Developing positive accommodation and support pathways to adulthood:
Minimising the risks of youth homelessness and supporting successful transitions for young people
The content of this paper has been developed with the advice of leading homelessness organisations and local
authorities. It is based on local practice, anecdotal information, available data, visits to local authorities and national
research. The content within this paper builds upon the Government’s second report on homelessness “Making Every
Contact Count”1 but does not represent Government view or policy on youth homelessness.
Please contact DCLG Youth Homelessness Adviser, Anna Whalen ( annawhalen@btinternet.com) if you wish to feedback
or ask any questions about the content of this document.
Introduction:
The Positive Pathway outlined in this document does not only focus on accommodation, although without suitable housing and the
stability that brings, vulnerable young people, at risk of homelessness, are highly unlikely to achieve positive outcomes in other
parts of their lives. Integral to the success of the Positive Pathway described below is an integrated approach from agencies,
working together to support young people in terms of:

achieving in education

career success and resulting economic independence

being healthy, both physically and mentally

having positive relationships with peers, family and within local communities

involvement in meaningful, enjoyable activities, including volunteering, sports and arts
To achieve these outcomes for some of the most vulnerable young people in our country, avoidance of homelessness is critical.
Homelessness, or imminent homelessness, is still the catalyst into independent living for too many vulnerable young people. It is
1
“Making Every Contact Count – A Joint Approach to Preventing Homelessness” published by the Department for Communities and Local Government
August 2012.
1
well documented that for young people homelessness is not only about lack of accommodation, but the complex interplay between
family relationships, childhood experience, social and economic disadvantages, individual resilience and experience at school,
college, training and employment.2
The experience of homelessness at a young age is not only stigmatising, but can, without effective support and accommodation
options; result in long-term poor outcomes. Many young people report their experience as traumatic, leading to dropping out of
education, training or employment and resulting benefit dependency. There is a significantly higher risk of mental health problems3,
substance misuse, anti social behaviour, crime and involvement in gangs. It is not, therefore, in young people’s best interests to
become homeless if this can be prevented, nor is it in the interests of wider society, in terms of negative impacts on communities
and the cost to the public purse.
A number of leading youth homelessness agencies, national homelessness organisations, local authorities and housing
associations 4 have, in different ways, contributed to the development of the positive pathway which is described within this paper.
They recognise and have long advocated for the need to get away from what is seen as a “deficit” approach to meeting young
people’s accommodation and support needs. The “deficit” model is framed around imminent or actual homelessness being the
trigger to getting a response to housing need from local authorities and other service providers. And too often there is a focus on
the single issue of homelessness, missing the opportunity to look at the other needs a young person is likely to have. Sorting out
housing alone will not, in itself, support the successful transition to adulthood for most young people who have to leave their family
home at a young age.
This paper brings together some of the research, effective practice and discussion that has already taken place around what works
well for all young people aged 16 – 25 to reduce the risk of homelessness, address and support the other critical parts of their
lives, such as career development, health and positive relationships and have a successful transition to adulthood.5
2Suzanne Fitzpatrick and N Pleace et al, Statutory Homelessness in England: The experience of families and 16-17 year olds, DCLG, 2008
And Suzanne Fitzpatrick et al, Multiple Exclusion Homelessness in the UK Briefing Paper 1, 2012. Extended interview survey
3Depaul UK and AstraZeneca 2012 publication: Improving the health of young homeless peop
4The Foyer Federation, St Basils, DePaul UK, Centrepoint, YMCA England, Homeless Link, Crisis, Joseph Rowntree Foundation, London Borough of Greenwich, Shepherds
Bush Housing Association, Department for Education and Department for Communities and Local Government
5See bibliography at end of paper
2
Building on what works well:
There has been significant progress over the last few years in England to improve homelessness prevention and outcomes for
young people who do become homeless. The starting position for this paper is one based on what we know works well already,
building on positive approaches already used by the voluntary sector, some housing associations and local authorities. Some local
areas are reshaping and integrating local services for young people from disadvantaged backgrounds who, at the point of transition
to adulthood, need advice and support, not just around accommodation options, but other elements of their lives as they become
more independent. If we want to lift vulnerable and disadvantaged young people out of the kinds of social exclusion associated with
homelessness, we need a positive transition pathway, not reliant on homelessness as the trigger point, and with a range of
accommodation and integrated support options, including education, training and employment.
A progression to adulthood:
A principle underpinning this paper is the promotion of a positive transition to adulthood - the concept of young people on their
individual journeys to adulthood, generally progressing forward. Accommodation is a critical part of that journey. It is essential to,
for example, the ability to take up and sustain education, training or employment. For most young people, accommodation at this
point in their early adult lives is not usually viewed as long term, but as a stepping stone to where they want to be, whether it is
staying within the family home, a hall of residence, a foyer or hostel, or sharing with friends. Flexibility and mobility is needed when
so much is changing, in terms of work opportunities and relationships.
Too often for young people who are homeless, they have missed out on the experience of progression through different types of
accommodation and moved straight from temporary accommodation into their own tenancy in social housing. Whilst this may be an
appropriate response in the circumstances, it has not resulted in positive outcomes for many, anecdotally, for example, resulting in
social isolation, unemployment, debt, tenancy failure and a “revolving door” situation.
The picture in 2012:
Youth homelessness is reported to be rising6 in many areas of England and there is a risk this reported trend could continue, given
the current context of youth unemployment, the economic downturn and the pressures on low income families, combined with some
of the changes within welfare reform, reduction of some public services and the general squeezing of housing supply and
affordability of accommodation, particularly for young people.
6Homeless Link “Young and Homeless: A survey of services and local authorities” December 2011.
3
In the housing market young people, particularly those who are disadvantaged economically, are at the bottom of the pile: they face
greater economic disadvantage than any other group; they lack experience in finding and sustaining accommodation and are
discriminated against by both social and private landlords due to their age and associated perceptions about a range of risks as
prospective tenants. Leading homelessness agencies7 have pointed to the potential impact of welfare reform on young people at
risk of homelessness, in particular changes to Housing Benefit8. Although there is no hard evidence at this point, many agencies
anticipate the changes will result in the most vulnerable young people being displaced out of previously available accommodation in
the private rented sector market by their older counterparts who are now competing for the same types of accommodation.
In the absence of more positive options for disadvantaged young people, getting into crisis and becoming homeless could continue
to be a well trodden path unless new approaches and pathways into accommodation can be developed. Legislation is in place to
protect some young people’s housing situation when it cannot be resolved and this paper in no way seeks to minimise or side step
the legal obligations contained within both the Children Act 1989 and the Housing Act 1996. But the majority of single young
people aged 18 – 25 with housing needs do not fall within this legislative safety net. It is this group we need to be most mindful of in
policy terms.
In spite of all the pressures, the changes locally and nationally, and the unknowns ahead, there are real positives to draw on from
effective, innovative practice in many local areas. This paper will outline broadly through describing the positive pathway elements
some of the interesting and effective practices.
What would a positive pathway achieve?
The overall desired impact of a positive accommodation and support pathway for young people echoes the 2012 Social Justice:
Transforming Lives strategy9, and is ultimately much more than simply a roof over a young person’s head. It is about supporting
young people to be active, aspiring, confident young citizens, taking up opportunities to further their economic independence and
wellbeing:
 Prevention of youth homelessness in the first place
The average age at which young people leave home is reported to be rising. For many there is an option of staying in or returning
7
For example, Crisis, Homeless Link and Shelter
The two main changes are: the Shared Accommodation Rate, which limits the amount of housing benefit payable to a room in a shared house, has risen from under 25s age
group to under 35s. The level at which local housing allowance is determined has moved from the 50th to the 30th percentile, which has reduced the number of affordable
properties /rooms available to those in receipt of Housing Benefit in any local area.
9HM Government,Dept.. for Work and Pensions March 2012
8
4
to the parental home if they need to, for example, after university or if they are unemployed. But not all young people are able to
remain at or return home in their late teens and twenties. There are a wide range of reasons why young people leave home in an
unplanned way– tension with step parents, on going conflict, overcrowding, financial hardship, substance misuse and in some
cases, physical and sexual abuse.
But research has evidenced that becoming homeless at a young age creates additional disadvantages for individuals 10 in terms of,
for example, their economic, physical and emotional well being. Where it is safe and its possible, young people are usually better
staying at home and planning a positive move out of the family home when they are ready or need to move out – this will result in
better outcomes for young people. Early intervention and prevention work, both of a universal and targeted nature, reduces the
risks associated with homelessness at a young age by reducing the numbers of young people in crisis and homeless.
 Recovery and economic independence for those young people who are not able to stay within the family network:
For young people who do leave home in an unplanned way, or cannot stay in the family home, the desired ultimate impact is to
achieve economic independence. The ambition should not be only that young people are in suitable accommodation, however,
suitable accommodation is the foundation stone upon which young people are able to participate in education, training or
employment. It supports recovery, in terms of good physical and mental health, reduces risks of substance misuse, offending and
promotes stronger communities as a result. Conversely, the impact of living in poor, unsafe and insecure accommodation is
increased risks of being NEET, loss of tenure and repeat homelessness, debt, involvement in crime, anti social behavior, substance
misuse and poor physical and mental health.
These aspirations are supported by young people. The Young Foundation have recently published, on behalf of the Catalyst
Consortium, a framework for outcomes11 for all young people, not only those at risk of homelessness. They held focus groups with
young people and the following outcomes were identified by young people as their priorities:

