BATH AND NORTH EAST SOMERSET COUNCIL

SUPPORTING PEOPLE SHADOW STRATEGY

CONTENTS

1.0 EXECUTIVE MANAGEMENT SUMMARY

2.0 SUPPORTING PEOPLE SHADOW STRATEGY

3.0 THE OPTIONS AND STRATEGY

4.0 ANNUAL STATEMENT

1.0 EXECUTIVE MANAGEMENT SUMMARY

The Supporting People (SP) programme is the vehicle for delivering accommodation and support services to vulnerable people. The programme will bring together a number of funding streams into a local "pot" which will be administered by local authorities in the form of grants to providers from April 2003.

The aims of the Supporting People programme are:

· To promote independence and choice

· To create a range of flexible services

· To ensure the quality and value for money of services

· To be a tool for the delivery of other local plans and strategies

· To commission accommodation and support services in a strategic manner

1.1 Local Supporting People policy summary

Supporting People replaces previous mechanisms for the planning and delivery of accommodation and support services. The programme will draw on funding currently distributed by:

· The Housing Corporation - Supported Housing Management Grant (SHMG)

· The Department of Local Government, Transport and the Regions^* - Home Improvement Agency Grant

· The Home Office - Probation Accommodation Grant (PAG)

· Bath and North East Somerset Housing Benefit Department - Transitional Housing Benefit (THB)

· Somer Community Housing Trust - elements of the rent pool associated with the provision of sheltered housing

The ODPM requires local authorities to produce a Supporting People shadow strategy to cover the first year of the programme, together with an annual plan detailing how additional resources, if made available, would be allocated. Full details of government policy information is available from http://www.spkweb.org.uk

The focus of the shadow strategy is to allow the delivery of existing services to continue despite the implementation of new administrative arrangements. However, the strategy also aims to identify areas of unmet need which will be addressed by future annual plans, and to highlight Bath & North East Somerset approach to comprehensive service review.

The format for the shadow strategy and the questions it must address has been laid out by ODPM. This document follows that format.

The Bath & North East Somerset Supporting People Shadow Strategy sets out key objectives:

· Partnership working to achieve joined up planning

· Linkage to other strategies

· To provide increased choice to service users

· Prevention of homelessness

· To ensure that planing is inclusive

· To promote community safety agendas

· Crisis prevention through early intervention

· Improving provision for hard to reach groups

· User and carer involvement

· Openness and honesty

1.2 Links to other strategies

The SP shadow strategy has been developed with reference to the following key documents:

The Bath & North East Somerset SP Shadow Strategy seeks to highlight current inequalities in the provision of housing related support services across all SP client groups and to identify unmet needs.

The SP shadow strategy seeks to identify ways in which the SP programme in Bath & North East Somerset can complement existing strategic plans and initiatives, making best use of all available resources to deliver quality services whilst ensuring clear lines of responsibility between agencies.

Discussion of specific strategies and how they overlap with Supporting People in Bath & North East Somerset can be found in Section 2.6, Wider Strategic Links

1.3 Management issues

The ODPM has set out a framework for the delivery of Supporting People which has been adhered to locally in Bath & North East Somerset.

The pan Avon Supporting People group, with membership from all ex-Avon authorities, provides the mechanism through which services for more mobile groups such as homeless people can be planned and delivered.

The SP Decision Making Group, with membership from social and housing services, health and probation, continues to provide a steer for the delivery of the local programme.

Monitoring of interim contracts and a comprehensive three-year service review programme, beginning in 2003 will be the main quality assurance mechanism and will help to steer the future direction of the local programme.

Changes in the spectrum of services currently delivered will always be based on an open process of review, evaluation and consultation. Scheme reviews must take place before changes to services can be implemented.

1.4 Highlights from supply mapping

Supporting People has provided a significant driver towards the first comprehensive supply mapping of all supported and sheltered housing in Bath & North East Somerset.

Mapping has involved all providers of accommodation and associated support services. 80% of supply mapping forms have been returned to date.

Approximately 55 service providers deliver around 3000 units of accommodation based services and outreach/re-settlement support.

Somer Community Housing Trust is the largest Registered Social Landlord (RSL) in Bath & North East Somerset, managing 1621 units of sheltered housing. A number of other RSLs and voluntary sector providers are responsible for delivering the remaining services, with a significant contribution from the local authority social services department and charitable organisations.

