Homelessness among Refugees

Kate Green Excerpts

Tuesday 17th July 2018 Westminster Hall

[Sir Henry Bellingham (in the Chair)]

Before we start the debate, it might be of interest to colleagues that there will be a Division at half-past 3. If anyone would like to remove their jackets, they are welcome to do so.

[Kate Green (Stretford and Urmston) (Lab)]

I beg to move,

That this House has considered homelessness among refugees.

It is an enormous pleasure to lead the debate under your chairmanship, Sir Henry. I draw the House’s attention to my entry in the Register of Members’ Financial Interests on the financial support I received for research capacity in my office in relation to my work on asylum seekers, refugees and migrants. I apologise that that notification was not given in advance of the debate—I very much regret that omission.

Many of the debates that we have in this place regarding refugees and asylum seekers concentrate on the process of applying for refugee status. Prolonged delays, poor decision making, the irrational and cruel use of immigration detention, and the meanness of financial support provided through the National Asylum Support Service all rightly attract fierce criticism. However, what receives less attention—and this is the issue I wish to raise in today’s debate—relates to what happens when someone has the good news that they have been granted refugee status.

It is deeply concerning that even once asylum is granted, many refugees continue to experience homelessness and hardship. The homelessness charity Crisis reported that in 2016-17, 478 people—7% of those who approached it for help—had nowhere to live after leaving asylum accommodation. That was more than double the number in 2014-15. In a sample of night shelters over the winter of 2017-18, the No Accommodation Network report, “Mind the Gap”, which was published in May, found that 48 out of 169 people requiring emergency accommodation were refugees. In one shelter, 50% of the refugee guests had left asylum accommodation within the previous six months.

[John Howell (Henley) (Con)]

The hon. Lady raises a list of things that surprise people regarding how refugees are treated. Does she share, as I do, the concerns expressed by the recent Jesuit Refugee Service report on the discredited nature of information about refugees’ home countries? Given the breadth of our Foreign Office’s reach, how does she think that has come about?

[Kate Green]

It is obviously not the same for every single country or every individual asylum case. It is important that we recognise that our obligation to give refuge is shaped by international treaties and conventions that we are long signed up to, and which look on a case-by-case basis at the danger that an individual faces in their country of origin. We need to be clear that we have a robust decision-making process that properly assesses that danger, and be confident in presenting to the country that our process works well. Sadly, at the moment, delays and poor decisions mean that often it does not.

For those who gain refugee status, there is an issue of becoming homeless once they are recognised as refugees. The Refugee Council interviewed 54 refugees for a study in 2017, and found that none had secured accommodation by the time they left asylum accommodation, and that more than half had slept rough, or in a hostel or homeless shelter, after being granted status. The decision to grant status—a moment that should represent relief from fear and the chance finally to rebuild a shattered life—can instead become the start of a new nightmare.

The problem lies fundamentally in the incredibly short move-on period, which allows refugees a mere 28 days to leave Home Office accommodation after they have been granted refugee status, and to move from NASS to mainstream benefits. In that time, they must obtain their national insurance number, open a bank account, receive their biometric residence permit, navigate a complex benefits system, and find somewhere to live and, if they are able to work, a job, while settling into their new life. For many—mentally traumatised, struggling with poor English and disconnected from mainstream services—it is simply too much to cope with.

[Gavin Robinson (Belfast East) (DUP)]

The hon. Lady is making entirely the right points. In 2015-16, Northern Ireland had more than 100 refugees who we believed were in destitution. Is she aware that Belfast City Council commissioned the Law Centre of Northern Ireland to produce a refugee transitional guide? The Select Committee on Work and Pensions recognised that guide as describing best practice, and asked the Department to distribute it right across the United Kingdom so that when people find themselves navigating that system and process they get the best advice and help possible.

[Kate Green]

I am aware of the work of the Northern Ireland Law Centre, which was one of a number of organisations that helpfully briefed me for the debate. As the hon. Gentleman says, that guide is an extremely useful resource.