achieving in education

career success

being healthy
10Suzanne Fitzpatrick and N Pleace et al, Statutory Homelessness in England: The experience of families and 16-17 year olds, DCLG, 2008
And Suzanne Fitzpatrick et al, Multiple Exclusion Homelessness in the UK Briefing Paper 1, 2012. Extended interview survey
11
A Framework of Outcomes for Young People, by B McNeil, N Reeder and J Rich. Published by The Young Foundation on
behalf of the Catalyst Consortium , July 2012.
5

having positive relationships

involvement in meaningful, enjoyable activities
Assumptions that underpin a positive pathway:

Young people are not a homogenous group, there is significant variation in the age at which they leave the parental home,
the support parents/family provide, the type of accommodation they first move into and the reasons for moving out of the
parental home.

The homelessness route is a negative and stigmatising experience for young people and should be avoided wherever
possible by the provision of a range of other housing, support and advice options to meet the different needs of young
people.

Young people need to be given clear information whilst still at school/college about housing options and realities of living
independently, in terms of choice, hidden costs, sharing of accommodation and landlord expectations.

It is usually the most vulnerable and disadvantaged young people who leave the family home earliest and with no support or
option to return home. Local authorities and schools already know which young people are at high risk of homelessness
before they reach the age of 16. It is possible to prevent homelessness and plan with these families the routes young people
will take if they cannot stay at home.

