Housing Strategy

Priority 4 - Supporting People to Live Independently for Longer in their Own Homes

What the evidence says

 

‘……supported and specialised housing has a critical role to play in helping vulnerable households to live independently in Pembrokeshire…..’

 

‘Housing-related support in its broadest sense can take many forms…..’

 

‘….a large element of housing related support in Pembrokeshire is directed towards addressing and preventing the risk of homelessness through e.g. crisis interventions….’

 

‘In Pembrokeshire we are undertaking a significant programme of remodelling our sheltered housing schemes to bring them up to more modern standards…’

 

‘….we rely on our commissioners within health and social care services to identify the accommodation needs……’

 

‘Many of those receiving such support may have multiple needs and the degree and type of support required can vary.’

 

‘….need for strategic alignment between the HSG Strategy and the emerging Local Development Plan’

 

‘people have delayed seeking help during the pandemic and now are presenting with much more complex health issues’

 

‘……..increasing demand for adaptations due to the removal of the means test for small and medium scale adaptations….’

 

‘…….capacity in the construction sector caused further delay to the process for securing estimates and completing works….’

 

‘…..important to recognise the additional budgetary implications of Pembrokeshire’s growing older population.’

 

‘……pressure is being felt in respect of the demand for disabled adaptations for our council tenants….’

 

‘…….we need continue to explore opportunities for the imaginative use of budgets across our health and care partnerships…..’

 

Summary analysis

Housing support services have a critical role to play in enabling access to housing, preventing the loss of housing and supporting people to remain living independently due to emerging or pre-existing vulnerability. Recognising that our housing needs can change during the course of a lifetime, housing support services are a critical aspect of efforts to prevent homelessness, prevent social exclusion or isolation as well as supporting people to live independently and well for longer. Housing support services therefore have a role to play in terms of interventions which can prevent the loss of independence and the need for costly health and care interventions, as well as enabling access to housing for people who otherwise might not be able to sustain independence without that support.

Housing-related support in its broadest sense can take many forms including services which can prevent or support people through a crisis such as homelessness through to the provision of adaptations to support independence. Although the funding routes for adaptations and Housing Support Grant differ, both interventions play a role in helping sustain or regain suitable housing.

The Housing Support Programme (HSP) Strategy specifically sets out our approach to ensuring the provision of a range of jointly commissioned services including short-term interventions which help homelessness prevention and more general housing-related support services which support people to live independently within the community. Therefore, in some cases the HSP-funded floating support complements statutory support services by sustaining the independence of people with specialised needs who otherwise might require some form of residential care, whilst in other cases the support might be short term in preventing homelessness. The services should ultimately reduce the need for costly intervention in these areas by other public services including health and social services and are periodically reviewed to ensure, for instance, quality and value for money. The HSP Strategy is aligned with our wider corporate planning to ensure the Housing Support Programme supports us to meet our overall ambitions for our County, particularly through our Corporate Plan. The Housing Support Programme (HSP) Strategy 2022–26 seeks to build on and complement the Homelessness Strategy and takes account of its six key objectives.

In understanding the need for housing-related support services local authorities must undertake a comprehensive assessment of needs every four years with a light touch review every two years. The last Housing Support Programme Needs Assessment, conducted by Hugh Irwin Associates, was published in January 2022 and informed the development and strategic priorities of the Housing Support Programme (HSP) Strategy 2022-2026. As well as involving engagement with council departments, the needs assessment included consultation with a range of stakeholders including statutory partners such as health and probation, the Council’s RSL partners as well as Housing Support Grant-funded support providers. The assessment was also informed by a wide range of data including from the local authority’s well-being assessment, homelessness and waiting list statistics, needs data from providers as well as comprehensive needs assessment data produced at a regional level including through West Wales Care Partnership (WWCP) and in respect of Violence Against Women Domestic Abuse and Sexual Violence (VAWDASV). The HSP Strategy identified 4 key priorities:

• Strategic Priority 1 - Strengthen early intervention and prevention services and specialized support to prevent homelessness
• Strategic Priority 2 - Ensuring people who are homeless or threatened with homelessness access the right home at the right time and in the right place as part of our Rapid Rehousing Approach
• Strategic Priority 3 - Further strengthen Housing Support Services
• Strategic Priority 4 - Work collaboratively to provide holistic, person-centered support with effective specialist interventions where necessary

Implementation of the HSG Strategy is overseen by the Housing Support Planning Board which meets quarterly and has the responsibility for the delivery of the strategic objectives as well as responsibility for the associated resources allocated by Welsh Government under the housing support programme. In terms of funding for the HSG Programme in Pembrokeshire, Welsh Government provided an indicative allocation of £3,738,664.79 in each of the three years 2022-23, 2023-24 and 2024 – 2025.

