Temporary Accommodation

Siobhain McDonagh Excerpts

Tuesday 7th November 2017 Commons Chamber

[Siobhain McDonagh (Mitcham and Morden) (Lab)]

I beg to move,

That this House notes with concern the increased use by local authorities of temporary accommodation for 77,240 homeless families in priority need, including 120,540 children or expected children; further notes more than a quarter of those households have been placed in temporary accommodation in a different local government area; further notes the draft consultation on a homelessness code of guidance for local authorities; is aware of the pressure on local authorities and the increasing demands that they face; and calls on the Government to provide a framework for monitoring and enforcement to ensure the appropriate level of quality and location of temporary accommodation, to require that local authorities appoint a designated officer for homeless families in their area and to ensure that homeless families have appropriate contact with health, education and social services when they are in temporary accommodation.

I thank the Backbench Business Committee for granting today’s debate on such an incredibly important issue.

Madam Deputy Speaker,

“Our housing market is broken.”—[Official Report, 7 February 2017; Vol. 621, c. 229.]

That was the damning verdict of the Secretary of State for Communities and Local Government earlier this year. The 9,712 residents on the housing register where my constituency is based, in the London borough of Merton, would absolutely agree with him. Perhaps the most visible indication of the broken housing market are the thousands of people sleeping on our streets, but the homelessness crisis facing this country is far greater than that. It is also hidden—hidden in hostels, hidden in bed and breakfasts, and hidden at the heart of an industrial estate. If a homeless applicant has nowhere to stay and is in priority need, their local authority has a duty to ensure that immediate temporary accommodation is made available. That is the reality for 78,180 households across the country, where 120,170 children do not have a permanent home. That staggering figure is rising fast.

[Frank Field (Birkenhead) (Lab)]

I am grateful to my hon. Friend for securing this debate and for giving way. Does she accept that, through universal credit, we have a state recruiter of people who will be homeless? We know that more people will be hungry. The Government are not collecting any figures on that or on homelessness, which is the theme of her debate. Is that not a shameful reflection of the Government’s concern?

[Siobhain McDonagh]

I agree with my right hon. Friend and thank him for all his work over the decades for the most forgotten in our society. The truth is that universal credit will be yet another driver that forces families out of the private rented sector, which is not where most of them should be in the first place.

The staggering number of homeless families is rising fast, with an additional 960 households in temporary accommodation in the last quarter alone. Incidentally, that figure has risen quarter on quarter since 2010, with the number of children in temporary accommodation increasing by 66% since the Conservatives came to power.

Despite public misperception, housing benefit data suggests that a third of householders in temporary accommodation in England are in work, with the proportion rising to half of householders in temporary accommodation in London. Three quarters of families in temporary accommodation in London have been there for more than six months, with one in 10 there for a not-so-temporary five years. That is without mentioning cases in Harrow and Camden involving households in temporary accommodation for a baffling 19 years. Of course those are extreme cases, but the fact is that more than 100 councils across the country have households who have been living in temporary accommodation for more than a year.

May I make it clear that the purpose of this debate is not to bash local authorities, which are dealing with very difficult situations as best they can? I give particular praise to the head of Merton’s housing department, Steve Langley, whom I have known for more than 20 years. I have seen the distress that it causes him to place families hundreds of miles away from home and in accommodation that he would not accept for his own family. I thank him for his public service.

There is a cost to the taxpayer. In November 2016, the BBC reported that councils in Britain had spent more than £3.5 billion on temporary accommodation over the past five years. The net cost has tripled in the past three years alone.

Now that the scene is set, I will deal with three main reasons why I applied for the debate. I will start with out-of-borough temporary housing. I will then move on to the need to enforce legislation, and finish by assessing the standard of temporary accommodation for the 78,000 families affected.

More than 28% of households in temporary accommodation are housed outside their local authority area. That represents a remarkable increase of 248% between March 2011 and March 2017. The figure for London boroughs increases to a staggering 36% of households, and there has been a fivefold increase in households placed outside the capital since 2012. Last year, the London borough of Harrow temporarily moved residents as far as Bradford, Wolverhampton and even Glasgow.

Birmingham is a regular recipient of residents, and the scale of the problem is illustrated by a letter from Birmingham City Council to all London councils that calls for the practice to end because its resources are at breaking point. For the families, that is 140 miles away from their homes, their children’s schools, and their friends, families and communities. Only last Thursday, my office took a call at 5 pm from a lady who was told she was to go off to Birmingham with her four children under the age of eight. It took a collection from the parents at her children’s school to pay for a Travelodge that night before she was offered a one-bedroom flat for herself and her four children the next day.

