, and sometimes wholly dangerously, adapted and managed. Frankly, I do not know how such accommodation has passed the inspection standards to meet the statutory duty of care.
Many individuals are stuck with desperate needs, with local health and social services simply overwhelmed because of a lack of funding, social workers, occupational therapists and other professionals, without whom many remain unnecessarily in extremely costly residential care homes. For example, lack of co-ordination between services in Medway meant that an individual who had recently had an amputation, and following positive rehabilitation in London, was placed back in Medway in costly yet wholly unfit accommodation where he was not able to properly access the toilet or shower facilities for three months, scraping his hands every time he tried to access his bedroom when leaving his kitchen or toilet.
This young man experienced 17 falls in three months trying to access the toilet over a very unsatisfactory ramp and without the promised level of local authority support, which the local authority was supposed to be paying for. As a result, he ended up in hospital for a further six months. Harrowingly, he then went back to a residential home for another very expensive batch of rehabilitation. It is a vicious circle: a process in which an individual in desperate need is not able to effect or influence change.
Due to a reduction in funding packages for supported housing, many residents are transitioning directly from a residential home or hospital into somewhere not fit for human habitation, let alone for people with complex physical needs, where local authorities are constrained with funds and have to work within the boundaries of the housing benefit cap.
I ask the Minister what consideration has been given to people accessing the good-quality homes that are often lying empty in an area when the same authorities are forced to pay thousands to residential homes and charlatan landlords who profit from their misery. It is not compassion we should talk about today but statutory duty of care and the obligatory standards we would set for ourselves.
Baroness Thornhill (LD)
My Lords, I am delighted to have the opportunity to speak in this debate, introduced by the noble Baroness, Lady Warwick of Undercliffe. Her excellent opening speech, as well as the short but on-the-button contributions from other noble Lords, have really laid bare the fact that this is indeed a very complex, multifaceted area, and we have a long way to go.
I hope the Committee will forgive me if I spend my four minutes taking a slightly different angle. My very first experience of supported housing came when I was standing for election for the first time back in the early 1990s. Some noble Lords will remember that this was the era that saw the start of care in the community.
A housing association had bought a pair of semis in my road and was turning them into supported housing for adults with learning difficulties. I was shocked and disappointed to find that some of my neighbours had decided “We don’t want that sort of people here”. They were banging on my door telling me that if I wanted their vote, I had to get it stopped. There were very nasty public meetings. The council stood its ground and granted the planning permission, and I lost the election.
However, I learned a very valuable lesson. People in my parents’ generation had been used to “that sort of people” being locked up in Victorian gothic institutions and they had massively entrenched views about the worth of such citizens and where they should live.
I am pleased to say that the residents moved in and one of the first things they did was to invite the neighbours to a barbecue. A good time was had by all and it was the start of a positive relationship with the home.
Would it not be good if I could say that that attitude has long gone? But it has not. Throughout my 16 years as mayor, some of the most acrimonious meetings were about the following: a drug rehabilitation clinic, a homeless shelter, accommodation for ex-prisoners and a women’s refuge. Yes, decent, civilised and, one might say, respectable middle-class people were screeching, shouting, swearing and baying for blood like film extras in a medieval hanging scene. Each meeting is etched in my memory.
I am left wondering whether this is at the heart of why vulnerable people across a wide spectrum of needs are very much the forgotten of the housing world. Think Grenfell Tower—they certainly felt forgotten; not seen and not heard.
It is clear from numerous reports and research that things are far from well in this part of the housing world, as articulated by noble Lords. There are many questions, but the one that struck me forcibly in those early days was: why should every local authority not have to provide for these vulnerable groups? Clearly, some opt out and find different ways to do so, particularly in two-tier areas where the upper tier has the duty to advise, support and provide the strategy, but the district council is not always obligated to work with this and provide accommodation in their local plan, so—guess what—some do not provide it. Guess why. It is because the attitude of, “We don’t want those sorts of people in our area” is still alive and well, often disguised as, “There’s no need for this here. We don’t have those sorts of problems”.
Is this why unscrupulous people feel that they can exploit and abuse such people? Who is checking up on them? Who gives a damn? The accounts given to the DLUHC committee last year made for difficult reading but did not surprise me. If some of our residents are regarded by some as the flotsam and jetsam of society, does that not make it easier to ignore them, at best, and, at worst, to assault and rob them? I hope the Minister will be able to tell us that quick wins will be had, loopholes will be changed and plans for long-term change are, at least, on the table. Finally, I am sure that she has got the message about the need for social housing. I apologise for going over time.
Baroness Taylor of Stevenage (Lab)
My Lords, I too thank my noble friend Lady Warwick of Undercliffe for securing this important debate, and all noble Lords who have participated. I also thank the Royal College of Psychiatrists, the National Housing Federation and Shelter for their exceptionally helpful briefings, and, of course, our brilliant Library, which, as ever, has provided us with a comprehensive, relevant and balanced briefing.