The ODPM has provided typical supply profiles of provision that it would expect to see in Bath & North East Somerset based on national supply distribution figures and population data. These profiles have been compared to actual supply in Bath & North East Somerset in the tables in section 2.4

The overall level of provision in Bath & North East Somerset falls within the upper range (1254 - 3190) of the typical supply profile supplied by ODPM which represents the norm against which local authorities are expected to review local provision.

However, there are a number of key gaps which are highlighted in section 1.5 and analysed in more detail in Section 2.4, "Comparison to ODPM Supply Profile". Section 2.4 also identifies areas of provision where local needs information diverges from the supply profile, for example the need to increase provision for people with learning difficulties to enable individuals placed out of area to be "brought home" in line with "Valuing People".

The majority of services are accommodation based with the provision of floating support and re-settlement support being in the low end of the range when compared to the ODPM supply profile.

1.5 Summary of key needs identified

Supply mapping has identified a number of key areas of provision that fall below the typical supply profile supplied by ODPM. These include provision for the following groups:

· Homeless families with support needs, including teenage parents - a need for more units of accommodation and dedicated outreach/re-settlement support

· Offenders and mentally disordered offenders - a need for units of accommodation and dedicated outreach/re-settlement support

· People with drug and alcohol problems - a need for "wet" accommodation and tenancy sustainment support

· People with mental health problems - improvement and extension of existing accommodation and support services

· People living with HIV/AIDS - a need to further our understanding of the accommodation and support needs of local people

· Refugees - a need to further our understanding of the accommodation and support needs of local people

· Single homeless people with support needs - a need for tenancy sustainment, outreach and re-settlement support

· Women at risk of domestic abuse - a need for tenancy sustainment, outreach and re-settlement support

1.6 Contingencies and risks

The transition from current to new administrative arrangements will largely be delivered by the implementation of the Supporting People IT Plan (separate document). Contingencies for each aspect of programme delivery are included in the IT plan which covers issues such as payment of providers, holding information on interim contracts and means testing and charging.

The transfer of funds into the local SP pot will largely be based on the receipt of accurate data from the housing benefit department. The risk associated with underestimating Transitional Housing Benefit levels and other sources of revenue must be minimised in order that a smooth transition from current arrangements can be achieved.

The risk of identifying significant levels of unmet need during the course of comprehensive needs mapping in 2003/04 must be addressed and weighed up against the range of services currently being commissioned.

Mechanisms need to be set in place to ensure continuity of service in the event of a support provider being unable to continue to deliver their services. The SP Decision Making Group will be responsible for managing unplanned changes to services.

1.7 Summary of annual statement

The ODPM requires local authorities to consider how they would spend an additional 10% of revenue funding. The actual allocation will be announced later in 2002.

Examples of innovative schemes are requested along with proposals which will need to be costed. Innovations already identified (not in order of priority) include:

_ The development of a dry house for ex-offenders who have been through a programme of treatment in prison and who need accommodation and support to integrate them safely back into the community. Housing Corporation capital funding has been allocated, however revenue support is being sought from ODPM.

_ The re-provision of an existing supported accommodation scheme for people with mental health problems and the development of a "core and cluster" model of provision. Housing Corporation capital funding has been allocated, however revenue support is being sought from ODPM.

_ The re-provision of an existing supported accommodation scheme for people with learning difficulties and the development of a "core and cluster" model of provision. Housing Corporation capital funding has been allocated, however revenue support is being sought from ODPM.

_ The re-provision of a number of units of a national registered residential scheme for people with severe sensory impairments and the development of a floating support service to enable individuals to live more independently in their own tenancies. Some revenue funding in the form of SHMG has been identified, however further revenue support is being sought from ODPM

_ The extension of an existing floating support service for vulnerable young people and the development of a focussed service to support teenage parents. Some revenue funding in the form of Safer Communities SHMG has been identified, however further revenue support is being sought from ODPM

_ The extension of a newly commissioned floating support/tenancy sustainment service for ex-offenders. The service has been commissioned by Avon and Somerset Probation using PAG funding and aims to support tenants and individuals released from prison on probation orders. Further revenue is being sought from ODPM to develop the service to support those leaving prison having served sentences of less than twelve months, (i.e. not on a probation order), and those who have served full term sentences, (also not on a probation order, more likely to be serious offenders).