Similarly, at my advice surgery last Friday, I met a full-time nurse at St Helier Hospital who had just been offered temporary accommodation 44 miles away in Luton. Meanwhile, for a homeless resident in Kensington and Chelsea, there is a remarkable 72% chance that their temporary accommodation will be outside the borough. It therefore might seem odd that a Communities and Local Government Committee report states:

“Housing people away from their homes and support networks should be an action of last resort.”

[Frank Field]

I apologise for intervening again, but I am intrigued and appalled by the record that my hon. Friend describes. It is worse than the Poor Law. Under the Poor Law, people were sent back to the village it was believed they came from; under the current rules, people are sent to any old village or city, provided that the local authority can dump families on them.

[Siobhain McDonagh]

My right hon. Friend is absolutely right.

Currently, 22,000 households face such a “last resort” and are placed in temporary housing outside their borough. Under the Housing Act 1996, when a local authority undertakes its housing duty to people by placing them in temporary accommodation in another borough, it should notify the receiving borough that it has done so. That notice should be in writing and made at least 14 days before the household is placed in the area. Is the Department confident that each household is accounted for in their new, temporary home?

I have received a letter from the chief executive of Thurrock Council, which had 183 placements from London boroughs between April 2016 to February 2017. She said:

“Unfortunately, our experience has often been that the notifications are either not sent or sent to the wrong contact within the Council.

Over the past couple of years housing departments have noticed an increase in the number of cases who report that they were placed in another borough from London without the formal notification being received.”

Housing outside a borough is not unlawful, but councils are legally obliged to ensure that relocation is suitable and appropriate to a family’s circumstances, taking account of potential disruption to education, medical needs and employment. Does the Minister agree that processes must be put in place, and enforced, to ensure that a receiving local authority is fully aware of a family’s arrival and that they can receive the healthcare, education and welfare support to which they are entitled once they are there?

Let us consider the enforcement of legislation. In 2004, the Homelessness (Suitability of Accommodation) (England) Order 2003 came into force, providing that homeless families with children should not be placed in a B&B except in an emergency. If such an emergency were to arise, it could last for no longer than six weeks. In June this year, 6,660 households were being temporarily housed in B&Bs. That was twice as many as in 2011, and three times as many as when the Conservatives came to power in 2010. A deplorable 2,710 of those households trapped in B&Bs include children. For 1,200 of those families, their living hell has gone on for far longer than the six-week legal limit. The local authorities that are housing them are, quite simply, breaking the law.

One of these families joins us in the Gallery today. Kelly’s family were evicted earlier this year, making them homeless. Sutton Council placed Kelly, her husband and her two young children in a single room in a B&B in Wimbledon. They had so little space that Kelly’s stepson had to leave the family home. For 10 weeks, the family were left in one tiny room, hidden from society in a B&B. No one told Kelly when the nightmare would end. After 10 long weeks, Kelly is now finally out of the B&B, although her temporary home is not much better. Kelly tells me that she simply does not feel safe there, and I completely understand why. The oven does not work, the electrics are precarious, and the flimsy door is a precarious barrier to the outside world. Only yesterday, Sutton Council’s planning department knocked on her door to tell her that there was no planning permission to allow the flat she lives in to exist.

[Mr David Lammy (Tottenham) (Lab)]

I am grateful to my hon. Friend for the manner in which she is leading this debate. In the sixth richest economy in the world, does she think it is an abuse of human rights that we have so many people living in these Dickensian conditions?

[Siobhain McDonagh]

It is an abuse of human rights. There is a moral duty on us all to bring a resolution—this is possible—to the situation.

Kelly’s daughter is old enough to question but too young to understand the situation. When she returns from school, she queries why none of her friends have to share a room with their parents. Both Kelly and her husband hold down good jobs, but she tells me that she simply does not know how to get out of this situation. If she complains, will she be moved far away from her job and her children’s school?

Kelly is not alone, however. Birmingham City Council currently houses 85 families with children in B&Bs for longer than six weeks, while Croydon, Harrow, Redbridge and Southwark local authorities have all housed hundreds of families with children in B&Bs for longer than the legal limit of six weeks over the past year alone.