The information below is taken from the Needs Assessment and sets out the wide range of supported accommodation and floating support services and their providers at the time of the assessment:

 

ATEB

• Client category: Alarm service including sheltered/extra care
• Type of support: Fixed alarm services
• Client category: Over 55's
• Type of support: Floating support

 

CAIS

• Client category: Substance misuse issues
• Type of support: Supported accommodation
• Type of support: Floating support

 

Care in Hand

• Client category: Mental health/Learning disabilities
• Type of support: Floating support

 

Celtic care

• Client category: Mental health/Learning disabilities
• Type of support: Floating support

 

Elliots Hill

• Client category: Mental health/Learning disabilities
• Type of support: Floating support

 

Family Housing Association

• Client category: Over 55's
• Type of support: Supported accommodation

 

Goleudy

• Client category: People with a criminal offending history
• Type of support: Ex-offenders floating support

 

Hafal

• Client category: People with mental health issues
• Type of support: Supported accommodation

• Client category: Mental health/Learning disabilities
• Type of support: Floating support

 

Hafan Cymru

• Client category: Women experiencing domestic abuse
• Type of support: Women's refuge and move-on service
• Client category: Families
• Type of support: Supported accommodation

 

MIND

• Client category: People with mental health issues
• Type of support: Supported accommodation
• Client category: Mental health/Learning disabilities
• Type of support: Floating support

 

Community Visitors - PCC

• Client category: Generic support
• Type of support: Floating support

 

Pembrokeshire Care Society 

• Client category: Generic support
• Type of support: Floating support

 

Pembrokeshire County Council

• Client category: Mental health/Learning disabilities
• Type of support: Support accommodation

 

Pembrokeshire People First

• Client category: People with learning disabilities
• Type of support: Move on course

 

Pembrokeshire Youth

• Client category: Young people
• Type of support: Floating support
• Type of support: Supported accommodation

 

Pobl care and support

• Client category: Families
• Type of support: Floating support
• Client category: People experiencing domestic abuse
• Type of support: Floating support
• Client category: People at risk of homelessness
• Type of support: Emergency accommodation

 

Wales and West Housing Association

• Client category: Over 55's
• Type of support: Floating support 

 

Referrals for floating support services and supported accommodation are made through the HSG Gateway Service which developed both to provide a means of managing the referral of individuals to appropriate services but also to ensure the process is efficient for service users.

The HSP Strategy highlights that within Pembrokeshire, HSG funding is used by Adult Social Care to provide the following housing related support for service clients:

• Support in accommodation for people with a learning disability with service users receiving an annual review of their support by the Learning Disabilities social work tea, to ensure the right balance of HSG and Adult Social Care Services are in place.
• Specialist Mental Health floating support around which work is underway to develop step-down processes designed to ensure the support addresses defined needs and is timebound. Furthermore, drop-in service are being developed to meet the needs of those needing specialist mental health support.

Whilst much of the most intense support delivered through HSG is centred around homelessness, HSG also supports individuals who have housing related support needs but those needs are not centred on homelessness and more around sustaining independence. Sheltered housing is one of the most commonly understood forms of support housing where residents can receive the support of warden services which provide low level support to help them remain living independently. In Pembrokeshire we are undertaking a significant programme of remodelling our sheltered housing schemes to bring them up to more modern standards as we recognise the importance of this particular type of supported accommodation in supporting the needs of our ageing population. Extra Care housing is another example of supported living for older people that provides a more intensive level of support that can be stepped up to meet the varying needs of older people as they age. This is an area of housing, supported by evidence from the Assessment of Specialist Housing and Accommodation Need for Older People in West Wales, conducted for the West Wales Care Partnership, that we will be looking to expand in Pembrokeshire.