_ The development of floating support/tenancy sustainment services for tenants of Somer Community Housing Trust. Research has identified the need for support to tenants with drug and alcohol related issues and for advocacy/liaison type support to a range of other vulnerable tenants. This service would work alongside the existing anti-social behaviour team, who have both a support and an enforcement role, and the recently appointed community development officer who has a specific remit to address issues related to drug use. Revenue funding has yet to be identified and is therefore being sought from ODPM.

_ The development of re-settlement support for women who have experienced domestic abuse or for those who are at risk of losing their home. The service would compliment the work of the Women's Refuge in Bath & North East Somerset and would provide a more flexible service to women living in North East Somerset. Revenue funding has yet to be identified and is therefore being sought from ODPM

Guidance on the conditions for Supporting People Grant, including the rules on funding future or `pipeline' schemes, is currently at the consultation stage, but appears to protect projects coming into management in 2003/4. Pipeline status is being sought for a number of new services including accommodation and support for ex-offenders and the re-provision of learning difficulties, mental health and sensory impairment services.

Unmet needs identified as part of supply mapping will form the basis of proposals for additional revenue funding, however in the absence of an accurate local needs register proposals will need to be ratified by the relevant planning groups and a mechanism agreed for prioritising competing demands.

1.8 Consultation mechanisms

The development of the SP shadow strategy has been an inclusive process with contributions from partner agencies, service users and providers.

User involvement is key to commissioning services that meet needs. Bath & North East Somerset has consulted with service user and carer groups to consider issues for particular service areas. A wide range of planning groups have been canvassed and this has been another mechanism for user and carer involvement.

The Supporting People programme attaches particular importance to the inclusion of groups that can be hard to consult, including rough sleepers, women fleeing domestic violence and black and minority ethnic communities. A shadow strategy open day will provide an opportunity alongside postal consultation for this to happen.

The main planning groups for Supporting People are set out below:

· The Supporting People Forum

· The SP Decision Making Group

· Existing planning and strategy groups

· The Health Improvement Partnership Board

Elected Members and Chief Officers of Bath & North East Somerset Council, Health and Probation will sign-off the shadow strategy before submission to the ODPM at the end of September 2002.

The strategy will be reviewed annually by the groups listed above and will be subject to Council Overview and Scrutiny Panels.

1 SUPPORTING PEOPLE SHADOW STRATEGY

2.1 The Bath & North East Somerset Supporting People Vision

The Bath & North East Somerset Shadow Strategy Vision outlines the key aims of the Supporting People programme locally, including key objectives set, and expected outputs. The Vision has been developed in consultation with a range of local stakeholders, including service providers, planners and users

2.1.1 Aims of the local programme

The Bath & North East Somerset SP Shadow Strategy seeks to highlight current inequalities in the provision of housing related support services across all Supporting People client groups and to identify unmet needs.

The Shadow Strategy will seek to identify ways in which the Supporting People programme in Bath & North East Somerset can complement existing strategic plans and initiatives, making best use of all available resources to deliver quality services whilst ensuring clear lines of responsibility between agencies.

The Bath & North East Somerset Supporting People shadow strategy will deliver services which prevent homelessness, promote independent living and are delivered in an appropriate and timely manner.

Specific Local Aims

· Partnership working with local stakeholders will help to ensure that the Supporting People programme in Bath & North East Somerset makes a significant contribution to local community planning and social inclusion agendas.

· We will take an active role in linking the Supporting People strategy into other programmes and initiatives

· We will work towards the provision of a wider choice and range of high quality housing related support services, including specialist accommodation, for vulnerable people in Bath & North East Somerset

· We aim to decrease levels of homelessness in Bath & North East Somerset by ensuring the provision of appropriate tenancy support for vulnerable people

· We will develop our inclusive approach to strategic planning which does not disadvantage hard to reach groups or people from black or other ethnic minority communities

· Our goal is the provision of appropriate and timely support for vulnerable people to improve the health, safety and wellbeing of individuals and of the wider community in Bath & North East Somerset