An integrated approach locally is most likely to deliver effective prevention and successful transition support with, for
example, local voluntary sector providers, Housing authorities, housing associations, Children’s social care/family support
services, youth services, Job Centre Plus, education and training providers, employers, specialist and primary health
providers, National Careers Service, Youth Offending Services, Probation Services

Different young people have different levels of need when they live independently of their families– a small minority need
intensive support to make a successful transition to adulthood, whilst others need minimal or “light touch” support.
Supporting People funded accommodation based provision is predominantly for those with high and medium level needs.

A successful transition to adulthood for young people with higher needs requires an integrated approach from a range of
agencies – provision of housing alone will not be enough to secure positive outcomes.
6

Each local area has its own unique housing market conditions and will create local solutions to youth accommodation needs,
based on local circumstances and opportunities.

Accommodation should be affordable and its cost should not be a barrier for young people taking up training,
apprenticeships or employment.

The pathway should be a progression and help young people with their aspirations. But it also needs to allow for young
people making mistakes as part of their learning and experience as young adults.

Mobility is critical for young people entering the world of further education, training and employment: issues of local
connection, which arise through the use of the homelessness route for housing, are not helpful and limit young people’s
ability to take up opportunities beyond their own local authority area

The housing market is not currently meeting the accommodation needs of young people, but is more likely to respond
positively to a gap if confidence in local areas can be created through pro actively offering an integrated pathway approach
which will lessen perceived and actual risks for private landlords

Despite the housing shortage, there are real opportunities to open up supply and develop new accommodation options for
young people: for example, there are innovative approaches under development in both the voluntary and statutory sector
which need to be piloted, there is learning from Crisis’s funding of youth private rented access schemes.
What are the underpinning features of a positive pathway approach for young people?
Moving to a positive accommodation pathway approach draws on the rationale and principles behind a Community Budget
approach at a local level to achieve a change in culture, to get better outcomes for young people and reduce the costs to the
taxpayer. We know which factors make a real difference to the outcomes for disadvantaged young people:

A whole systems, integrated approach to preventing youth homelessness and supporting, where necessary, young people’s
planned moves to independence through a positive pathway

An ethos which places young people and their parents/families at the heart of planning and delivery – significant,
supportive relationships with one or two skilled professionals are often the key for young people making a successful
transition
7

Developing services and practices which invest in early intervention rather than just reacting to crisis

Provision of seamless, easy to use services, making better use of resources through joining up and co-ordinating of
services, including pooling the budgets of all agencies where it is effective to do so, including local knowledge, community
assets and voluntary effort

Providing information and advice across all stages of the pathway, not only about housing, but on other aspects of young
people’s lives as they make the transition to adulthood

A progression to independence for young people, through having a range of accommodation options to meet different
needs

