Swansea Exceptional Conditions and Cold
Weather Plan for Rough Sleeping 2014/15
1.0
Introduction
1.1
This document outlines the measures the City & County of Swansea and
its partners currently provide to rough sleepers to try and reduce the risk
to rough sleepers during winter months and the additional measures to be
implemented during times of exceptional cold. It also outlines special
measures for use all year round in exceptional circumstances.
1.2
The main aim of the plan is to make sure that no one dies on the streets
due to severe weather. This is achieved through:
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1.3
Identifying rough sleepers: new rough sleepers should be identified and
helped off the streets immediately so that they do not fall into a dangerous
rough sleeping lifestyle
Involving the public: members of the public should be able to play an
active role by identifying people sleeping rough and their locations through
the Swansea Rough Sleeper Helpline 07824 991 448.
Assessing needs quickly and safely: rough sleepers should be helped
to access a place of safety where their needs can be quickly assessed
and they can receive advice on their options.
Accessing emergency accommodation and other services: they
should be able to access emergency accommodation and other services,
such as healthcare and support.
Reconnecting to support: if people have come from another area or
country and find themselves sleeping rough, the aim should be to
reconnect them back to their local community unless there is a good
reason why they cannot return. There, they will be able to access housing
and recovery services, and have support from family and friends.
For the purposes of this plan an exceptionally cold night will be declared
by the outreach teams based on predicted weather events in the locality
and will take into account the risk to someone rough sleeping during
extreme weather a combination of temperature and wind chill,
exceptionally strong winds (leading to danger from falling debris), and
precipitation events (risk of floods and snow fall). Outreach teams will
announce with as much notice as possible to partners when the plan is
triggered (or expected to be triggered) by such events for verified rough
sleepers. A verified rough sleeper will have been witnessed sleeping or
bedded down outside and they have no-where else they can stay (such as
a tenancy, place in a homeless hostel or shelter, or somewhere with family
/ friends). Any professional working in partnership with the LA can verify a
rough sleeper they have witnessed outside (although some further checks
may be needed to confirm they do not have somewhere else they can
stay). Members of the public are also encouraged to call the Rough
Sleeper Helpline to help the outreach team identify other potential rough
sleepers.
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1.4
The Local Authority has developed strong relationships with organisations
in the third sector to support and assist rough sleepers. The Local
Authority provides grant funding to a consortium of outreach providers for
the purchase of warm winter clothing and other essential items such as
sleeping bags. It can also be used to provide temporary accommodation
and travel expenses to access accommodation. As and when additional
funds become available for tackling rough sleeping, these will also be
spent at the discretion of the outreach teams in a manner that best
resolves an individual’s circumstance.
1.5
The Local Authority and partners continually monitor the level of rough
sleeping and has tried to identify regular rough sleepers who access
outreach services. The Local Authority and its partners will look to create
move on accommodation which will release spaces in direct access
accommodation, and the provision of B&B accommodation in
exceptionally cold conditions, as well as other measures such as opening
up of day centres and other non residential space / properties to help
rough sleepers avoid the social isolation in colder weather. Consideration
should also be given to extending emergency bed / floor space within
projects during times of exceptional cold from all providers within the city.
1.6
The Local Authority and partners will engage in rough sleeper counting
and identification exercises as required by the Rough Sleeper Task
Group, The Local Authority or Welsh Government.
2.0
Outreach with Rough Sleepers
2.1
A number of outreach services work with rough sleepers. These services
provide regular support, regular contact, rough sleeping equipment, health
services, food, training and educational opportunities, specialist advice
(e.g. legal) and will assist them to access accommodation enabling that
rough sleeper to exit the street lifestyle.
2.2
Grant funding is provided to the outreach teams to fund at their discretion
the following under this plan:
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Assisted moves into accommodation using a ‘Housing First / Individual
Budget’ approach.
Emergency B&B accommodation: short stays in B&B where an
individual is unable to access temporary direct access accommodation.