Take Renee and her sister Jade, two young brave girls whom I had the pleasure of meeting in Parliament just a fortnight ago. After living in their friend’s house for over a year, Renee and Jade’s family became homeless and had to move to temporary accommodation in Acton, away from their friends, family and school. A double bed, single bed and a bunk bed filled their tiny room, with their bathroom and kitchen shared with another family. They tell me that they felt brushed under the carpet because they were unseen by society, too ashamed to open their curtains to the outside world. This makes Renee’s recent GCSE success even more remarkable and I congratulate her on her well-deserved achievement. Does the Minister agree that a B&B is no place for Renee—in fact for any family—for longer than six weeks, and that a law against that is superfluous if there is no way to enforce it? What tangible changes would he suggest to ensure that local authorities abide by the laws that this House has agreed?

Behind the facts and figures that I have described today are real homes, real people and real families—and, in my constituency of Mitcham and Morden, one very real building named Connect House. At my advice surgery, the name Connect House has become an increasingly regular feature over the past year, with constituent after constituent calling me for help, desperate to escape what they describe as their living nightmare.

It is incredibly difficult to summarise the conditions at Connect House without visiting it in person. I therefore invite each and every right hon. and hon. Member in the Chamber to join me in Committee Room 9 after the debate, where I will be releasing a video so that each of them, as well as the general public, can see with their own eyes the appalling conditions that the 84 families living inside Connect House find themselves in. For now, however, I will do my best to find the right words.

Willow Lane industrial estate is home to a plethora of successful businesses in my constituency. With its businesses ranging from the manufacturer of timber windows to motor works, and from scaffolders to joiners, it is one of the busiest industrial estates in south London. Almost two years ago, however, there was a peculiar change on the estate. The businesses began to notice prams being pushed past their front doors and children playing while their lorries and vans raced through. They began to notice hundreds of residents using their working industrial estate as a home.

Connect House is at the heart of Willow Lane industrial estate. It houses 84 families who have been placed there by four local authorities: Bromley, Sutton, Croydon and Merton. There is little collaboration between the authorities as to who is placed in Connect House, which heightens the danger of vulnerable residents being placed among completely inappropriate neighbours. To reach the nearest amenities, the residents have to walk through the industrial estate itself. Cars line the pavement, forcing families with prams or wheelchairs into the lorry-filled road. It is fair to say that local workers simply do not expect 84 families to live within their industrial estate.

Waste surrounds Connect House because its industrial bins are ill equipped for the needs of the residents inside. This naturally attracts rats and foxes, and litter is strewn across the adjacent car park. Litter is also found throughout the building itself, causing considerable damage to both the building and its few facilities. The building is not staffed at evenings or weekends, and one resident found herself locked out in the middle of the industrial estate when she arrived back at night. A single key fob is allocated to each room, but additional fobs come at a deposit of £20. It is no wonder that young children have escaped into the dangerous industrial estate outside.

As for those who are able to enter, one resident told me of the danger that she and her daughter were in when a man was able to follow her right to her front door. Incidentally, the doors have neither a spy hole nor a door chain for safety. For a vulnerable family, their security is nothing more than the thin door separating their room from the industrial estate outside. Importantly, there is no communal room in Connect House, and neither is there anywhere for children to go, other than their tiny bedroom, where they are so often forced to share a bed with their parents and/or siblings. Residents complain of children running through the corridors at night, while the car park outside the building has been described as a playground in the evenings. Does the Minister agree that an industrial estate car park is no fit playground for the hundreds of children inside Connect House?

Residents and businesses have described Connect House as an “accident waiting to happen” and a “death trap”, yet this is a property that Bromley Council has not even visited, despite placing families there. It argues that there is simply not enough time or resource to do so, and that in its own words:

“This is compounded by the fact that a significant number”

of properties

“are out of the borough”.

The building’s remote location means that there are no immediate shops or amenities for the residents. The location is so remote, in fact, that even an ambulance was unable to find it when called by a heavily pregnant lady housed there who had to have her baby in the car park outside. It truly fills me with sadness to tell this Chamber that the baby is no longer with us.