Involving young people in how services are shaped and delivered leads to excellence in provision and gives young people
important learning opportunities for the future
8
The Positive Pathway aims to support the following outcomes for young people: achieving in education; career success;
being healthy; having positive relationships, and involvement in meaningful, enjoyable activities.
Steps 1 – 4: An integrated focus on PREVENTION: Young people staying within the family network for as long as its safe and possible to do so.
If they need to leave, agencies pro-actively plan options with the young person(and for
a
1.Minimise Demand
Education work in
schools/other youth
provision on reality
of housing choices
for young people
8. Moving on
Young person is
ready to make their
next move with
minimal/no support,
The aim is that they
are positively
engaged in
education, training or
employment, they
have good health &
emotional well being,
positive relationships
& the ability to
manage a tenancy &
sharing with others
for most young
people
2. Reduce crisis
& demand:
Early intervention
work is
targeted to keep
young people at
high risk of
homelessness in
the family
home/network
3. Reduce crisis
Plan & prepare with
those at high risk of
homelessness
BEFORE they are in
crisis
5. Supported accommodation as a
starting point for higher needs or young
age (16/17/18). Living in a hostel, a
foyer or supported lodgings until
assessed as ready for next move.
6.Floating Support in their own
,accommodation, based on level of
need, to support success in education,
training & employment, health and well
being & ability to manage tenancy.
7.Shared student-style
accommodation for those in FE,
employment or training/apprenticeships with “light touch” support . A key
to this is affordability for young people.
4. A Single Integrated Service Gateway:
jointly delivered and/or commissioned by Housing
& Children’s Services
Functions: Pro-active prevention of homelessness,
assessment of needs, planning and advice on
options & access to short stay /longer stay
accommodation if needed
But also easy access to a wider range of advice
and support, e.g.:
Advice & support re: education, training &
employment
Health services e.g. counselling, substance
misuse, sexual health
Life skills & income maximisation advice
Steps 5 – 7:Young people can
access 3 broad options and
can move between them until
they are ready to move on into
more settled accommodation (
Step 8). A big focus here on
stabilising, engaging in
education, training &
employment. This part of the
pathway is based on the
concept of progression &
readiness to succeed, so
accommodation & level of
support are tailored to
individuals. Support may be on
site, floating support, or light
touch: lead tenant, concierge,
college/ training provider.
lpttleatetenant,eirconcierge
9
An explanation of the Positive Pathway:
Steps 1 – 3 PREVENTION
Whilst it is often tempting to place the majority of available resources where the most acute pressures are likely to be, in order to
meet demand at the point of crisis and fulfil statutory duties, there is a strong, evidence backed case for a strategically developed
and comprehensively delivered range of initiatives which focus on younger children. Additional resource input into early
intervention and prevention work is a “spend to save” investment.
As children become teenagers, tensions arise in most family homes. Young people are designed to learn about independence
through trying out new things, taking risks, both positive and negative. The peer group becomes more and more significant. Most
of us have behaved, in our teenage years, in ways which our parents found both challenging and disruptive. And of course,
sometimes, parents behave in ways which are difficult for young people to understand or cope with. There are pressures on many
families due to a wide range of factors, including financial pressures, unemployment, over crowding, and adjusting to new partners
and substance misuse.
The challenges of the G v Southwark12 ruling do not alter the importance of prevention for local authorities. Indeed, an increased
focus on prevention makes even more strategic sense. For Children’s Services, prevention work will reduce the numbers coming
into the looked after system at 16 /17 years old. This is not about gatekeeping, but securing positive outcomes through keeping
young people at home or within the family network where it is safe to do so.
For Housing Services and supported accommodation commisioners, a longer term view is needed: effective prevention will reduce
the numbers of young people presenting as homeless, reduce the demand for supported accommodation and ultimately, reduce
the numbers of care leavers and other young people who may get priority in some local authority areas to social housing through
the allocations scheme.
12A 2009 House of Lords judgment, which clarified that, the Children Act 1989 took precedence over the Housing Act 1996 in terms of 16/17 year olds who are homeless. If a
child is found to be homeless, subject to an Initial Assessment and the child’s wishes and feelings,( if competent to make a decision) they would become looked after under
Section 20 of the Children Act 1989.
10
Overall, the most effective approach to early intervention and prevention work, in terms of youth homelessness, is to take a twin
track approach, with some targeted work, but also commit resources to some universal work, through education work in schools
and other youth based services.
1. Minimise Demand - education work in schools and other youth provision on the reality of housing choices
Some young people who have experienced homelessness describe leaving home in an unplanned way after a family
argument, with little understanding about the risks and difficulties of the route they have taken. And if they do leave, they
often don’t know where to go for help and some can place themselves at risk, through, for example, one or two nights of
rough sleeping. It is reported by many authorities that for some cases, becoming homelessness is linked to accessing social
housing, with some parents believing that the local authority will re- house young people easily and that in effect, becoming
homeless is a route into independence for their child.
Whilst young people of school age might get, for example, education about sexual health, relationships and drugs, most get
no clear factual information on the realities of housing options, risks of homelessness and difficulties of living independently.
Preventing homelessness through education is about awareness raising, myth busting and setting out the realistic housing
choices available, as well as where to go for help if things are very difficult. It can also involve education on conflict
resolution, self-awareness, anger management and negotiation. Peer education works particularly well – young people who
have been homeless themselves can be trained and accredited to help deliver sessions, and talking about their own
experience is reported to have the biggest impact on young people’s learning.
Success in getting access into schools to deliver sessions on housing and homelessness varies from school to school.
Academies do not have to follow the national curriculum and may have more flexibility to do sessions on housing and
homelessness. For schools that are following the national curriculum, the PHSE part of the curriculum has been the place
where housing and homelessness is usually covered. Given the pressures on time for teachers and schools, making the
case for why a session on housing and homelessness is helpful. Schools might be interested to know how many of their
pupils have presented with housing issues/as homelessness over a year, for example, and the impact this can have on
academic achievement.
What works well is a close working relationship with teachers, so they know can give basic advice and know where to refer
young people for advice on housing. If they are able to do so, they may be able to undertake some basic training and be
given some practical session plans/resources to deliver sessions themselves.
11
Young people at high risk of homelessness may not be attending mainstream school. Sessions in other youth provision,
youth clubs, Pupil Referral Units or via Youth Offending Teams can go some way to reach young people who are not
regularly attending mainstream school.
An area for development is finding ways of giving impartial information to parents about housing options for young people in
terms of: the negative impacts of leaving home at a young age, welfare reform changes, the choices for young people and
the options available to a local authority in discharging the homelessness duty.
2. Reduce Demand and Crisis
Local authorities have earlier opportunities to reduce family crisis and resulting homelessness presentations from young
people by working in a more joined up way to identify those at high risk of homelessness before they reach the age of 16 or
17. However there is often a tenuous corporate understanding of this opportunity, resulting in a fragmented strategic and
service linkage between what happens whilst a young person is still under 16 and/or of statutory school age13 and how those
early intervention and support services could work to play a part in preventing the crisis of homelessness at a later date.
Yet in every local authority a significant proportion of those at most risk of homelessness at a young age are already known
to local services in their early to mid teens – or younger. They may be excluded from, or not attending school regularly, they
may be involved with the Youth Offending Service, they might be running away from home, or substance misusing, they
could be part of a family already getting support from Children’s Social Services.
There are preventative intervention programmes running in all local authorities for young people at risk and their parents,
commissioned by Children’s Social Services, Education, Health and Youth Offending Services. In addition, the Troubled
Families programme is delivering services in every local authority, identifying and working with those families that fit the
nationally set criteria:
 Are involved in crime and anti-social behaviour
 Have children not in school
 Have an adult on out of work benefits