Although voluntary groups are providing such resources, the system is fundamentally making things harder for refugees. Their first universal credit payment will not be made for more than a month. Although advance payments are available, they cannot be paid until someone has a national insurance number and a bank account, and their availability appears not to be well signposted by either the Home Office or Jobcentre Plus. Meanwhile, local housing allocation rules may not give priority to new refugees, particularly those who move into a new area to be with other members of their community. Those factors are placing refugees at grave risk of homelessness and destitution.

[Dr Dan Poulter (Central Suffolk and North Ipswich) (Con)]

I congratulate the hon. Lady on securing today’s debate. It must have struck all of us in the Chamber that any of the challenges she has outlined that refugees face in beginning to engage with life in the UK—whether it be opening a bank account, getting a national insurance number or accessing appropriate healthcare—would be difficult for a British citizen to do within a 28-day period, let alone somebody who may not have English as a first language and who may well have a number of complex needs and family needs related to the reason they were granted refugee status in the first place. Does she agree that the key, take-home message from the debate is that the 28-day period needs to be reviewed, and the Government need to do more to facilitate extra support for a very vulnerable group?

[Kate Green]

I very much agree with the hon. Gentleman. Those points will be the thrust of the remainder of my speech.

[Neil Coyle (Bermondsey and Old Southwark) (Lab)]

I congratulate my hon. Friend on securing the debate. I am glad that she mentioned the 28-day move-on period, which the all-party parliamentary group on ending homelessness also recommended scrapping. Does she share my hope that the Minister will accept that recommendation for inclusion in the strategy, which is due by the end of the month?

[Kate Green]

I do, and I will be very interested to hear the Minister’s response.

I am grateful to charities and individuals who have shared stories to illustrate what it means for those who become refugees without either the resources or the home they need to rebuild their lives. The Boaz Trust, with which I have had the privilege of working in Manchester, told me about what happened to Mohsen, a 28-year-old man from Iran who arrived in the UK in 2015 and was found asylum accommodation in Manchester. He says:

“I left NASS in January 2018. They let me stay on for two more weeks because they knew I didn’t have anywhere to go. Then I stayed outside for 2 nights. It was very cold. After that I stayed in a shelter. After 3 weeks the NASS support stopped. Then after maybe three weeks my money came in from the Job Centre…When I left my NASS accommodation, I went to the council and registered with housing. I knew to do this because I have been here a long time. They said I am not priority, and I cannot have any hostel place. I applied for housing and I waited two months…At first the Council say there will be something in 4 weeks, then 8 weeks. In that time, I stayed at Boaz night shelter. Now I am in hostel and I am waiting for a house. I am bidding every week. It was hard staying in the night shelter, staying in different areas every night. During the day I have nowhere to go”.

Sadly, that is far from an untypical story.

[Paul Blomfield (Sheffield Central) (Lab)]

My hon. Friend is describing a situation that we certainly experience in Sheffield. Voluntary organisations and charities that work with refugees have identified another growing problem that is contributing to homelessness, which is an increasing number of people getting discretionary leave to remain. They are falling through the middle—they lose out on the support they were getting as refugees but do not have recourse to public funds. Does my hon. Friend recognise that that is another serious problem that the Government need to address?

[Kate Green]

I am grateful to my hon. Friend for raising that matter. It cannot be right that we allow anyone to be destitute in this country, whatever circumstances they find themselves in.

Mohsen’s story is far from untypical and the situation is even more dire for families with children, sometimes creating serious safeguarding issues. Asylum Matters told me about Bao, who was originally trafficked from Vietnam and received refugee status in November 2017 after going through the national referral mechanism. Less than one month later, his daughter was born. The family survived on £35 per week in asylum support, but that stopped and he did not know how to apply for benefits. When he tried to find a home, the council told him he would need to find private rented accommodation. The private landlords all wanted a deposit or guarantor, which he could not provide because he had no savings. An integration loan could have helped him, but he was refused a loan by the Home Office, which claimed he was already integrated because he had been here for such a long time. That meant he could not secure a private tenancy because he had no money to pay for the deposit. He and his baby daughter were destitute for nearly four months, forced to survive on the charity of friends for food and milk and somewhere to sleep—on their floor.