Many of us in local government care passionately about supported housing and genuinely understand the importance of having safe, secure and stable accommodation accompanied by support tailored to individual needs. However, we often feel that we have been trying to deliver this for years with both hands tied behind our backs. We make the case over and again that, for vulnerable groups such as older people, those with learning or physical disabilities, families at risk—including the homeless—those who have been in the criminal justice system, people with complex needs that may include drug or alcohol dependency, those with poor mental health and those fleeing domestic abuse, a safe, secure and affordable home is the starting point for supporting their other needs.
We should also take note of the overwhelming evidence that providing these groups quickly with the housing and other support they need has the potential to save the public purse billions, as it prevents more expensive interventions having to be used, as comprehensively outlined by my noble friend Lady Warwick, the noble Earl, Lord Effingham, and other noble Lords.
It is fair to say that there are some fantastic examples of just what can be achieved all over the country, and it is to the enormous credit of local government that it has delivered some of these innovations in spite of the truly unprecedented cuts in local government funding and unfunded inflation experienced in recent years. The problem now is that we see a patchwork approach to this instead of what we want to see, which is excellence delivered everywhere.
I will give a couple of examples from Stevenage, which I know best, but there are great examples all over the country, including the one that the right reverend Prelate the Bishop of Leicester kindly outlined about One Roof Leicester. We are developing new residential accommodation for older people, based on their ambitions and aspirations articulated during our consultation process. Sheltered housing will be located alongside extra care facilities so that people do not lose their community connections, neighbours, shops, faith groups and so on when they need more support. There will be on-site provision of health, podiatry, chiropody, hairdressing and so on—all available for them.
Our “No More” service started as a support project to help those with complex needs sustain tenancies, providing one-to-one support from a caseworker. Following the pandemic, it extended to incorporate a new range of housing under our housing first project. Using a combination of modern-method-of-construction buildings, new builds and regenerated homes, we are making sure that people have a roof over their heads and are supported by a package we have negotiated with the adult care team at the county council.
Lastly, for domestic abuse victims, we have our safe space accommodation. The noble Lord, Lord Young, clearly articulated the need for this, and kindly referred to the supporting people funding programme, which provides fully equipped homes for abuse victims and their families which have everything they need, even if they flee with nothing but the clothes they stand up in. They receive support from our team and initially occupy under licence but, in some cases, we are able to convert to a permanent tenancy if that proves in the interest of the victim.
However, there remain structural, financial and, occasionally, legal challenges to making the best provision for those who need supported housing. With support provision being under the remit of adult care and the NHS, as well as voluntary and community sector providers, and housing sitting with the district council, this becomes very complicated in two-tier areas and, I suspect, not much less complicated in areas with unitary government. The National Housing Federation reports that nine out of 10 supported housing residents have complex needs and at least one health condition or disability; half of them have more than one of these conditions.
Financing is always a challenge. With housing authorities still facing considerable difficulties, with receipts taken from right to buy by government and rent levels capped, it takes herculean efforts to fund the innovation we need to see in supported housing. Does the Minister have any idea what further steps the Government can take for financial incentives to deliver supported housing?
We had a useful, thoughtful and helpful debate in Committee of the Levelling-up and Regeneration Bill about what the noble Baroness, Lady Thornhill, described as a challenging planning environment. In response to a question in your Lordships’ Chamber this morning, the Minister indicated that she would be open to amendments to LURB to encourage supported housing provision. We would be interested whether she has any further thoughts on that this afternoon.
I will conclude—I could go on about this all day but will try not to. We know that there is an unmet need for supported housing, alongside all the other community aspects that can improve physical health and well-being. Sadly, the important role of all of these in public mental health is under great pressure following years of austerity cuts, as outlined by many noble Lords. We believe that this is short-sighted and only puts far more cost pressure on acute services. Let us pick up the innovation already under way in local government so that everyone who needs it has the supported housing provision best suited to their needs, leading to, as the right reverend Prelate the Bishop of Leicester mentioned, the transformational outcomes that we all want to see.
The Parliamentary Under-Secretary of State, Department for Levelling Up, Housing & Communities (Baroness Scott of Bybrook) (Con)
My Lords, I am very conscious that I do not have an awful lot of time. I will get through as much as I can and, if I do not answer everything, I will write to noble Lords.
I thank the noble Baroness, Lady Warwick of Undercliffe, for securing in such a timely manner this important debate on supported housing and its impact on homelessness prevention, health and well-being. I also thank all noble Lords for their considered and insightful contributions. I have a personal interest in this sector. My daughter, Sarah, who has been physically handicapped from birth, has just moved into wonderful supported housing in Winchester. It has transformed her life. She thought that she could not continue to be independent, but she is and has that support. However, noble Lords are absolutely right that funding for supported housing is more difficult and can be more expensive for people. We must consider this; as the noble Baroness, Lady Taylor of Stevenage, said, there are good facilities but there are also some bad ones.
The reach of supported housing is wide, providing vital support for many people to live independently. These include older people, people experiencing homelessness, people with disabilities and those with mental ill health. There are many good providers, but there are others that we need to deal with.