Many people receiving housing support may have multiple needs and the degree and type of support required can vary with HSG funding a range of floating support, supported accommodation refuge and alarm services. The Needs Assessment highlights that the highest number of referrals were received for:

• Generic / floating support / peripatetic (tenancy support services which cover a range of users’ needs)
• People with mental health issues
• People over 55 years of age exclusive of alarm service
• People with criminal offending history

In illustrating the wide ranging needs supported through HSG the table below describes the type of needs and numbers referred between January and December 2020:

 

Type of need	Numbers referred Jan - Dec 2020
Generic / floating support / peripatetic (tenancy support services which cover a range of users’ needs)	979
People with mental health issues	593
People over 55 years of age (must be exclusive of alarm service)	216
People with criminal offending history	160
People with physical and/or sensory disabilities	134
Women experiencing domestic abuse	95
Alarm services (including sheltered/extra care)	86
Young people with support needs (16-24)	82
People with alcohol issues	74
People with learning disabilities	62
Families with support needs	58
People with substance misuse issues	54
People with chronic illnesses (including HIV/Aids)	46
Single parent families with support needs	36
Men experiencing domestic abuse	10
People with developmental disorders (i.e. autism)	6
Single people with support needs not listed above (25-54)	3
Young people who are care leavers	3
People with refugee status	1

However, it is important to recognise that support to help people remain independent can take many forms and whilst a significant element of support is delivered through HSG there are other support arrangements in place through health and social care services or through, for instance, carers, that are critical to helping people remain living at home.

Our approach

For the purposes of the Housing Strategy therefore, the key priority in terms of Pembrokeshire’s approach to HSG is through the delivery of the 4 priorities and 12 actions of the Housing Support Programme Strategy 2022-26. It is important to recognise that a number of the actions and associated activities centre on themes around improved collaboration with partners including Adult Social Care and NHS services, for instance around information sharing and improving access to mental health team support.

The strategy highlights the need for strategic alignment between the HSG Strategy and the emerging Local Development Plan in ensuring that future housing developments include a sufficient amount of one-bedroomed accommodation to meet the accommodation needs of clients needing and receiving housing related support. This needs to be reflected within the affordable Housing Development Programmes of the council and our RSL partners across short-term accommodation and long term accommodation needs. Examples range from the provision of accommodation to support the long term housing needs of people with a  learning disability to more short-term accommodation in support of homelessness prevention approaches. Similarly, we need to consider the identified housing needs identified within the assessments of housing need undertaken, for instance, through the West Wales Care Partnerships where many clients may receive individual support from social care providers but are not in receipt of housing support grant. We will take these key assessments into account in the planning and delivery of our affordable housing programme for new builds and acquisitions in ensuring new developments support the health and care needs of our local communities and support the wider health and social care economy. The affordable housing forward development programme will therefore need to be informed through engagement with the Housing Support Planning Board as well as the Social Care Accommodation Group in meeting the diverse needs of people receiving support from HSG and other funding mechanisms. The Provider Forum, which operated as an important platform for engagement between commissioners and providers has not met since the Covid-19 pandemic and we aim to re-launch meetings as an important route to developing quality services to meet our needs in Pembrokeshire.

The West Wales Care Partnership’s West Wales Population Assessment (June 2022) provides the latest high level strategic analysis of care and support needs of residents and support needs of carers across West Wales and follows the previous assessment published in March 2017. It assesses the extent to which those needs are currently being met and identifies where further improvement and development is required to ensure that individuals get the right support and are able to live fulfilled lives. The Assessment was undertaken to meet new requirements under Part 2 of the Social Services and Wellbeing (Wales) Act 2014 (SSWB Act). Section 14A of the Act requires that local authorities (LAs) and Local Health Boards (LHBs) jointly carry out an assessment of the needs for care and support, and the support needs of carers, in the LA’s area.

Importantly, for the purposes of the Housing Strategy, the assessment provides an important source for identifying key areas where housing has been identified as an issue for residents and carers with support needs under each area of need. Also, for the purposes of assessing contemporary housing-related support needs the assessment provides important analysis of the impacts of Covid-19 and the degree to which it has led to widespread social isolation, with lasting implications on mental health of older people. The report also highlights that people have delayed seeking help during the pandemic and now are presenting with much more complex health issues.

Whilst it is clear that a large element of housing related support in Pembrokeshire is directed towards addressing and preventing the risk of homelessness through e.g. crisis interventions it also takes a range of other forms designed to support people to live independently at home for longer. Pembrokeshire community alarm service is an emergency telephone service with special features to suit the visually impaired, hard of hearing and people with mobility and other disabilities. It enables individuals to receive rapid attention in an emergency. Telecare Services can include additional environmental & safety sensors which can support people with some forms of cognitive impairment to remain safely at home and enhanced lifeline and telecare service can provide reassurance services including welfare checks, or access to a response team in case of emergencies.

The Pembrokeshire Community Equipment Service, jointly funded by Pembrokeshire County Council and Hywel Dda University Health Board, provides a range of equipment including commodes, furniture raisers and hoists to enable people to maintain independence at home with equipment provided free of charge for as long as it required.