The property provides the landlord with an estimated—and simply staggering—£1.25 million to £1.5 million of taxpayers’ money each year, with the local authorities charged between £30 and £40 per room per night. Connect House is therefore a 21st century, multi-million pound death trap in the middle of my constituency. In the Gallery today sit dozens of residents from Connect House. They have joined us here to have their voices heard, to find out why the Government consider Connect House to be a suitable place for them to live, and to listen to what changes the Minister will propose before this death trap takes its next victim. From down here in the Chamber, I would like to tell their experiences, their challenges and their stories. Take Laura. She shares a room with her teenage daughter, despite having a spinal disability. Her room is so small that she had to move items out just to show me inside. She sleeps in her bed in the day so that her daughter can sleep in a bed at night.

Then there is Alice. She has a three-hour return journey to collect her children from school, finishing at the tram stop outside the industrial estate. It is dark by the time they return and so, before making the final walk home, Alice and her children pause to pray that they will make it safely. Finally, there is Sarah. Her two children are not yet of school age, so they are confined—day in, day out—to the industrial estate. It is no wonder that when Sarah’s baby boy was taken to the doctor’s with a wheezy cough, the doctor put it down to the constant fumes he was inhaling from the factories outside the window.

There are Connect Houses in so many of our constituencies, and today is our chance to shine a light on them. So what can be done? If there are tangible actions that should be taken from this debate, let them be as follows.

First, does the Minister agree that if a local authority is forced to house residents temporarily in another local authority area, it is fundamental that a designated officer in the receiving authority should be clearly informed of those people’s arrival so that their safety and welfare can be ensured? Secondly, I cannot help questioning why we have laws and regulations on temporary accommodation if they are simply not enforced. Does the Minister agree that local authorities should be held to account under the regulations on which the House has decided? Assuming that he does, may I ask how he proposes to ensure that families like Kelly’s are no longer illegally housed in B&Bs for more than six weeks?

Finally, do the Minister and colleagues agree that there should be a minimum standard for temporary accommodation, and that the conditions that I have described are simply not fit for purpose? I encourage anyone who is in any doubt about that to join me in Committee Room 9 after the debate.

The 78,180 families who are in temporary accommodation are hidden from our society, whether in a hostel, in a B&B, or lost in an industrial estate. Today many of those families sit proudly in the House of Commons. Today their stories will be hidden no more, and I urge each of us to be their voice and to call for change.

[Bob Blackman (Harrow East) (Con)]

I congratulate the hon. Member for Mitcham and Morden (Siobhain McDonagh) on securing the debate, and on the passionate way in which she delivered her speech and described what is going on in her constituency. I can almost certainly say that I agree with nearly every word that she uttered in expressing her desire for regulation—for proper, appropriate measures to be applied to temporary accommodation.

The present position has three aspects. When people who face homelessness approach the local authority, that is the crisis point. They have nowhere to live and, if they are “priority need” homeless, the authority must find them somewhere to live immediately. That is expensive, and the accommodation is often not suitable: in London, people are likely to be offered accommodation way outside the area in which they have been living.

There are two other elements. First, as the hon. Lady said, there are families who have been living in temporary accommodation for 19 years or more. Given that most people who own their homes move, on average, every seven years, it is absurd for someone to be in temporary accommodation for that length of time. We need to take appropriate action. Secondly, there are people who literally have nowhere to live except with friends, perhaps sleeping on sofas. That is a hidden form of homelessness, because it is clearly a form of temporary accommodation.

I am pleased to say that my Homelessness Reduction Act 2017, which secured support from the Front Benches of both parties and, I think, from Members in all parts of the House, will come into force on 1 April 2018. It will produce some remedies for the problems described by the hon. Lady. First, as a result of a Government concession, local authorities that offer either permanent or temporary accommodation must visit and inspect the premises to confirm that they are fit for accommodation and fit for purpose, and we should all ensure that our local authorities honour that requirement.

[Siobhain McDonagh]

There can be anything in law, but if it is not enforced, it does not work. Unless there is an organisation like Ofsted or the Care Quality Commission for housing, it is not going to work.

[Bob Blackman]

The hon. Lady is absolutely right: unless laws are enforced, there is not much point in having them. I ask the Minister to say in his response to the debate what he is doing to ensure that the existing rules are enforced. Some of the cases that the hon. Lady mentioned clearly fall foul of the existing requirements on local authorities, so those requirements are not being properly enforced.

We must deal with the consequences of the temporary accommodation crisis. In London about £600 million a year is spent on providing temporary accommodation. Most of that accommodation is not fit for purpose, and is certainly not fit for the accommodation needs of the individuals placed there. We must seek to reduce that bill dramatically, and how to achieve that is clear.

