Homelessness Reduction Bill

Natascha Engel Excerpts

3rd reading: House of Commons & Report stage: House of Commons
Friday 27th January 2017 Commons Chamber

[Mr Marcus Jones]

I beg to move amendment 10, page 11, line 19, at end insert—

193ZA Consequences of refusal of final accommodation offer or final Part 6 offer at the initial relief stage

(1) Subsections (2) and (3) apply where—

(a) a local housing authority owe a duty to an applicant under section 189B(2), and

(b) the applicant, having been informed of the consequences of refusal and of the applicant’s right to request a review of the suitability of the accommodation, refuses—

(i) a final accommodation offer, or

(ii) a final Part 6 offer.

(2) The authority’s duty to the applicant under section 189B(2) comes to an end.

(3) Section 193 (the main housing duty) does not apply.

(4) An offer is a “final accommodation offer” if—

(a) it is an offer of an assured shorthold tenancy made by a private landlord to the applicant in relation to any accommodation which is, or may become, available for the applicant’s occupation,

(b) it is made, with the approval of the authority, in pursuance of arrangements made by the authority in the discharge of their duty under section 189B(2), and

(c) the tenancy being offered is a fixed term tenancy (within the meaning of Part 1 of the Housing Act 1988) for a period of at least 6 months.

(5) A “final Part 6 offer” is an offer of accommodation under Part 6 (allocation of housing) that—

(a) is made in writing by the authority in the discharge of their duty under section 189B(2), and

(b) states that it is a final offer for the purposes of this section.

(6) The authority may not approve a final accommodation offer, or make a final Part 6 offer, unless they are satisfied that the accommodation is suitable for the applicant and that subsection (7) does not apply.

(7) This subsection applies to an applicant if—

(a) the applicant is under contractual or other obligations in respect of the applicant’s existing accommodation, and

(b) the applicant is not able to bring those obligations to an end before being required to take up the offer.”

This amendment provides that a local housing authority’s duty to an applicant under section 189B(2) of the Housing Act 1996 (inserted by clause 5) comes to an end, and the applicant does not proceed to the main duty under section 193 of that Act, if the applicant refuses a final offer of an assured shorthold tenancy of at least 6 months or an offer of social housing under Part 6 of that Act. In either case, the offer would have to be of accommodation that is suitable for the applicant.

[Madam Deputy Speaker (Natascha Engel)]

With this it will be convenient to discuss the following:

Government Amendment 11, page 11, leave out lines 29 and 30

This amendment, and amendments 12 and 13, limit the grounds on which a notice can be given under new section 193A of the Housing Act 1996 (inserted by clause 7), so that it can only be given if the applicant deliberately and unreasonably refuses to take a step that the applicant agreed to take, or that was recorded, under new section 189A of that Act (inserted by clause 3).

Government Amendment 12, page 12, leave out lines 9 to 11

See amendment 11.

Government Amendment 13, page 12, line 16, leave out from “refuse” to “after” in line 17 and insert “to take any such step”

See amendment 11.

Government Amendment 14, page 13, line 16, after “made” insert “by a private landlord”

This amendment, and amendments 15 and 16, make it clear that a final offer of an assured shorthold tenancy would not be made by the local housing authority itself, but rather be made by a private landlord and approved by the authority. A local housing authority cannot grant an assured shorthold tenancy - see sections 1 and 19A of, and paragraph 12 of Schedule 1 to, the Housing Act 1988.

Government Amendment 15, page 13, line 19, leave out “by or”

See amendment 14.

Government Amendment 16, page 13, line 29, leave out from “not” to “unless” in line 30 and insert “approve a final accommodation offer, or make a final Part 6 offer,”

See amendment 14.

Amendment 17, page 13, line 39, after “if” insert “—

(a) section 193ZA(3) disapplies this section, or

(b) ”

This amendment inserts, into section 193 of the Housing Act 1996, a reference to section 193ZA of that Act (inserted by amendment 10), under which section 193 can be disapplied.

Government Amendment 18, in clause 9, page 15, line 6, after “section” insert “193ZA or”

This amendment allows an applicant to request a review of a local housing authority’s decision as to the suitability of accommodation offered to the applicant by way of a final accommodation offer or a final Part 6 offer under section 193ZA of the Housing Act 1996 (inserted by amendment 10).

Government Amendment 19, in clause 12, page 17, line 22, after “section” insert “193ZA(6) or”

This amendment applies the provision in article 3 of the Homelessness (Suitability of Accommodation) (England) Order 2012 (S.I. 2012/2601), about when accommodation is to be regarded as unsuitable, to a decision by a local housing authority as to whether they should approve a final accommodation offer by a private landlord for the purposes of section 193ZA of the Housing Act 1996 (inserted by amendment 10).