The Government see supported housing as key to the delivery of successful outcomes in areas of utmost importance, including rough sleeping, domestic abuse, and adult social care, as we have heard. Not least through the Supported Housing (Regulatory Oversight) Bill, the Government are committed to ensuring that there is supported housing for those people not just in numbers but of good quality into the future. We are hearing horror stories about what is happening in the sector.
I am grateful to the National Housing Federation for commissioning its important research on the impact of supported housing on homelessness prevention, health and well-being. Its key findings include the finding that, were it not for supported housing, there would be an increase in homelessness and more need for in-patient care and prison places. The research also highlights the importance of pathways from supported housing, as we heard, and the difficulties that may be experienced by some people when moving on—there was a lot of talk about moving on, which is an important issue.
As I said, the Government are very aware of having enough accommodation for people, not only supported housing but accommodation afterwards. That is why two things are happening: there is £11.5 billion in the affordable homes programme, which includes a necessity for local authorities to look at housing for older, disabled and vulnerable people in their areas. Our planning rules, which will be strengthened through the LUR Bill, mean that, in councils’ local plans, they must consider the needs of these people, which is perhaps an important change in attitude.
Socially rented homes often serve the needs of the most vulnerable in society, and, as I said, the Government recognised this in the levelling-up White Paper. We want people who need help to live independently to be able to access supported housing, but, where possible, they should also be able to move forward with their lives and into general housing in a timely way.
There is evidence that the demand for supported housing is growing, particularly among certain cohorts. Research by the London School of Economics in 2017 projected that, by 2030, the amount of supported housing needed in England for older people and people with learning disabilities would increase by 35% and 55%, respectively—that is a big increase. However, national data is outdated and needs to be improved, which is why the department has commissioned research to provide an up-to-date estimate of the size, cost and demand of the supported housing sector. The findings are expected to be published at the end of this year, and they will be important in further policy development in this sector.
In the longer term, and subject to Royal Assent, strategic planning and licensing measures in the Supported Housing (Regulatory Oversight) Bill—which the noble Lord, Lord Best, will ably lead through the House—will enable further opportunities for data collection to support national and local decision-making on supported housing. Taken together, these steps will build a better national picture of the need for, and supply of, supported housing into the future, as I said.
The Government encourage new supply of supported housing through capital subsidy—I mentioned the £11.5 billion affordable homes programme—alongside the Department of Health and Social Care investment in supported housing through the care and support specialised housing fund. But, as noble Lords said, we know that supported housing is more than the bricks and mortar of a building; it is about the critical support services that come along with the home, to enable people to live independently.
Funding for housing-related local support services is through the wider local government settlement. This will perhaps be difficult for anyone in local government to take into account, because they are under so many pressures, but local government got £59.7 billion in England this year, and much of that was for use in adult social care.
But the integrated care systems coming together in areas are also key to this, because that is where we can look at the joined-up health and care services—the council working with the health community—to see where we can keep independence. I have to say that it is also probably where we can look to save money locally, or at least get more service than is currently there, by keeping people independent in really good accommodation, such as supported housing. So that is an opportunity to have those conversations locally in integrated care partnerships.
Supported housing is, and will continue to be, an integral part of achieving the Government’s manifesto commitment to end rough sleeping by the end of this Parliament. However, as I have said, we do not care just about the amount but about the quality. That is why the Government are backing the Supported Housing (Regulatory Oversight) Bill from the noble Lord, Lord Best. We look forward to its Second Reading on 21 April. The Government will support it wholeheartedly.
I just make it clear to the noble Baroness, Lady Uddin, that care homes are separately regulated under the CQC. They are not supported housing, but some forms of housing with care—such as extra care or supported living—are. It is quite a complex issue and it is important that we understand that. That is why the Bill from the noble Lord, Lord Best, is so important: it covers the regulatory bit of the supported housing that the CQC provides at the moment in care homes.
The noble Baroness, Lady Thornhill, talked about poor housing that is not fit for purpose. Again, I ask that we make time for the Bill from the noble Lord, Lord Best, because that is an important part of taking that forward.
We have talked about moving-on accommodation; I think that I have covered everything that noble Lords have asked, but I will go through Hansard. We recognise the benefits of supported housing and what it can deliver for not only residents but wider society. The Government are committed to ensuring that supported housing is available and provides good-quality support—quality is important—and accommodation for all those in our communities who need it.
Baroness Taylor of Stevenage (Lab)
Before the noble Baroness sits down, may I raise a point about the funding that has gone to upper-tier authorities in two-tier areas for adult social care? There is no requirement for those authorities to passport any of that to the housing authority, which is a really big issue. We can deliver what we can with the funding that we have in district authorities, but there is no requirement on those other authorities to pass that funding on. That is something that the Government may want to think about.
Baroness Scott of Bybrook (Con)
I take that into account; I will look at it and come back to the noble Baroness.
Baroness Uddin (Non-Afl)
Also just before the noble Baroness sits down, as a former social worker, I understand the differences very well. The point that I was trying to make—perhaps in a rush—is that there is a transition from residential healthcare via social services. Local authorities have some responsibility for ensuring that people are placed properly.