The provision of adaptations which support individuals to manage or be cared for in their own homes is another important form of support for independent living. Disabled Facilities Grants are the main source of help for disabled people who are owner occupiers or who live in in private rented accommodation providing funding towards small, medium or large adaptations. Whilst smaller adaptations can include items such as grab rails and ramps, larger adaptations can include more significant works including alterations to property layouts and extensions. Medium-scale adaptations generally comprise the provision of stair lifts and walk-in showers facilities.

Local authorities are under a statutory duty to provide Disabled Facilities Grants and funding support is provided by Welsh Government through a capital allocation and, in recent years, an additional Enable allocation to meet the increasing demand for adaptations due to the removal of the means test for small and medium scale adaptations. In Pembrokeshire we deliver grants and loans to support independence through the Housing Grants and Loans Service. The service deals with enquiries from both members of the public and health and care specialists and administers a range of mandatory and discretionary grants and loans through the council’s Financial Assistance Policy.

The budget for Disabled Facilities Grants in 2022/23 is £750,000 with an additional £241,000 Enable grant and demand for the grant is significantly higher than the allocated budget. The impact of the Covid-19 on the delivery of DFG’s was significant with a backlog in demand caused by the effects of lockdown which impacted severely on the workload and capacity of both the grants team administering the system and Occupational Therapists undertaking the assessments of adaptations required. Similarly, capacity in the construction sector caused further delay to the process for securing estimates and completing works. In April 2023, Welsh Government removed the means test requirement for small and medium adaptations of less than £10k and whilst there was an increased allocation of Enable funding to local authorities to help address the impact the increase in demand for small and medium grants through e.g. Discretionary Disabled Assistance, has been significant and has outstripped the additional grant with an overspend identified for 2022/23 and funding pressure expected for future years.

 

Budget for Disabled Facilities Grants in 2022/23

 

• Carried forward from 21/22: £581,503
• Approved 2022/23: £1,167,259
• Paid 2022/23: £1,117,252
• Forward commitment 2023/24: £1,231,490
• Overspend: -£126,076

Grant	Budget 22/23
Welsh Government Grant	£750,000
Enable	£241,176
Total	£991,176

 

Whilst taking into account the impacts of Covid-19 and the removal of means testing it is also important to recognise the additional budgetary implications of Pembrokeshire’s growing older population which is likely to account for a significant part of the growing pressure on budgets for both mandatory and discretionary Disabled Facilities Grant in the county. The Council is considering the budgetary implications for future years but it is unclear at present whether there will be additional funding forthcoming through Welsh Government’s allocation of Enable funding in future years.

At the same time, similar pressure is being felt in respect of the demand for disabled adaptations for our council tenants. During 2022/23 we carried out 211 adaptations for tenants living in council-owned homes at a total cost of £900,000. The works undertaken ranged from the provision of grab rails to larger adaptations to the property fabric. The same issues regarding lack of contractor availability together with in-house capacity have created delays to the waiting times for adaptations for our own tenants with average waiting times for small adaptations increasing from 127 to 171 days in 2022/23. We will be reviewing and monitoring the delivery timescales for adaptations for our tenants and will be developing new procurement arrangements and contractual frameworks with contractors to ensure we can increase capacity to deliver adaptations more quickly.

We also recognise the important preventative role that home improvement loans and grants can have through undertaking works which overcome a risk to health or safety or enable improvements in the home that can help sustain independence for longer. Our Home Improvement Loan scheme is prioritised to homeowners and landlords and can provide loans of up to £35,000 repayable over up to 10 years and is designed to make the property warm, safe and secure. Similarly, the Discretionary Lifetime Loans scheme can support homeowners who need Category 1 hazards to be remedied but cannot meet the financial eligibility criteria for a Home Improvement Loan. The Health and Housing Ancillary Assistance scheme is a form of financial assistance that can help secure works to remedy public health concerns or undertake other urgent works that protect the health and safety of the occupant. Each of these forms of assistance are designed to enable interventions which help people to live safely and independently for longer and are important additional tools which the council has at its disposal in support of this key priority. The challenge lies, inevitably in funding and in the absence of centrally funded grants the take up of loan support is low. Financial assistance through the Health and Housing Ancillary Assistance scheme is dependent upon the availability of appropriate funding such as integrated care funding and we need continue to explore opportunities for the imaginative use of budgets across our health and care partnerships, to support initiatives which enable our residents to live independently for longer. Taking into account our growing older population the potential further development of ‘charged-for’ Handyperson Services represents an opportunity for older residents to self-help by securing small repairs and adaptations with the confidence of knowing the service is endorsed and supported by the council.