· We will continue to commission a range of accommodation and housing related support services aimed at reducing the need for acute or crisis interventions

· We will improve the provision of accommodation and housing related support services for hard to reach groups including offenders, people with drug and/or alcohol related problems and women at risk of domestic abuse, with the aim of reducing crime and disorder and improving the quality of life of all B&BNES residents

· We will develop our plans for user and carer involvement and commit appropriate resources to ensure that consultation is accessible and meaningful for participants

· We will be clear about what we can provide and what happens when there are not sufficient resources to fulfil aspirations

2.1.2 Value Statement for the Commissioning of Supporting People Services in Bath & North East Somerset

Early in the programme a Value Statement was developed by the Bath & North East Somerset SP Decision Making Group to provide a framework for the commissioning activities of the SP Team. The statement was also intended to give a clear message to providers, potential providers and other stakeholders regarding the principles underpinning SP in Bath & North East Somerset.

Principles of the Value Statement

1. Equality

2. Needs mapping

3. Service user involvement

4. Relationships with providers

5. Evidence based practice

6. Supporting diversity

7. Stakeholder involvement

8. Quality and Value

2.1.3 Key objectives and outputs required

The table below sets out key objectives in relation to the aims set out in section 2.1.1

Table One: Key objectives of Supporting People in Bath & North East Somerset

2.1.4 Cross authority approach

The "Councils that Used to Be Avon" or "CUBA" Group has been meeting regularly since early 2001. The group's membership is made up of the Supporting People lead officers from Bath & North East Somerset, Bristol City, North Somerset and South Gloucestershire. Each group member reports back to their local steering group and so to linked commissioning bodies.

This group has agreed terms of reference and has formal responsibility for the development, implementation, and future direction of cross authority strategy development and commissioning in the four districts.

We recognise that many Supporting People services within old Avon county are open to individuals and households who come from outside of the Commissioning Body area in which existing services are located.

Based on guidance from the ODPM, the needs of the following user groups are central to cross authority partnership working:

· Women at risk of domestic abuse

· Homeless people (statutory and non-statutory) and former rough sleepers

· Ex-offenders and those at risk of offending

· Drug and alcohol users including recovering users

· Refugees and asylum seekers

· People with multiple needs where demand in individual local authority areas is low

2.1.5 CUBA Cross Authority Statement

The four Councils in the former Avon area are working in partnership in preparing for and implementing Supporting People.

We are committed to ensuring that access to these services is not restricted or limited simply because of the changes brought about by the introduction of Supporting People.

We are also committed to ensuring that individual councils do not automatically relinquish responsibility for specific vulnerable groups in their community because of existing provision in a partner authority.

We are currently gathering information about access arrangements to Supporting People services in the four districts. When it is available this information will be used to inform current and future cross authority statements, and to monitor cross authority performance.

In May 2002 all Lead Officers participated in a joint homelessness conference attended by representatives from the four Councils, Registered Social Landlords, support providers and service users.

The outcomes from this conference have informed our priorities for cross authority services for the first year of the Supporting People programme.

Priorities for 2003/4

· We will undertake needs and supply analysis for cross authority provision in the pan Avon area using information produced by the four Supporting People teams

· We will monitor existing and future levels of `cross authority provision' to ensure that access to Supporting People services is at least maintained at current levels to the benefit of all vulnerable people in our communities.

· Subject to the identification of capital funds, and capture as a `pipeline service' as defined by the ODPM, we will develop a pan- Avon cross authority scheme of supported temporary accommodation for homeless people with chaotic lifestyles and multiple needs.

· We will continue to support and develop a scheme of floating support for ex-offenders on a pan Avon basis.

· We will develop proposals for cross authority access to services that will contribute to the wider regional and national agenda.

2.1 The Planning Approach

The planning approach agreed locally has helped to ensure that the Bath & North East Somerset Supporting People Vision and Shadow strategy has been consulted on as widely as possible through a combination of briefings and workshops, postal exercises and presentations to a range of existing planning groups.

Planning for the delivery of Supporting People in Bath & North East Somerset has been steered by:

The Supporting People Decision Making Group (Core Strategy Development Group)

The group has been in operation since January 2000 and comprises senior officers from health, social services, probation and housing with additional input from finance and benefits. The group meets monthly (Terms of Reference can be found at Appendix One).