This should be considered particularly where new rough sleepers are
identified to prevent them from becoming embedded into street life. A
risk assessment will be carried out by outreach workers prior to any
placement being made. The Local Authority will review and monitor
available funds and seek to make more available as necessary through
the winter months.
Travel expenses: where a rough sleeper has support and potential
accommodation available elsewhere in the country and they wish to
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access this support and assistance, financial assistance to enable this
return can be made available.
Food, clothing and other survival equipment: funding can be used for
the purchase of warm clothing, sleeping bags as well as provision of
hot food as necessary.
Any other use that will benefit and support rough sleepers. The funds
are aimed at meeting emergency needs and not supporting
unsustainable lifestyles.
3.0
Christmas Arrangements
3.1
During Christmas, outreach services assist in the planning and coordination of Christmas meals over the holiday period. This service helps
tackle social isolation during over the holiday period and ensures rough
sleepers receive hot meals and warm clothing as required.
4.0
Extending Hours
4.1
During periods of exceptional cold and other extreme weather events,
consideration should be given to extending the opening hours of day
centres and other community buildings to allow access to day time
opportunities as well as food and other facilities to assist in the avoidance
of social isolation.
5.0
Homelessness Casework Outreach Service
5.1
Housing Options have dedicated a rough sleeper caseworker who can
proactively access known rough sleeper locations at appropriate times
when advice and assistance can be given to rough sleepers. The aims
and objectives of this work will be:
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Every known rough sleeper will have completed current applications
for housing
An assessment of their housing need based on current circumstances
Temporary accommodation provided where possible and appropriate
Personal housing plans completed to avoid unsustainable lifestyles on
the streets.
5.2
The Homelessness Casework Outreach Service provides the service
through engaging rough sleepers in locations and at times that are likely to
grasp this otherwise hard to reach client group. This housing advice and
assistance outreach can operate at times outside of the normal working
day and locations off site if needed. For example: Breakfast at Zac’s,
Cyrenians Resource Centre etc.
5.3
The Service relies on the continued support and assistance from outreach
providers. Outreach providers should consider the following to enable this
service to continue:
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Disseminate any known intelligence on rough sleepers and
possible rough sleeping locations to the Outreach caseworker and
other assertive outreach services such as The Wallich Breakfast
Run.
Provide access to projects as appropriate to allow casework
outreach to take place.
To engage with the personal housing plan recommendations
identifying possible support and accommodation needs.
Engage in the support for multiple needs rough sleepers and work
with the Multi Agency Team Co-ordinator for Homelessness to
assist in resolving the long-term homelessness of complex
individuals.
6.0
Emergency Accommodation
6.1
Any verified rough sleeper identified under this plan should be considered
for emergency accommodation in the following order:
1. Accommodation under s193 HA96 (if the rough sleeper is in priority
need).
2. Direct access accommodation
3. Swansea Church Nightshelter Project
4. Emergency Bed
5. Other space in residential projects (eg, lounge areas)
6. B&B and other accommodation such as temporary flats (subject to
availability and suitability for this type of accommodation).
6.2
The rough sleepers identified during this period should be referred to
Housing Options or the rough sleeper caseworker to identify any
homelessness duties owed by the local authority in the first instance.
6.3
The Local Authority requests a commitment from direct access providers
to prioritise vacancies in projects to non priority rough sleepers who are
(or will be during periods of exceptional cold) accommodated in
emergency accommodation under this plan and in particular rough
sleepers who are in need of the support available from these providers.
6.4
The Local Authority will seek to create voids in direct access housing, to
allow them to accommodate rough sleepers under this plan. These voids
will primarily be attained through the Move-on Strategy but will also
include other initiatives to create capacity.
6.5
Consideration should also be given by all partners to make emergency
bed / floor space available during the winter months and in periods of
exceptional cold. This could be residential and non residential buildings.
(Planning permission is not required for changes of use that are less than
28 days in any one calendar year). In previous years a number of
churches have made their premises available for rough sleepers as part of
their commitment to tackle homelessness. This approach is being
continued into 2015.