Cause high costs to the public purse14
As already noted, a couple of the trigger factors for homelessness at a young age are involvement in crime/anti social
13 “Building Engagement, Building Futures” HM Government Dec 2011 – Raising the Participation Age (RPA) of young people in education or training to age 17 in 2013 and to
18 in 2015.
14
See http://www.communities.gov.uk/communities/troubledfamilies/
12
behaviour and non attendance at school15 , giving a clear linkage between youth homelessness and the Troubled Families
programme at a local level.
The Government’s latest report on homelessness, “Making Every Contact Count: A joint approach to preventing
homelessness”16 is encouraging local authorities to offer to support schools to identify young people, or whole families that
may be at risk of homelessness and ensure that they know where to go to access support for housing and other needs. This
may include referral to family mediation services, local housing options services or to local services for Troubled Families.
To reduce homelessness amongst some of the most at risk young people there is a need for continuity of support, which is
flexible enough to go beyond traditional service boundaries and follows young people beyond the age of 16 if need be. It has
been the case in many authorities that where no statutory duty is owed, services to teenagers go up to 16, or end of Year 11
schooling, but a young person is a child until they are 18 and the local authority has the discretion to continue with services
to support families to stay together. The kind of support that might be offered could be, for example, on going work with a
family support worker or Targeted /Integrated Youth Support Worker, parenting support, family mediation or family group
conferencing. For Children’s Services there is a strong spend to save argument for extending this work, given the costs of
later down the line of meeting statutory duties to homeless 16/17 year olds17.
Another part of the work at this point of the pathway is aimed at professionals, so they are equipped to do some awareness
raising and reality checking with individual young people and families about the realities of housing options, homelessness
and the options to plan a move out if necessary rather than to leave in crisis and risk becoming homeless. There is a training
implication here for those staff in voluntary and statutory services working with younger teenagers, to ensure a consistent
message and advice about support and options.
15
16
Op cit: Suzanne Fitzpatrick and N Pleace et al, Statutory Homelessness in England: The experience of families and 16-17 year olds, DCLG, 2008
See Bibliography
17House of Lords
- G v Southwark judgment
2009 and DCLG and DCSF statutory guidance “ Provision of Accommodation for 16 and 17 year old young people who may be
homeless and/or require accommodation”
13
3. Reduce Crisis
There are some young people in every local area who, for a variety of reasons, are not able to stay at home and need to
leave the parental home. Despite all the best efforts of, for example, supportive family members and professionals, staying
at home is not safe or is not going to be tenable in the long term.
Local authorities miss an opportunity at this point to prevent homelessness and in effect are waiting for an inevitable crisis to
occur. Often these young people have had difficult childhoods and may have multiple needs. Where young people are likely
to need to move, pro active planning with the young person and their family should be considered. This is not about
encouraging young people to move out when they don’t need to, or about giving up on young people and families, but
making contingency plans with families, based on the professional judgment within local authorities and with their partners. It
is also an opportunity to do more reality checking with the whole family about what options there are and how difficult leaving
home at a young age is. Family group conferencing could be a useful tool at this point to ensure the family is closely involved
in all the planning – and ideally leads the planning.
Planning a move out of the family home avoids the negative impacts and risks associated with homelessness. A move could
be into the home of an extended family member of family friend, with some floating support if needed. It could be a move to
supported lodgings or into supported accommodation.
Young people report that its important to their emotional well being to keep positive contact with the parent(s) and extended
family, (where its safe to do so), and leaving home in a planned way, rather than in crisis, assists in maintaining family
relationships and support.
4. A Single Integrated Service Gateway
A local single “front door” into services for vulnerable young people in housing need ensures a consistent approach to
working with young people, in terms of homelessness prevention and support. But such a service can also offer the
opportunity to provide much more than a response to homelessness: an integrated service can pick up on and respond to
many of the other needs and issues young people may have.
Other services which can be located within an integrated service include:
 Careers advice/Connexions
 Job Centre Plus services
14