The Supporting People Forum

The Forum was launched in January 2000 and has continued to meet periodically since that time. Membership is open to any individual or group with an interest in contributing to the local programme (Terms of Reference can be found at Appendix Two).

The approach draws mainly on the active involvement of existing multi-agency fora which have been convened to develop working practice or commissioning activities for specific service user groups.

The Bath & North East Somerset Health Improvement Partnership Board is the largest of these groups and provides an umbrella for the others' work. The Partnership Board was specifically consulted in September 2001, as a means of steering the overall approach to inclusive involvement of stakeholders.

The majority of planning groups have service user and carer representation with well established input from health, social services and other statutory sector agencies. In addition, the voluntary and independent sectors are well represented. A full list of all planning groups that have been involved in the development of the shadow strategy can be found at Appendix Three, along with a diagram which details the relationships between the various groups.

1.2.1 Development of Vision and Strategy

The Vision for Supporting People in Bath & North East Somerset was developed initially by the SP Decision Making Group. The Vision reflects and underpins the principles set out in the Value Statement for commissioning of Supporting People services in Bath & North East Somerset developed both as an internal framework and as a reference point for providers.

The draft Vision was circulated to the planning groups listed in Appendix Three and wider stakeholders for comments and feedback which have been incorporated into the current version. The SP Forum was consulted on the draft Vision in March 2002, again amendments have been made as a result of this exercise.

The decision making process for the commissioning of Supporting People services in the future will be clearly based on needs mapping, service reviews, the objectives set out in linked plans, in particular the Community Plan for Bath & North East Somerset. Recommendations will then be made to Executive Members regarding future investments.

1.2.2 Involvement of service users and carers

The Bath & North East Somerset Supporting People Team has established a series of awareness raising and consultation events for service users and carers as well as encouraging providers to develop opportunities for involvement within their services.

Consultation information from previous exercises has been collated by the SP Team through a schedule of visits to a range of service user/carer groups including the Bath & North East Somerset Disability Equality Forum and the Care Network. As a direct outcome of these visits, specific aims for each service user groups have been developed. These aims are detailed in Section 2.1.1 Aims of the Local Programme.

In addition a number of consultation events have taken place for people with physical and sensory impairments and a broader forum for all SP service users is planned for 1^st August 2002

Black and Other Minority Ethnic Groups have been involved in developing the local vision and approach in a number of ways. Firstly, a consultation group, including representatives from Bath & North East Somerset Race Equality Action Development Group, MOSAIC Black Mental Health Project, Bath & North East Somerset REC, Bath Asian Council and Support Against Racist Incidents (SARI), has been convened to act as a conduit for the views of B&OME service users.

The group has been instrumental in taking forward the recommendations of a local research project focussing on the needs of B&OME elders, and has worked in partnership with Care & Repair in Bath & North East Somerset to secure funding and develop new services for this group.

The group has also made contributions to the development of Bath & North East Somerset approach to service reviews, ensuring that the review methodology is sensitive to and inclusive of the needs of B&OME service users.

Specific resources have been made available from across the authority to support a CEED trainee in taking forward work around B&OME needs mapping and consultation.

The Supporting People Team has worked closely with the Bath & North East Somerset Single Homeless Partnership which has been the main vehicle for consultation regarding the needs and views of rough sleepers. This group represents services where front-line staff deal directly with homeless people and have accurate local knowledge of the needs of this group. This partnership approach has been recognised by the Rough Sleepers Unit through their commitment to increased levels of funding to deliver the Single Homeless Strategy in Bath & North East Somerset.

1.2.3 Involvement of providers

The Supporting People Forum in Bath & North East Somerset has mainly been populated by local providers. As a result, over the course of 2001/02, Forum events have been increasingly targeted at specific groups of providers and focussed on specific issues such as:

· Supporting People post 2003 (January 2001)

· Needs mapping (January 2001)

· Transitional Housing Benefit (January 2001)

· Communication and consultation (January 2001)

· Scheme reviews and service user involvement (May 2001)

· RSLs/Managing Agents contract arrangements (February and May 2002)

· SP3 mapping (March 2002)

· The SP shadow strategy (August 2002)

Providers have been regularly consulted on an individual basis by members of the SP Team. Ongoing advice and support has been given to providers throughout the programme.