Under the Homelessness Reduction Act, anyone approaching the crisis of homelessness will be able to approach their local authority two months before they face that crisis. The aim is that no one should become homeless at all—that the local authority should take the appropriate action prior to someone’s becoming homeless. If local authorities carry out their duties properly, we will not have that crisis of temporary accommodation, which is incredibly expensive. That is a cost-effective way of addressing the challenge.

--- Later in debate ---

[Mr Lammy]

It is shocking and appalling that councils are being put in that position. Many councillors across the country are having to make the hardest of decisions on behalf of people—frankly, as Members of Parliament, we are all pleased that we do not have to make those decisions. We now have a ridiculous situation in which we are spending almost £10 billion a year of taxpayers’ money on housing benefit that goes straight to private landlords. Slashing social housing funding is a false economy. This is dead money. Instead of lining the pockets of private landlords, it should be used to build new social homes.

[Siobhain McDonagh]

I worked out last night that we could build 88,000 prefabs with the money we are giving in one year to the private rented sector in housing benefit.

[Mr Lammy]

Absolutely. We have to find new ways of building homes. We would be better off giving people a home for what may be 40 or 50 years by building those prefabs than handing out money in the way we have.

The state grant available for social landlords to build social homes was slashed to zero in the 2010 spending review. In its place we got new categories of homes: homes for affordable rent, and affordable homes for first-time buyers. It is important to place on the record that the crisis will not be solved by building affordable homes that cost £400,000 to £450,000 in London. It is time almost to banish the word “affordable” from the lexicon, as it means nothing to ordinary people when it comes to housing policy. We have already heard that the Government are not building social homes, but they are spending 80% of the total housing budget on subsidising private homes through Help to Buy and discounted starter homes. The Government are not even really serious about their own affordable homes programme.

The dire situation we are seeing in temporary accommodation is symptomatic of the intrinsically linked shortage of homes and housing crisis. We will get to grips with the crisis only through a mass social housing building programme. The Government are beginning to recognise that, and I welcome the Prime Minister’s promise of a council house building “rebirth” in her speech last month.

The crisis will not be solved by further overheating the housing market by offering Help to Buy loans to first-time buyers, who have help from the bank of mum and dad anyway. The crisis will not be solved by building 5,000 homes each year. That is a drop in the ocean given the scale of the problem—it is only half of the households waiting to be housed in the London Borough of Haringey. Some 1.2 million households across the country are waiting to be housed, according to Shelter.

I hope the Government are listening and, on behalf of the 3,000 families in Haringey, I hope they will finally act.

--- Later in debate ---

[Siobhain McDonagh]

I thank all Members from all parties for being involved in this important debate, and I thank the Minister for agreeing to meet me to discuss Connect House—I am grateful.

I do not wish to sound angry or petulant, but I feel both, because 84 families will still be living in the middle of an industrial estate tonight, tomorrow night, next year and the year after. The most common eviction is now eviction from an assured shorthold tenancy. No amount of advice at any point in the cycle is going to change that, because landlords can get more money if they rent their properties to people who are not dependent on housing benefit or universal credit. That is a financial fact. We can wish it better, but that is not going to work. The only thing that is going to work is a proper requirement for standards in temporary accommodation that are fearlessly enforced by the Government. God help us: we require councils to tell other councils when they move a homeless family to their area. That would be revolutionary.

I worked in housing for 35 years. I found accommodation for homeless families and dealt with people in bed and breakfasts in the 1980s. I have never ever seen such numbers and the sort of accommodation that people are currently living in. We can get real about it and do something real, or risk a crisis among poor, dispossessed families of the like that we will have difficulty dealing with. I ask people to get real about the situation that many of our constituents find themselves in.

Question put and agreed to.

Resolved,

That this House notes with concern the increased use by local authorities of temporary accommodation for 77,240 homeless families in priority need, including 120,540 children or expected children; further notes more than a quarter of those households have been placed in temporary accommodation in a different local government area; further notes the draft consultation on a homelessness code of guidance for local authorities; is aware of the pressure on local authorities and the increasing demands that they face; and calls on the Government to provide a framework for monitoring and enforcement to ensure the appropriate level of quality and location of temporary accommodation, to require that local authorities appoint a designated officer for homeless families in their area and to ensure that homeless families have appropriate contact with health, education and social services when they are in temporary accommodation.