Homelessness Reduction Bill

Rupa Huq Excerpts

2nd reading: House of Commons
Friday 28th October 2016 Commons Chamber

[Bob Blackman]

When I set out on this journey, I did not realise just how much work was going to have to be done. If Members are bringing legislation to this place to change the law, I believe they should go through a long process and ensure that their Bills are thoroughly tested before they present them.

The Select Committee recommended that clause 1, on the extension of duties to 56 days, should be retained—and the Bill has been kept in line with that recommendation. The Select Committee also found that the Bill’s original measures on the consequences of non-co-operation did not offer sufficient support to vulnerable households. As a result, this aspect was completely reworked, with the bar for non-co-operation during the prevention or relief stage raised to the level of

“deliberate and unreasonable refusal to co-operate”

to ensure greater protection for vulnerable people. Further safeguards have been introduced to ensure that any household in priority need that is found to have deliberately and unreasonably refused to co-operate will be made an offer of a six-month tenancy. That change is supported by the homelessness charities involved.

The prospect of 56 days of emergency accommodation at the end of the prevention stage, regardless of priority need status, was criticised by the Communities and Local Government Committee. While it agreed with the idea in principle, it added:

“we also recognise the reality that it is not feasible for councils to provide accommodation to all homeless people.”

We heard evidence that suggested that there might be some unfortunate unintended consequences, such as the stimulation of the growth of a market in substandard temporary accommodation—warehouse-style accommodation, for instance—or the diversion of resources from vulnerable people.

Primary legislation is not a panacea. It is not always the best way of tackling an issue properly, especially an issue with a complex range of causes. I am therefore very pleased that the Government have now announced a package of measures—at a cost of £40 million—to tackle rough sleeping, with Manchester, Newcastle and Southwark becoming “trailblazer” councils for preventive work. I believe that that will be a far more effective and flexible way forward, and I commend St Mungo’s in particular for all the work that it does in this regard.

The Committee recommended that clause 2 include the words

“those who have experienced, or are at continued risk of, domestic violence and abuse”.

That has been duly done, and is covered by subsection (2)(d).

In respect of the proposed changes in the definition of a local connection, the Committee recommended that the definition in the original legislation be left unchanged. That too has been done, although a minor correction has been made to the original text to deal with a long-standing issue relating to care leavers, and to ensure that they are protected.

I thank my hon. Friend the Member for Northampton South (David Mackintosh), and his all-party group on ending homelessness, for all their support. I also commend the hon. Member for Sheffield South East (Mr Betts), the Chairman of the Select Committee, for all his help and guidance during this process, and for ensuring that the pre-legislative scrutiny was conducted in a fair, transparent manner. As a result, we have ended up with a Bill which I believe has all-party support.

I am also delighted to have secured Government support. I took into account the views of many interested parties, and on Monday the Government finally announced that they would back the Bill. They will fund the additional costs in line with the long-standing “new burdens” arrangements.

[Dr Rupa Huq (Ealing Central and Acton) (Lab)]

I am grateful to my near neighbour in north-west London for giving way, and I, too, congratulate him on his Bill. He has referred to local authority funding and the Select Committee’s report. That report estimates that there could be 1,100 potential “extra duty” cases for the London borough of Ealing, which already has 677 statutory homelessness cases. I am encouraged by the news that extra funding is on the way, and we await the full details, but does the hon. Gentleman share my concern about the revenue support grant? Ealing was a big loser last time round, whereas the grants for certain Tory councils such as Hampshire and Surrey went up. My borough estimates that our grant will fall by 65% by 2019-20, and it would be great if the Government would assist in that regard.

[Bob Blackman]

The hon. Lady tempts me to start talking about the revenue support grant, but I will not be so tempted. I do not wish to digress from the main aim of the Bill, which is, after all, to help to prevent homelessness in this country.

Over time the Bill is likely to save money, because if local authorities act earlier households will receive help earlier, and people will be prevented from becoming homeless and requiring more expensive accommodation. I thank the Under-Secretary of State for Communities and Local Government, my hon. Friend the Member for Nuneaton (Mr Jones), and his team of officials for working so hard to ensure that the Bill was in a suitable state to be passed.

I know that the Bill cannot do everything. It will not tackle issues relating to supply, and it will not be a magic bullet to clear the streets of homeless people overnight. What it will do, however, is introduce a long-term cultural change which will, over time, bring about a different way of working among local authorities that will stop people from getting into the terrible position of being homeless in the first place.

Let me relate just one story from my constituency. I will not name the individual concerned, but he had lived in west London and fallen on hard times. When he approached the local authority for advice, he found himself passed between various staff members before falling into an agreement with a housing association. He was evicted from that property, and moved further west. He approached the local authority there, and the local Member of Parliament. Again, he was passed between council staffers. He ended up sleeping rough sporadically, or in his car. After a while he was given a room by a support group, but he left the property shortly after beginning the tenancy as a result of a mutual agreement with the management. He then approached a third local authority.

It was at this point that the man contacted my office for help. That third local authority had told him that he could not be housed. No help was offered, despite his obvious need. My staff approached the office of an MP with whom he had had contact in the past, as well as a support officer who had helped him at one stage. There is a strong suspicion of an undiagnosed mental illness. Without a permanent address, it is difficult for the man to retain a single GP and obtain a diagnosis, and without a diagnosis, he is not considered vulnerable. The cycle just repeats itself. It is important to ensure that everyone is given help, advice and support from the start to prevent such situations from developing.

It is vital for Members, here and in the other place, to refrain from adding amendments to the Bill if it is to succeed. Private Members’ Bills are inherently vulnerable because they have a limited amount of time to get through Parliament, so amendments are likely to cause this Bill to fall in its entirety. I shall welcome short contributions from Members today, as well as volunteers to serve on the Bill Committee. Certain organisations have expressed concerns about the drafting of some clauses; if the Bill succeeds today, I shall undertake to investigate them fully in Committee.

The Bill has received the maximum possible pre-legislative scrutiny, so Members can be confident that it will be workable and has been properly costed. Homelessness is a complex issue, and no one piece of legislation can be the sole solution. The Bill is one part of a larger strategy, but it is a key part, and will produce a revolution in local authority housing offices.

I thank all those who have helped to guide and produce the Bill, but in particular I thank my long-suffering parliamentary assistant, who, over the past six months, has done virtually nothing except work on the Bill. The Government have proved their commitment to social justice in backing it, and, in doing so, have also demonstrated that the Conservative party, led by our current Prime Minister, is the truly reforming, progressive party that is delivering after 40 years of legislation that has prevented local authorities from offering a service to homeless people.