Such cases are cause for enormous concern. I am glad that the Government have accepted that there is a problem and have attempted a number of measures to deal with that, but although it is a pleasure to see the Minister in his place this afternoon, I am a little disappointed that the debate is not being answered by a Home Office Minister as I requested. Fundamentally, we need cross-governmental action to address a mismatch of policies across different Government Departments and the failure of any one Department to own the problem. I believe the Home Office should be taking the lead in joining up policy and procedures. I hope the Minister will share the breadth of my concerns with all of his ministerial colleagues.

[Tim Farron (Westmorland and Lonsdale) (LD)]

The hon. Lady is making some excellent points. Does she accept—I am sure she does—that a contributory factor to refugees being in severe hardship once they have been awarded status is that they are not permitted to work during the time that they are here? Would it not be better, not just for them and their families, but for the country, if they were able to potentially build up savings and contribute and pay taxes during the time they are waiting for their asylum case to be heard, so that they are ready to be fully fledged members of our society at the point at which they are given status?

[Kate Green]

I am grateful to the hon. Gentleman for making that point. I strongly support the right of asylum seekers to work when the Home Office has singularly failed to meet its own obligations to process cases and make a decision within the given timescale. As the hon. Gentleman says, allowing them to do so would enable them to maintain their skills, build up some savings and remain connected with the wider community. Although that may not be a matter for today’s Minister to address, it is certainly one that I strongly support.

Let us consider what action has been taken to date by the Government, because some initiatives have been welcome. The Home Office is rolling out the post-grant appointment service to smooth the referral to Jobcentre Plus for making an initial benefits claim. That follows a pilot in two regions last year, but there were some reports of problems. During a two-week period in February, the refugee support team at the British Red Cross asked 20 individuals in South Yorkshire about their experience of the warm handover pilot. Only one individual stated explicitly that they had received a phone call from Migrant Help, which provided the service. Eight individuals said they had not received any contact, while 11 were unsure whether they had. It may be that those are isolated cases, or that problems have since been resolved, but in a parliamentary answer to Baroness Lister on 29 June, Baroness Buscombe refused to publish the results of the Government’s evaluation of the pilot.

Although the commitment to provide advice and support to new refugees in the move-on period is a welcome addition to the new advice, issue resolution and eligibility contract, charities have seen communication from the Home Office that suggests that the support will be limited to operating the post-grant appointment service only. Advice and guidance in the move-on period must be more comprehensive if it is to address the issue of refugee destitution. In particular, closer working between the Government and third-sector providers is needed. I urge the Minister to encourage ministerial colleagues to publish the evaluation report on the post-grant appointment service pilot and to ensure that the lessons about the wider advice needs of refugees are acted on.

Of course, I am pleased that 35 asylum support liaison officers are now being appointed in a number of local authorities, funded by the controlling migration fund, but it is not clear how their work will be monitored and evaluated. I hope the Minister will say more about that this afternoon. The Government’s integrated communities fund is also intended to provide support for refugees, but again there is little detail as yet on how it will do that. Perhaps the Minister will be able to enlighten us.

It is welcome that national insurance numbers will now be included on the biometric residence permits that refugees receive. Usually, though not invariably, they arrive within a matter of days. That is helpful, because a national insurance number is required for payment of universal credit, although it is not necessary for making an application. The payment is essential for new refugees to pay for, among other things, their accommodation.

Significant problems continue with the issue of national insurance numbers. Some 65% of the new refugees seen by the British Red Cross in South Yorkshire over a two-week period in February during the move-on period had not had an application made to the Home Office for a national insurance number. Those who do not have one must complete the application process over the phone, which often takes 40 minutes. Apparently, 10 questions are asked at the start of the process before the individual is offered the services of an interpreter. Following that phone conversation, the new refugee has to attend a face-to-face appointment before the national insurance number is issued.

Those who lack a national insurance number include people who have joined a partner in the UK under the Dublin rules on refugee family reunion. The result is that sometimes quite large families are struggling to survive on the income from one single parent’s jobseeker’s allowance claim for six weeks or more, while their partner awaits their national insurance number. I have raised this issue previously with Home Office Ministers, but the problem remains unresolved.

Ultimately, this all places unnecessary barriers in the way of enabling new refugees to settle, receive benefits or wages and access suitable accommodation. Can the Minister say anything about what conversations are taking place across the relevant Government Departments to streamline and support refugees and to ensure that national insurance numbers are always issued swiftly and smoothly?