Key achievements

• We have developed a Housing Support Programme Strategy 2022-26 to set out our approach to helping people live independently in the community.
• Community hub established in response to pandemic in March 2020 to provide advice and assistance to vulnerable households requiring support and advice during lockdown.
• Gateway Service established as single referral point for the management of referrals for HSG-funded support services to improve efficiency of system and ensure referral process is centred around needs of the service user.
• 2,698 referrals for SHG-funded support services handled between January and December 2020
• Over £1.1m worth of Disabled Facilities Grants approved during 2022/23
• 211 adaptations totalling £900,000 carried out in our tenants homes in 2022/23
• We have commenced a review of our sheltered warden scheme

Our priority actions

• P4.1     Deliver the Action Plan (12 actions and 50 activities set out under the 4 priorities) of the Housing Support Programme Strategy 2022-26
• P4.2     Support people to maintain and adapt their homes in order to help them remain living independently         
• P4.3     Maximise access to suitably adapted homes for people with specialised needs 

Challenges to delivery

• Supported Housing Grant allocation to Pembrokeshire County Council is low by comparison to neighbouring authorities impacting on the ability of support services to address the identified needs
• Ongoing high levels of homelessness and lack of move-on accommodation, especially for single persons, creating a significant ongoing demand for housing-related support services
• Staffing shortages affecting HSG funded services
• Impact of Covid-19 leading to accumulated demand for adaptations as well as increased need for housing-related support.
• Capacity of partner agencies to fully engage with clients in receipt of housing-related support services
• Removal of means test for small to medium adaptations has led to significant rise in demand for Disabled Facilities Grant and created increased budgetary pressure
• Staffing levels impacting on timescales for OT assessments and delivery of Disabled Facilities Grants
• Building/construction cost inflation impacting on the average costs of carrying out works to support independent living through DFG’s.

Detailing the actions

The HSP Strategy is framed over a 4 year period and its successful implementation will require the co-operation and commitment of a wide range of partners and stakeholders both in terms of delivery but also in monitoring and reviewing progress. There are 12 actions and 50 activities set out within the 4 priorities described in the Action Plan, the implementation of which will be overseen by the Housing Support Planning Board. Alongside delivering the action plan we will continue to seek parity with neighbouring local authorities on Supported Housing Grant allocation to Pembrokeshire.

To deliver against this action we will:

• P4.1.1  Deliver the action plan of the Housing Support Programme Strategy and ensure ongoing monitoring through quarterly meetings of the Housing Support Planning Board.
• P4.1.2  Undertake a formal mid-point review of the HSP Strategy during 2024.
• P4.1.3  Ensure there is strategic alignment between the HSG Strategy and the housing policies contained within the emerging LDP

We will continue to develop, deliver and promote services which support people to remain living at home for as long as possible both through the provision of adaptations but also through the delivery of preventative financial assistance.

To deliver against this action we will:

• P4.2.1  Ensure the efficient and effective delivery of disabled adaptations across all tenures.
• P4.2.2  Establish targets for improvement in the delivery timescales for disabled facilities grants from first enquiry to delivery of adaptations across all tenures.
• P4.2.3  Engage with partners across health and social care to explore the options for securing budget contributions in support of preventative grants and loans delivered through the Financial Assistance Policy.
• P4.2.4  Undertake a viability study on the expansion of charged-for Handyperson services in Pembrokeshire taking into account the potential of in-house delivery and the potential role of local RSL partners/Care and Repair.
• P4.2.5  Engage with other Welsh Authorities to determine impact of removal of means test for small and medium adaptations to inform discussions with Welsh Government on funding levels for Disabled Facilities grants.

To deliver against this action we will:

• P4.3.1  Develop an accessible homes register to integrate with the Choice Homes Housing Register to ensure adapted homes go to households most in need of the adaptations. (Year 1)
• P4.3.2  Undertake a feasibility study on the creation of a Demonstrator House which incorporates a range of adaptations and telecare systems to promote the options available to people with specialised needs including older people. (Year 1-2)
• P4.3.3  Regularly review and update advice and guidance on council website to ensure it supports people to access appropriate support to remain living independently. (Year 1-3)
• P4.3.4 Taking into account Pembrokeshire’s ageing population ensure the need for additional Sheltered and Extra Care accommodation is understood and is accounted for in the Forward Development Programme.(Year 1-2)