1.2.4 Ratification of Vision and Strategy

Bath & North East Somerset is a unitary authority which has recently adopted a cabinet and leader style model of political decision making. The cabinet is made up of the leader and eight councillors from the majority political group. The Executive Members for Community Safety, Housing and Consumer Services and for Social Services have responsibility for overseeing the development of the Supporting People programme.

The Supporting People shadow strategy has been included in the executive work plan for ratification in September 2002. The strategy will also be ratified by the Bath & North East Somerset PCT Board, the Health Improvement Partnership Board and the Probation Board before submission to ODPM in October 2002.

1.2.5 Relationship between Commissioning Body and Administering Authority

As a unitary authority, Bath & North East Somerset is the administering authority for Supporting People services, specific responsibility lying with the Supporting People Team within Strategic Housing Services.

Senior officers from the relevant statutory agencies have been identified to carry out the functions of the Core Strategy Development Group and the Commissioning Body, therefore avoiding the need for two separate groups.

Where possible the experience and knowledge of existing commissioning partnerships across health, social services and housing has been utilised.

Links have been established internally within housing services between those administering the capital programme and the SP Decision Making Group/Team and external links with five key housing joint commissioning partners have been strengthened.

Joint commissioning activities across housing and social services have been in place since 1996 and have been consolidated through regular review and planning meetings since that time.

1.2.6 Local monitoring arrangements

Monitoring arrangements for the implementation of Supporting People in Bath & North East Somerset will be based on the work of the SP Team, Forum, Decision Making Group and local providers.

The SP Team will be responsible for monitoring contract compliance and taking necessary action where compliance is an issue. The team will also be responsible for carrying out scheme reviews which will be the main vehicle for ensuring the delivery of quality and cost effective services.

The strategy will be reviewed annually by all key stakeholders and will be sensitive to emerging needs mapping data.

1.2 Supply Analysis

A key foundation for developing the shadow strategy has been to map the existing supply of supported and sheltered housing, ad related floating and re-settlement services.

1.2.1 SP3 Supply mapping process

SP3 supply mapping in Bath & North East Somerset has been based on the data captured on SP 1 and 2 forms which was migrated onto the Supporting People Interim Local System (SPINTLS, a database supplied by ODPM) in early 2002.

A dedicated officer was identified to work on supply mapping in March 2001. The starting point for this exercise was to draw up a list of all Supporting People client groups, then from existing knowledge, develop a reference list of all accommodation and support services each individual group. This initial list included both statutory and voluntary sector providers and was consulted on more broadly to ensure there were no gaps.

In the first instance the approach to supply mapping was to capture all services, including residential and nursing care and advice services, which would not actually be eligible for Supporting People funding. Following migration of the information on to SPINTLS, the latter part of supply mapping in Bath & North East Somerset and the use of the SP3 was concentrated on services which were eligible for Supporting People funding.

A workshop for providers was held in March 2002 to facilitate efficient and effective use of SP3 forms, following which the forms were sent out with a deadline for completion by the end of May 2002.

1.2.2 Key local issues arising from supply mapping

Within Bath & North East Somerset around 3000 units of supported accommodation have been mapped. This level of provision falls within the upper range (1254 - 3190) of the typical supply profile supplied by ODPM which represents the norm against which local authorities are expected to review local provision.

Although overall provision of accommodation appears to be relatively high, there are a number of key gaps which are highlighted in Section 2.4, "Comparison to ODPM Supply Profile".

The provision of floating support services is in the low end of the range when compared to the supply profile (further detail in Section 2.4) indicating a lack of flexibility in the delivery of housing related support in Bath & North East Somerset.

Key local issues arising from supply mapping at this stage include:

_ A high level of provision of sheltered accommodation with several schemes being difficult to let or inappropriate for older people's needs.

_ Development of extra care sheltered housing as an alternative to residential care is in the early stages.