Benefits advice /income maximisation and debt counselling
Integrated Youth Support Services
Youth Offending Services
Substance misuse services
Counselling
Sexual health advice
Life skills training
But the foundation for a single integrated service gateway is Children’s Services and Housing working together. There is
evidence that a voluntary sector input is also highly effective at this point in the pathway. The local areas we are aware of
where youth homelessness is being consistently prevented and managed are all commissioning voluntary sector partners to
play a leading role in their single integrated service gateway.
Housing related functions within a single integrated service gateway are:
Prevention of homelessness.
There are a range of prevention tools which can be utilised to reduce homelessness. An unpinning approach or ethos which
works well is to slow things down at the point when a young person presents as being homeless. This does not mean that
the young person’s needs are ignored, or the young person feels “fobbed off” but that there is not an immediate assumption
that the young person is homeless and has no other solution than emergency accommodation. Individual situations and
needs have to be assessed and prevention tools used where appropriate, based on professional judgment.
Examples of these tools are: joint home visits within 48 hours, family mediation, debt and benefits advice work, use of
prevention funds (e.g. Section 17 and homelessness prevention funds), use of Discretionary Housing Payments, stays with
extended family members, actively assisting the young person into college or training, floating support or assigning the
young person a youth support worker.
The combining of Children’s Services and Housing expertise is essential at this point to ensure the chance of prevention
amongst 16/17 year olds is optimised.
Advice on housing options
Housing advice and options, giving a realistic picture of what is available ,how easy different options are to access (e.g.
waiting times, affordability), how to access options and what a landlord is looking for in a tenant. For young people, the ability
15
to manage a tenancy and live independently is a key part of housing options advice. The concept of progression – working
towards living independently and the realities of sharing accommodation are also part of the options advice.
Assessment and planning of housing and other support needs.
Assessment of needs is often not a one off activity but an on-going activity, which informs planning the best options for
young people and the services they may need to support them. The starting point is a low level assessment of their current
situation and immediate needs. From this point decisions will be taken about the most appropriate way forward and whether
a more detailed or statutory assessment is needed.
If there is reason to believe a young person is homeless, or homeless within 28 days, a homelessness investigation will be
triggered. For 16/17 year olds, if they are actually or imminently homeless, Children’s Services will undertake an Initial
Assessment and complete it within 10 working days. Ideally this will be done jointly with Housing.
Where a young person is likely to need short stay or supported accommodation, a risk assessment will be needed, and
dependent on local working arrangements with supported accommodation providers, this may be undertaken through the
integrated service gateway.
Gateway into emergency accommodation and supported accommodation
In the most integrated services, there is a single access point or “gateway” in to all supported accommodation in the local
area, including emergency accommodation or short stay accommodation. A Gateway enables consistent management of
young people’s access into supported accommodation, ensuring priority is given to those who most need supported
accommodation and that all other prevention options have been exhausted prior to a referral being made to a supported
accommodation provider.
Emergency or short stay accommodation
Where a young person cannot remain at home or within the family network/friends, then suitable short stay or temporary
accommodation is likely to be needed. There are different models of suitable short stay accommodation including:
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 Nightstop supported lodgings, where a young person is placed with a trained and CRB checked “host” in their own
home for a few nights
 “Crash pad” beds in larger hostels/foyers, ring fenced for young people in crisis. These tend to be for a few days only
 Assessment centres, where young people can stay for 8 – 12 weeks
 Self contained units of temporary accommodation run by a local authority
 ‘Time out’ schemes where respite accommodation is available alongside an opportunity to utilise family mediation
A stay in this type of accommodation is a chance to continue to try to prevent homelessness and return a young person to the
family /extended family where it is safe to do so. It should be a time of purposeful assessment, planning and, where safe, regular
family contact, led by a skilled professional. Actively supporting young people to continue with or start again at school, college or
training is part of the work.
Steps 5 – 7 PROGRESSION
The underpinning feature of this section is of matching accommodation to young people’s needs and abilities to manage. Although
many young people say they do want a place of their own as soon as possible, the reality is this is not likely to be a possibility
unless they can afford to pay a higher rent than housing benefit levels in their local area. There are significant changes that directly
affect young people in housing need - in social housing there is a move to affordable rents and flexible tenancies. In the private
rented sector the Shared Accommodation Rate is now up to 35 years old. In both types of housing, the result could be that there is
little likelihood of self contained accommodation for young people on a low income.
Progression is about planning moves based on needs and readiness to succeed. Too often young people who are homeless miss
out on the experience of positive progression through different types of accommodation. In many but not all areas, a move straight
from temporary accommodation into their own tenancy in social housing is the norm and expectation. Yet it is reported by some
authorities that high levels of both tenancy failure and youth unemployment /NEET status are features for a large proportion of
single young people in social housing.
Whilst social housing may be an appropriate pathway for some young people, we know it is not always the right route for some
vulnerable young people. Flexibility and mobility is needed when so much is changing, in terms of work opportunities and
relationships.
In the Positive Pathway diagram, young people can move between Steps 5 – 7, so if a move does not work out, they could, in
theory, try another type of option.
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5. Supported Accommodation
This type of provision is often in short supply and is also high cost, because it comes with a package of support and with
higher levels of landlord /housing management costs. Not all young people who require accommodation will need this kind of
supported provision. The high cost of the rent and support costs can make this option unaffordable for some young people
who are in work or apprenticeships. It is reported that the high costs can be a significant disincentive to some young people
who are claiming benefit and prevent them from taking up employment. Generally this type of provision is for those who are
still relatively young and need time to learn life skills to cope with living independently (i.e. 16/17/18/19) and also for those
with high /medium support needs.
Supported accommodation includes a mix of smaller and larger purpose built hostel provision, dispersed provision in smaller
converted shared houses, foyers and supported lodgings 18.
Dependent on needs and local commissioning, there may be 24 hour staffing on site in hostels and foyers, or staffing around
core hours and a 24-hour call out service.
There will be local arrangements about how long a young person can stay. In some instances this may be for up to 2 years,
dependent on their needs and readiness to succeed in other types of accommodation. For 16/17 year olds in particular,
there is a strong argument for most to remain in supported accommodation until they are well prepared and equipped to
succeed. Apart from having the life skills and aptitude to succeed living independently, the legal age at which a tenancy can
be granted is 1819.
Support providers work individually with young people and at times in groups. Each young person should have their own
support plan and be working to agreed goals around for example, their life skills, education, training and employment, health,
relationships and emotional well being. Commissioners are increasingly looking for outcomes beyond housing related
support and are focussing on success in education and training and provision of support around emotional well-being. 20
18Supported lodgings provides a room in a family home, and shared use of kitchen and bathroom facilities. Support is provided by a trained and CRB checked “host” who
works the young person whilst they are living with them for up to 2 years.
19Generally, a tenancy is created in law automatically when a person is given the right to occupy accommodation with exclusive occupation for a period in return for rent.
However, a 16/17 year old cannot hold a legal estate in land and this means they cannot hold a legal tenancy. The landlord may grant a legal tenancy to a trustee to hold on
behalf of the 16/17 until he or she reaches 18.
20See “Psychologically Informed Services for Homeless People” February 2012, published by DCLG and University of Southampton
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6. Floating support in their own accommodation.
Who might this accommodation option be for?
Not all young people need to be, or are suited to being in supported accommodation (see Section 5 above). This
accommodation option is for those in housing need or at risk of homelessness, who do need assistance to secure their own
tenancy and the option of floating support if they are assessed as needing this. As outlined above, this may be as a “move
on” from supported accommodation when the young person is ready, but equally it may be that older young people, with
lower needs, could move straight into this option, bypassing the need to be in higher cost supported accommodation.
A key factor in the effectiveness of this option is the assessment of skills and aptitude to manage independently, as is
support for the young person to continue to engage in education, training or employment. The provision of flexible floating
support, which focuses not only on housing support, but on education, training and employment should be available, even if
it is just for a short time. For most young people who will access this option, they will be assessed as ready and able to
manage their own accommodation, perhaps with medium to low level floating support.
But increasingly commissioners recognise that there are other young people, who have higher, often complex or multiple
needs, which cannot be easily met in the usual hostel or foyer type provision. Some young people with multiple needs are
evicted from larger supported accommodation provision and in a “revolving door” situation, ending up with no options,
sometimes with intentional homeless decisions and placement in bed and breakfast as a last resort.
One way of better tailoring support is to create small shared or sometimes self-contained accommodation with a high level of
specialist floating support. Examples of the young people who might need this sort of intense floating support are those with
multiple needs, such as substance misuse, mental health problems, offending behaviour and anger management problems.
Others may have learning disabilities or difficulties, for example, autism or ADHD. Some young people who are exiting
gangs or escaping gang violence may need to live in small self contained or shared accommodation.
What might this option look like?
Based on current and projected trends21 and new powers (see Section 7 below re: the Localism Act powers), it is expected
that young people in housing need will access the private rented sector in larger numbers. This will be, for the vast majority,
21See Joseph Rowntree Foundation publication , June 2012 – “Young People and Housing: Identifying Policy Challenges and Solutions for 2020”
Authors: David Clapham, Peter Mackie, Scott Orford, Kelly Buckley and Ian Thomas , with Iain Atherton and Ursula McAnulty
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shared accommodation – a bedroom with shared cooking and bathroom facilities22.
Where a young person is not in priority need but is at risk of homelessness, there is still a wide variety of ways in which a
local authority, with its voluntary and registered provider partners, can assist young people to access private rented
accommodation. These are best described in a recent publication by Crisis 23. A social lettings agency approach can be run
by a local authority, a voluntary sector or Registered Provider. Social lettings agencies are professional services which
attract landlords willing to let to clients which local authorities work with, including young people. Giving landlords incentives
to take young people is essential and the Crisis report outlines some real examples of what assists in getting landlord
confidence. Examples include:








