Localism Bill

Lord Adebowale Excerpts

Tuesday 7th June 2011 Lords Chamber

[Lord Adebowale]

My Lords, I should declare an interest as chief executive of Turning Point, an organisation that provides community commissioning services in many local authorities; and as a member of the Audit Commission, which, as I have often said, is a struggle.

The Government’s Bill initiates a power shift; a shift of power from central government to local communities, and in my view that is a good intention. The experience of my own organisation in working with many local communities is that communities in the greatest need understand to a far greater extent than they are given credit for by their local authorities what those needs are and how they can be met in more imaginative and, indeed, cost-effective ways. Moves to further empower communities through the right to challenge public services should be welcomed. I want to say a bit more about that and then refer to the issues raised by the provisions in the Bill on housing.

However, my concern is that many of the local communities that would benefit from being empowered are often in the most deprived areas and are the most deeply affected by unmet needs, with the related unemployment, low skill levels and health inequalities that are the inevitable result. Communities often know what they want, but are denied access to the resources necessary to become empowered. It is true that all communities should have the chance to assert the right to challenge, but my concern is that there will not be equality in resource and social investment in these communities. This point was also made by the noble Lord, Lord Patel of Bradford.

Turning Point’s experience of supporting over 100,000 people in these communities to develop new services has led me to believe that, by empowering communities, a challenge to the local authority is often created. Generally, power is not given up without a fight. While I can see that the intention is to give communities the right to request, there is no duty to provide the resources necessary for communities in the poorest areas to gain the necessary skills, infrastructure and resources to fight the power. It should not be assumed that local communities, particularly in the poorest areas, are formed by some magical process, and it should not be assumed that such infrastructure and empowerment is free. Indeed, Turning Point has found that it is not a lack of money in many places, it is how the money is spent and who is making the decisions on behalf of communities. There is a risk of the Bill unintentionally exacerbating the inverse care law as it applies to power and power differentials between the poorest and the richest communities.

I turn to housing issues, which again were also raised by the noble Lord, Lord Patel of Bradford. There is of course a crisis in the balance between supply and demand for housing in the UK, and no more starkly are the effects of this imbalance felt than in social housing. I am concerned about the intention to remove lifetime tenancies while reforming the homelessness duty accorded to local authorities. These reforms are intended to free up the availability of social housing, but they will have the opposite effect. These proposals may have unintended consequences that will oppose what this legislation is setting out to achieve.

It is acknowledged that there is a need for a significant period of stability when someone is given access to social housing. I question whether the time limits set out in the Bill are long enough for individuals with entrenched and complex needs to make the changes required to create stability in their lives. Limited tenure is likely to obstruct the social good of mixed and diverse communities. The social housing population is likely to become more transient, which could lead to further alienation as the social capital which maintains healthy, resilient communities is lost. While these reforms will affect only new applicants, eventually it is likely that the people who access social housing are those with the most entrenched and complex needs. This will act to further increase the stigma already attached to social housing and those who access it.

Similarly, limited tenure may act as a disincentive for people to improve their situation, which would go against the intention of the Bill. Those who excel in education and employment opportunities, or who work to challenge their substance misuse or seek support in addressing their mental health difficulties, could actually be penalised, and the security of their home may be taken away. This uncertainty is likely to increase if local authorities are given the right to discharge their homelessness duty through offering a private-sector tenancy of 12 months without the prior consent of the tenant.

We all know that the private rented market is more unstable than social housing. There is also the increased risk that those with complex needs may become further alienated from the source of support that they should expect, which again is a point made by the noble Lord, Lord Patel of Bradford. The vagaries of some private landlords who put profit before tenants will be given free rein to take advantage of some of the most vulnerable in society. For instance, research by Shelter found that some landlords target those with substance misuse difficulties and other challenges in the belief that they will be more amenable to poor-quality, shared accommodation. The links between mental health and housing also show the wider effects of these reforms. Poor housing can contribute to mental health difficulties and, similarly, people who experience mental ill health can find it difficult to access quality accommodation. According to the mental health charity Mind, research suggests that people with mental health difficulties are twice as likely to be unhappy with their housing and four times as likely to say that their housing makes their health worse.

The impact of complex needs can mean that it is harder for some people to maintain private sector tenancies, especially without the increased support often available through social housing. Yet it is possible to have a situation in which the most vulnerable in society can be given private tenancies without their consent, which could exacerbate their problems and cost more in the long run. Housing is a crucial element of health and well-being—an agenda that is given increasing prominence. For the clients that Turning Point and other organisations support, stable, appropriate housing is well established as a key component in recovering from substance misuse, mental health and, indeed, managing issues such as learning disabilities. These reforms should not be allowed to endanger this hard-won progress and further obstruct government policy in other areas. I should like to hear specific remarks from the Minister on how those risks will be mitigated in the Bill.

To address that oversight, I should like assurances that those with complex needs who are given private sector tenancies will have the right to access social housing if they are again made homeless. It is important that any proposed reforms to social housing achieve a balance between accessible housing and ensuring that the most vulnerable people are not disadvantaged, and that their needs are met in resilient communities. There is no denying that this is a difficult balance to strike but it is crucial to the agenda of public service reform that the Government are pursuing.