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6.6
An emergency bed currently exists on a night by night basis. This
bedspace is unfunded and access to the bed is through Breakfast at Zacs
in the first instance via agreed criteria. If the bed is unallocated after the
Breakfast run, then it will be allocated on a first come basis (subject to
meeting the eligibility entry requirements for DF and The Wallich). It is not
envisaged that the emergency bed would be allocated as an alternative to
other provision such as the church Night Shelter project unless there are
exceptional reasons for this. Caer Las & Dinas Fechan monitor demand
and access to this bed. Referrals for the emergency bed should be made
as early as possible, outreach teams will consider the most appropriate
accommodation options available for those not offered the emergency bed
space that night. Further emergency beds in other projects that are
negotiated can be offered in a similar manner.
6.7
Dinas Fechan will retain a power of veto in the allocation of the emergency
bed on any given day that they wish to allocate this space to a vulnerable
individual themselves. The decision to allocate the emergency bed
outside of the normal procedure above will be due to the need to bring a
particular rough sleeper in that night. Veto will be exercised as early in the
day as possible. It is not anticipated that this will occur, other than in
exceptional circumstances.
7.0
Ensuring service users are moved on in a timely manner to create
capacity in temporary accommodation
7.1
All providers are aware of their duty to ensure service users move on from
provision as soon as they are able to manage living independently, it is
particularly important to create capacity during the cold weather period.
7.2
The main vehicle for move on from direct access is through the Move On
Strategy however it is now increasingly important that other move on
accommodation options are considered. Whilst it is acknowledged that
the private sector may not be suitable for all, it should be considered as a
viable option for the majority of those seeking move on. Those individuals
accustomed to living in shared / communal environments and are capable
of managing independently with low level floating support for example,
may be suitable for flat / house sharing or bedsit accommodation in a
HMO. It is not always necessary for individuals to secure independent
sole occupancy accommodation as an initial move on from projects,
especially if loneliness and isolation has been identified as a support need
or cause of former homelessness.
7.3
During the winter months, the Local Authority may facilitate access to
private sector accommodation (e.g. rent deposits, agency fees, rent in
advance etc) if this will allow move on which would create space for a
known rough sleeper.
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8.0
Reducing exclusions from direct access accommodation during the
cold weather period
8.1
We acknowledge that from time to time it will be necessary to prevent or
restrict access to accommodation and services on health and safety
grounds to protect residents and staff alike. During the cold weather
period we would encourage providers to make every effort to avoid
evictions and exclusions from services and provision for non serious
matters (rent or service charge arrears and low level rule breaking).
Enhanced efforts should be made to engage with the service user and in
the case of arrears, reach an agreement to repay. The local authority will
consider requests for funds for such arrears if it will avoid eviction during
the winter months. This approach will be take into account engagement
with support to avoid further arrears accruing in the future.
9.0
Other exceptional circumstances
9.1
This plan also allows for other exceptional circumstances which will offer
an enhanced service to rough sleepers at other times of the year. It is
intended to assist a rough sleeper who would be placed at extreme
hardship due to unforeseen circumstances. Previously the risk identified
was Pandemic Flu, although other circumstances may require response
under the plan and will be detailed as they arise.
9.2
The Community Resource Centre will support and offer an unrestricted
health service to those who contract a Pandemic Flu virus. Vaccinations
and anti-virals are available to rough sleepers through the homelessness
nurse who demonstrate appropriate flu like symptoms.
9.3
Rough sleepers who contract a Pandemic Flu and given anti-viral from the
resource centre will be offered accommodation that is most appropriate to
their needs, in the interests of public health and subject to availability.
Options could include self contained accommodation in a variety of areas
within the city. B&B and shared housing environments will be avoided
where possible. Please refer to Housing Options for further assistance.
(Persons already in temporary or supported accommodation projects will
be encouraged to confine their movements to their room and reduce the
risk of spreading infection).