Bond schemes and rent deposit schemes
Rent in advance
Rent paid direct
A named contact person and a 24 hour helpline
Floating support if needed,
Giving landlords a choice of young people,
Putting forward young people who have done some life skills/tenancy training
Providing assistance/advice with tenancy matters, e.g. HMO registering
As well as facilitating direct lettings between private landlords and young people, a Registered Provider or local authority can
also take accommodation on lease or license and place young people into this option, issuing them with a license
agreement. In some cases this may be in order to prevent homelessness and a slightly higher level of housing benefit is
payable due to the additional housing management costs incurred24. A stay in leased or licensed accommodation can be a
helpful short stay option and may enable the young person to gain experience and a positive reference, to then move on
after the agreed period into their own tenancy. But due to the higher level of housing benefit payable on this type of
accommodation, there is a risk it may mean the rent is unaffordable if a young person gets a job. Alternatively they may be
able to take on the tenancy themselves with the agreement of the landlord and in effect, this would be the final stage of the
22The Shared Accommodation Rate is now up to the age of 35, so housing benefit is only payable for under 35s in any local area up to the cost of a room in a shared house.
The exemptions are care leavers up to their 22 nd birthday and those who have lived in homeless resettlement accommodation for up to 3 months, but this exemption only starts
at the age of 25 and over.
23See Crisis publication – “Working with the private rented sector to tackle youth homelessness :A toolkit” by Jane Luby, Jackie Gallagher and Janet Clark. March 2012
24Note - at the time of writing – August 2012, DWP will be consulting on the proposed changes to the temporary accommodation subsidy arrangements in the next few
weeks/months.
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positive pathway.
Another option open to local authorities is the leasing of units of social housing and designating them for shared living for
young people, with floating support tailored to their needs.
7. Shared Student Style Accommodation
This type of accommodation is not widespread at the moment, but some local authorities and Registered Providers are beginning to
develop provision, recognising a critical gap. Arguably, the model described below is based on foyer principles. Many foyers are
currently working with higher needs and younger people because they are commissioned on that basis.
This type of provision is for young people with low support needs, who are capable of working, completing an apprenticeship, or
completing an FE course likely to lead to employment. It is for those who need stable accommodation in order to embark on
employment, training or further education or for those already in employment, training or further education that would otherwise
drop out because of housing issues. It is not envisaged that this group need housing related support as defined in Supporting
People terms, but there would be a need for some enhanced housing management and very “light touch” support possibly via
floating support or a college or training provider.
There would be strong links with FE colleges, training providers and Job Centre Plus. Referral routes could be linked exclusively to
colleges, training providers or employers.
For some it may be a move-on option from more expensive Supported Accommodation. For others they may have a job or be on a
training course but have come to the local authority facing eviction by parents/friends/relatives, or because of over -crowding.
The model emerging is based on shared accommodation for 1 or 2 years at a low and affordable rent, set around the Shared
Accommodation Rate for a local area.
Key elements of a stay in this accommodation could include:
 Mentors and positive role models living in the accommodation who have been there for a year or two
 An ethos of study, work and aspiration
 Partnership with colleges and local employers
 Evening classes and talks on literacy, parenting, anger management, drawing, music, budgeting, CV writing, fashion,
debating, numeracy, interview skills, poetry etc. etc. on the premises.
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