The Minister will be glad to know that I am now firmly in his ministerial territory. The Homelessness Reduction Act 2017 should be helpful, but its operation needs to be clarified and extended for refugees who are homeless or at risk of homelessness. Under the Act, from this October public authorities will be required to refer those at risk of homelessness to the local authority. That provision should be extended to cover providers of asylum accommodation.

[Andy Slaughter (Hammersmith) (Lab)]

I am glad my hon. Friend has mentioned the Homelessness Reduction Act. I led for the Opposition on that. There was a healthy degree of consensus then, as there seems to be in this debate. Is she, like me, looking for an assurance from the Minister that that consistency will now apply to extending the 28-day period to 56 days?

[Kate Green]

In a moment, I will ask the Minister exactly that.

Newly homeless people can get easement from job search requirements, being asked to focus instead on basic actions such as finding accommodation. That is at the discretion of their Jobcentre Plus work coach. It is not clear whether new refugees will be able to access a similar concession. In addition, refugees are treated as tier-two priority for alternative payment arrangements under universal credit. Alternative payment arrangements would mean, for example, that rent could be paid directly to their landlord, potentially making it easier for them to secure a tenancy. Will the Minister confirm whether any discussion is taking place between his Department and the Department for Work and Pensions on reprioritising refugees as tier one for alternative payment arrangements and on granting them easement from work search obligations so that they can concentrate on looking for accommodation?

Although the changes made to date are welcome, more is clearly needed to make them fully effective. The most important policy change to make, however, as has been alluded to around the Chamber this afternoon and which would ensure that newly recognised refugees do not end up destitute and at risk of homelessness, is to maintain Home Office support until mainstream benefits are ready to start, by extending the 28-day move-on period.

I am aware that on 3 July Baroness Williams claimed in a written answer to Baroness Lister that NACCOM’s “Mind the Gap” report

“does not show that these problems will be resolved by extending the 28 days period”,

but Ministers must be aware that there is widespread agreement among campaigners and, it would appear, in this House that it would do so.

At the very least, the move-on period should not start until someone receives all documentation, including a national insurance number, but I invite the Minister to be bolder. The Homelessness Reduction Act extends to 56 days the period during which someone can be deemed threatened with homelessness, and the universal credit waiting period is five weeks. The move-on period should be extended in line with those timescales—to have it otherwise is perverse and illogical.

In conclusion, the Government have more to do to ensure coherent, whole-system support across national and local government for those newly granted refugee status. We can be proud to give refuge to those who flee persecution and seek safety here and proud that refugees are welcome in our country, but too many begin their lives here in penury, and the system is to blame for that. Today, I hope that the Minister will take the chance to tell us the steps the Government will take to improve things.

--- Later in debate ---

[Kate Green]

I thank all hon. Members who participated in this excellent debate. It was really good to have interest from parties on both sides of the House, sharing the concern about how we welcome and look after refugees.

[Nigel Adams]

I apologise for interrupting the hon. Lady, but I did not manage to mention this point. I know that she is keen for the Home Office to engage with this matter and I will ensure that the relevant Minister from the Home Office meets her and interested colleagues to take these issues forward.

[Kate Green]

I am very grateful to the Minister. I am sure that the all-party parliamentary groups that my hon. Friend the Member for Bristol West (Thangam Debbonaire) and I chair will be very happy to facilitate that meeting.

As we heard in the debate, what refugees, in common with all of us, need to be able to settle and build their lives is a chance to be in contact with their families, a chance to have a decent job if they are able to work and, importantly, a chance to have a secure home. As the Minister, I think, has acknowledged, that requires a response right across Government, and I am very grateful to him for his offer to pass on details of this debate to his colleagues in other Departments.

We have obligations—international obligations and human rights obligations—to ensure that we care for refugees here properly, and that will require an approach that extends right across national and local government, as I have said. I hope that the promises that the Minister has made of new policies and strategies delivering an improved service for refugees will come to fruition and will mean that some of the problems identified in today’s debate become a thing of the past. I can assure him and his ministerial colleagues that if that is not the case, we will be back here again to press the case for action in the best interests of refugees.

Question put and agreed to.

Resolved,

That this House has considered homelessness among refugees.