9.4
Rough sleepers will be given a ‘flu pack’ tissues, disposal bag, drinks,
paracetemol etc. (Rough sleeper LA funding would cover this).
9.5
Where a rough sleeper has been accommodated due to contracting a
Pandemic Flu virus and has now recovered, direct access projects and
other housing providers are asked to give prior consideration to those
individuals when allocating beds.
9.6
Separate and similar guidelines are in place for those contracting a
pandemic virus who are not rough sleepers but are accommodated or
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supported in projects.
9.7
Besides cold weather, the other main weather events that may trigger this
plan are:
 Wind - High winds can be problematic and lead to an increased risk of
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injury through uprooted trees, falling walls, blown-off roofs and other
debris. Where there are common sleeping sites, all partners should
consider the risk of extreme wind and gales on these sites and the
potential resulting harm.
Rain - Excessive or sudden prolonged rain can lead to flooding and
landslides. Those sleeping under bridges, on river banks and near the
sea, streams and canals, may be particularly at risk, but this can also
extend to other areas including near drains. As well as increased risk of
drowning, extreme rain can result in health problems from being wet and
loss of important belongings such as identification.
There will be a discretionary consideration to take appropriate measures
for of these weather events using Met Office weather warnings as
guidance before deciding if this plan should be triggered.
9.8
During extreme and exceptional circumstances, this plan should be open
to all rough sleepers in the City & County of Swansea regardless of their
eligibility for housing or their historical involvement with services. The
priority of the plan is to preserve life.
10.0
Contact details and arrangements
10.1
The Homelessness Caseworker providing Outreach Advice Services can
be contacted during office hours in Housing Options on 01792 533100.
For emergency assistance outside of normal office hours contact: 01792
636000.
10.2
Rough Sleeper information cards and posters are distributed throughout a
number of public buildings and voluntary organisations. This information
will allow potential rough sleepers not engaged with outreach services in
Swansea to access help and provide assistance as necessary.
10.3
In 2013 Swansea launched a local Helpline for rough sleepers or
members of the public to identify new rough sleepers and unite them with
outreach services. The service is currently set up to receive text
messages and voice calls. However a national staffed helpline and
Smartphone app are due to be launched in the near future. The local
helpline number is: 07824 991 448
10.4
The Rough Sleeper Task Group will continue to meet on a monthly basis
(unless additional meetings are required). The purpose of this group
during winter months will be to ensure rough sleepers are able to access
services and the provision outlined in this plan. The group will also
monitor the effectiveness of this plan and make recommendations for
future winter plans. All member organisations of the group are requested
to send representation to the meetings where possible during winter
months.
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10.5
If agencies are approached for accommodation by a rough sleeper (or
have knowledge of where a rough sleeper can be found) during office
hours they should contact the following organisations:
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Swansea Rough Sleeper Helpline – 07824 991 448
Dinas Fechan – 01792 648031
Cyrenians Paxton Street – 01792 459288
Missionaries of Charity – 01792 463107
Housing Options – 01792 533100 (01792 636000 out of hours)
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Appendix:
Emergency Accommodation Flowchart
Is the rough sleeper
known to current
services as a verified
rough sleeper?
N
Refer to outreach
services for normal
input and forward
details to RS Helpline
Y
Does the rough
sleeper have
somewhere else
they can stay?
Rough Sleeper returns
home, stays with friends or
family or direct access
supported housing
Y
N
Is the rough sleeper
owed a temporary
accommodation duty
by the LA?
Y
Housing Options
will arrange an
offer of temporary
housing
Y
Refer to Swansea
Night Shelter
Church Coordinator
N
Is the rough sleeper
able to access the
Swansea Night
Shelter?
N
Is the rough sleeper
able to access an
emergency bed?
Y
Refer to Dinas
Fechan or any
other provision
Y
Placed in B&B under
the Winter Plan
N
Refer to social
services for any
assistance (eg
National Assistance)
N
Is the applicant able
to access bed and
breakfast
accommodation?
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