A social area
Residents committee, with a budget
IT facilities
Help to find and move on to settled accommodation
Locally different types of accommodation could be available, dependent on supply and availability, including clusters of small
shared units, larger blocks of accommodation, shared houses.
8. Moving on into settled accommodation
The type of housing a young person moves into will depend on local availability, their own economic position and
opportunities/relationships. Settled accommodation for young people is not necessarily for life, nor is it necessarily self-contained
Many young people will be sharing accommodation with others in the private rented sector.
Local authorities now have the power to discharge the main homelessness duty 25 by offering a tenancy in the private rented sector.
The Localism Act 2011 enables local authorities to end the main homelessness duty by arranging an offer of suitable
accommodation in the private rented sector, without requiring the applicant’s agreement. The Act includes protections26to ensure
that the accommodation in the private sector will be available for a sufficient period of time to provide certainty for households. The
assured shorthold tenancy must be for a minimum fixed term of 12 months and if the applicant becomes unintentionally homeless
again within two years of accepting the private rented sector offer, the main homelessness duty will recur regardless of priority
need.
Social housing is an option, but there is likely to be a marked change in access to this over the next few years as a result of:


some changes in legislation(as outlined above);
revised allocations policies in some local areas which seek to create more balanced communities by looking at, for
example, community contribution;
25The duty only applies to those who are eligible for assistance and are deemed to be in “priority need”. Young people leaving care up to the age of 21 and 16/17 year olds are
priority need groups, as are pregnant women and families with children, but most single 18-25s would not be priority need.
26At the timeof writingthere is a DCLG consultation underway on the proposed Homelessness ( Suitability of Accommodation) Order 2012 see
http://www.communities.gov.uk/publications/housing/homelessnessorderconsult
22


use of flexible tenancies for between 2 – 5 years; affordable rents, chargeable at 80% of the local market rent;
a reduction in the availability of social housing in many areas of England and in particular a shortage of single person
or one bedroom accommodation.
Some thought is now being given by some social landlords to the viability of shared social housing for young people.
Settled accommodation implies independence and the ability to manage with no or very minimal support. A short period of floating
support is often needed for some young people to help them settle in, and ideally for continuity, their key worker from the previous
accommodation provides this.
It is recognised that some young people, for example, those who are disabled or have enduring mental health problems, will
always need support, but moving into their own settled accommodation, even with a higher level of floating support, is the ambition
for the vast majority of young people.
Anna Whalen
August 2012
Bibliography:
 “Making Every Contact Count – A Joint Approach to Preventing Homelessness” published by the Department for
Communities and Local Government, August 2012.
 J.Rugg, Young People and Housing: the need for a new policy agenda. JRF 2010
 S.Hillman and J Slowey, Foyer Federation Discussion Note on Housing for Young People, for the Government Youth Action
Group December 2011
 St Basils Starter Homes initiative for young people report, ST Basils, HQN and Housing Corporation, 2008
 St Basils Customer Journey Final Report, MWB, 2006
 D Quilgars, S Fitzpatrick, N.Pleace, Centrepoint Thinkpiece - Ending Youth Homelessness: Possibilities, challenges and
practical solutions, Centrepoint and University of York 2011
 Tackling Homelessness and Exclusion: Understanding Complex Lives. JRF, Homeless Link, ESRC, 2011
 D Quilgars, S Fitzpatrick, N.Pleace, D Sanderson, S Johnsen,Statutory homelessness in England: the experience of
Families and 16/17 year olds. Chapter 12, DCLG 2008
 P.Maycock, ML Carr, E.O’Sullivan Homeless Young People, Families and Change: family support as a facilitator to exiting
homelessness, Children and Family Social Work journal, 2010
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InComE Project: Evaluation Report of the pilot phase, Shepherds Bush Housing Association
J.Luby, J.Gallagher, J.Clark Helping Homeless or Vulnerable young people get a home in the Private Rented Sector, A
Toolkit Published by Crisis. Note - due for publication in late February 2012
J.Luby, J.Gallagher, J.Clark – Working with the Private Rented Sector to tackle youth homelessness: A Report to Crisis.
Note - due for publication in late February 2012
R.Terry Improving housing outcomes for young people: practical ideas. JRF Programme Paper, JRF April 2011
K. Kelly, A Young People’s Charter on Housing, November 2010, JRF
Young and Homeless: A survey of services and local authorities Homeless Link December 2011
B McNeil, N Reeder and J Rich, A Framework of Outcomes for Young People. Published by The Young Foundation on
behalf of the Catalyst Consortium , July 2012.
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