_ An overall focus on the provision of accommodation based services

_ A corresponding shortage in the provision of floating and re-settlement support services

_ A relatively poor level of provision for people with drug and alcohol problems and for women fleeing domestic abuse

_ An acute shortage of support for single homeless people and homeless families including teenage parents

_ No accommodation provision for ex-offenders (in development), mentally disordered offenders people with HIV/AIDS or refugees

_ A relatively poor level of provision for people with physical and sensory impairments, particularly adults of working age and those with less severe disabilities

1.2.3 Detailed analysis of supply mapping

A number of tables providing a detailed analysis of all the supply mapping data held on the SPINTLS database can be found at Appendix Four. The tables included are:

· Service type by client group

· Analysis of service type by ethnic origin

· Client group by service provider type

· Analysis of client group exclusions

· Support provision capacity summary

· Analysis of property registration status

· Analysis of designated CAG services

· Funding of services

· Service provider type by accommodation manager organisation type

· Service provider type by landlord organisation type

1.2.4 Summary and conclusions

Service type by client group

The majority of services are provided to older people with support needs, including sheltered accommodation and support from Spa Care Line and Care & Repair.

The provision of accommodation, floating support, outreach support and re-settlement support for all other service user groups is relatively low in comparison.

Service user groups most at risk of social exclusion e.g. homeless people, offenders, women at risk and those with drug and alcohol issues, are the least well provided for across all types of services.

Analysis of service type by ethnic origin

There are two services which are aimed specifically at those from Black or Other Minority Ethnic groups. These are a Care & Repair service for ethnic elders and a supported accommodation scheme for people with mental health problems.

Monitoring information across all services appears to be poor.

Client group by service provider type

The majority of services, approximately one third, are provided by Somer Community Housing Trust, the LSVT RSL in Bath & North East Somerset .

Other RSLs, voluntary and charitable organisations provide a further third of services.

The local authority provides a small number of services to three service users groups, while health and the private sector provide no services (excluding private sector leasehold schemes which have not been reported on so far).

Analysis of client group exclusions

The majority of service providers do not have specific exclusions apart from enforcing obvious criteria such as age, gender etc. However, where exclusion do occur, these are likely to be enforced by provider of services to older people, people with learning difficulties and people with mental health problems.

Support provision capacity summary

The majority of provision has alarm/on call system as the main method of support closely followed by the provision of a warden on site.

The majority of non-sheltered provision has visiting support available during office hours with some emergency call out provision.

Few services have very high levels of support on site.

Analysis of property registration status

The majority of services for people with physical or sensory impairments, learning difficulties or mental health problems are either partly or fully registered as residential care homes.

Analysis of designated CAG services

A national scheme for people with severe physical and sensory impairments is the major designated cross authority service in Bath & North East Somerset. In addition to this, services for homeless people, women at risk and people with drug issues can also be included as cross authority provision.

Funding of services

The main source of funding for all services is Supporting People with some providers receiving additional funding from other sources such as voluntary grants.

Service provider type by accommodation manager organisation type

The majority of accommodation is managed by RSLs with support being provided by RSLs, voluntary organisations, the local authority and charitable organisations

1.3 Comparison to ODPM Supply Profile

The following section provides a detailed analysis of supply information obtained from SP3 mapping as compared to the ODPM supply profile for Bath & North East Somerset. Table Two below, shows the range of equivalent numbers of household units expected for each client group alongside the actual numbers available in Bath & North East Somerset.

The figures given in Table Two provide a basis for the discussion and analysis that follows later, which explores in more depth the local picture and interprets ODPM data in light of this.

NB: SP3 data is still being checked and updated, for example where numbers of units per scheme have not been provided or where there is lack of clarity concerning primary client groups. Final data will be available in September 2002.

Table Two - Comparison with ODPM typical supply profile

1.3.1 Older people with support needs/frail elderly

Provision of sheltered accommodation in Bath & North East Somerset is relatively high, exceeding the upper range of expected units shown in Table Two. In addition there are a further 52 units of extra care sheltered housing, taking the overall total to 2298 units. The accommodation is mainly provided by Somer Community Housing Trust who have recently completed a review of sheltered stock. The review is due to report at the end of July 2002, however indications from nomination requests indicate the lack of "fitness for purpose" and un-suitability of a number of sheltered schemes.

Work is currently underway to re-align extra care schemes with local need as it is anticipated that this area of the sheltered housing sector will form an important part of the strategy for the re-provision of the authority's residential homes.

Care & Repair provides the other major type of service to older people in Bath & North East Somerset. Although some of the figures linked to this service in Table Two have been listed under "People with physical and sensory disability" these are likely to be individuals over 60 years of age.