Government Amendment 20, in clause 12, page 17, line 26, leave out “vulnerable person” and insert

“person who has a priority need”

This amendment applies the provision in article 3 of the Homelessness (Suitability of Accommodation) (England) Order 2012 (S.I. 2012/2601), about when accommodation is to be regarded as unsuitable, to accommodation secured by a local housing authority, in discharge of their duty under section 189B(2) or 195(2) (inserted by clauses 5 and 4, respectively), for all persons who have a priority need rather than just “vulnerable persons”.

Government Amendment 21, in clause 12, page 17, leave out lines 32 to 37

See amendment 20. This amendment removes the definition of “vulnerable person”.

[Mr Jones]

This is the last set of Government amendments and I am grateful for the forbearance of the House. As I explained on the last group, we identified a number of issues with clause 7 that we were unfortunately unable to resolve in Committee. This group contains the core corrections to clause 7. We have already discussed the related amendments to clauses 4, 5 and 6, and this group also contains related amendments to clauses 9 and 12.

Amendment 10 delivers an important change, and has been laid following extensive discussion with the local government sector and with Crisis and Shelter. It deals with the consequences for applicants of refusing offers of accommodation made by the local housing authority during the relief duty. The Bill already provides that the local housing authority can bring the relief duty to an end if an applicant refuses an offer of suitable accommodation. The applicant can then go on to the main homelessness duty under section 193 of the Housing Act 1996, if they are owed it. We believe it is right that where an applicant is made a suitable offer under the relief duty, they should not be able to move into the main duty by refusing that offer. That is an important part of the balance between rights and responsibilities for applicants. However, it is also essential that, if the offer is intended to be the applicant’s final offer, appropriate safeguards are in place.

Amendment 10 provides that where an applicant refuses an offer and the relief duty is ended, the applicant will not proceed to the main duty, but that will apply only if the offer reaches a particular standard. The offer must be either a final accommodation offer or a final part 6 offer, and the applicant must be informed of the consequences of refusing and of their right to request a review of the suitability of the accommodation. A final part 6 offer is a suitable offer of social housing. A final accommodation offer is an offer of an assured shorthold tenancy with a term of at least six months in the private rented sector.

Amendments 14, 15 and 16 clarify that a final offer of an assured shorthold tenancy made to an applicant who has refused to co-operate will be made by a private landlord. This clarification brings the clause in line with other provisions relating to private rented sector offers in the homelessness legislation.

Amendments 17, 18 and 19 reflect the relevant changes introduced by clause 10 to the relevant parts of the Bill, including providing that the applicant can request a review of the suitability of the accommodation and that appropriate suitability requirements apply.

The last set of amendments to clause 7 relate to another issue we identified during Committee stage. At the moment, clause 7 is drafted in a way that means that the definition of deliberate and unreasonable co-operation is drawn more widely than we intended, covering co-operation with the local housing authority in the exercise of its functions under the prevention and relief duties. Amendments 11, 12 and 13 make it clear that the provisions apply only when the applicant’s refusal to co-operate relates specifically to the steps set out in their personalised plan.

Finally, on amendments 20 and 21, clause 12 amends article 3 of the Homelessness (Suitability of Accommodation) (England) Order 2012. Article 3 currently requires that when a local housing authority approves an offer in the private rented sector for those in priority need under the main homelessness duty, additional checks are required to ensure the property is in reasonable physical condition, is safe and is a well-managed property. Those additional checks are extended by clause 12 to those defined as vulnerable persons and to secured accommodation in the private rented sector under the new homelessness prevention and relief duties.

Hon. Members on both sides of the Committee were concerned that the protection did not go wider. In particular, the hon. Member for Westminster North (Ms Buck) suggested that other types of applicant should be afforded this protection, including families with children and pregnant women. These concerns were echoed by my hon. Friends the Members for Mid Dorset and North Poole (Michael Tomlinson), for Colchester (Will Quince), for Northampton South (David Mackintosh) and for Chippenham (Michelle Donelan). I have listened carefully, and I am pleased to bring forward amendments 20 and 21 to provide that these additional checks be made in respect of all those with a priority need where the local housing authority secures private rented sector property under the new prevention and relief duties.

In conclusion, this is an unusually long list of amendments for the Report stage of a private Member’s Bill, but I have worked closely with my hon. Friend the Member for Harrow East (Bob Blackman), the local government sector and homelessness charities to ensure that the Bill is fit for purpose, and I want again to thank them all for their efforts in putting together what is now a very strong package.