1.3.2 Homeless families with support needs/teenage parents

Comparison to the supply profile shows a low level of provision of both accommodation and support for this group. It is recognised that in Bath & North East Somerset there is an increasing demand for units of appropriate temporary accommodation for homeless families and this will be partly addressed by the temporary accommodation strategy detailed in section 2.6.9. Seventeen new units of temporary accommodation are currently being developed in partnership with Somer CHT and the council's Property Services division. Support to families living in temporary accommodation will be funded by THB until April 2003 when the authority's commitment to this group will continue to be met from the SP pot.

Supply mapping has identified 6 units of accommodation with support for teenage parents. However, the scheme in question provides time limited support for pregnant young women but are unable to offer accommodation to young parents who have delivered their babies. The provision of services to this group has been highlighted as a local priority, especially in light of the relevant ODPM guidance, and will therefore be included in a number of bids for revenue funding in the Autumn of 2002.

1.3.3 Offenders or those at risk of offending/mentally disordered offenders

The provision for offenders in Bath & North East Somerset is poor and this has been highlighted by supply mapping. Total numbers of accommodation and support fall in the lower end of the ODPM supply profile. This is partly due to the re-organisation in the use of PAG funding some years ago, which resulted in a withdrawal by a number of providers of their units of accommodation for this group.

Capital and a limited amount of revenue funding has been secured from the Housing Corporation to develop a "dry house" for ex-offenders (6 units) with linked re-settlement support (10 units). The project is still at the planning stage at the time of writing.

Provision for this group will also be enhanced in the Autumn of 2002 by the introduction of a new PAG funded floating support service. However, the issue of provision for mentally disordered offenders is still outstanding

1.3.4 People with physical or sensory disability

Accommodation provision for people in this group is in the form of registered units within a large complex managed by the RNID. The scheme is a national specialist service for deaf people who have additional sensory and physical disabilities such as autism, learning difficulties and so on.

There is currently no accommodation provision for younger adults with physical and sensory disabilities and local knowledge of adapted properties is relatively poor.

Care & Repair however do provide a significant level of service to people with physical and sensory disabilities although it is likely that this is delivered in the main to older adults.

1.3.5 People with drug and/or alcohol problems

There is little supported accommodation available to people with drug and alcohol issues and floating support services for this group are also limited when compared to the ODPM supply profile.

A "dry house" provides seven units of accommodation with support for people who are in recovery from drug addiction, however there is no "wet house" provision for those are not ready to address their drug/alcohol issues but still require support.

1.3.6 People living with HIV/AIDS

There are currently no accommodation and related support services for this group in Bath & North east Somerset. The supply profile suggests that both types of provision are likely to be required but local knowledge of potential need is limited.

1.3.7 People with learning difficulties

When compared to the supply profile this group appears to be relatively well catered for in terms of accommodation and support. However, much of the provision is in registered residential schemes, which do not fit with either new Care Standards requirements or the principles set out in "Valuing People".

Work is currently underway to re-provide a number of units of accommodation and to develop supported living options, there being a number of local commissioning partners available.

The supply profile fails to account for the needs of those individuals who have been placed out of area and need to be "brought home" as part of our overall approach to modernising services for people with learning difficulties.

1.3.8 People with mental health problems

The supply profile for this group suggests a relatively good level of service provision both in terms of accommodation and support. However total numbers of units fall within the low end of the expected range for this group. This observation is supported by local knowledge, which suggests that there are not enough units of accommodation, particularly for people leaving in-patient units and the requirement for floating and re-settlement support is larger than existing services can meet.

1.3.9 Refugees

There are currently no accommodation and related support services for this group in Bath & North east Somerset. The supply profile suggests that a small number of both types of provision are likely to be required but local knowledge of potential need is limited.

1.3.10 Single homeless people with support needs/rough sleepers

Accommodation provision for this group appears to be high although it is worth noting that some schemes that fall into this category are not "direct access" i.e. they are not aimed at rough sleepers. Others may not provide services to individuals who have been accepted as statutorily homeless, or who have more complex support needs. For some providers the term "single vulnerable people" may be more appropriate.

Floating support services for this group fall into the low end of the supply profile and this has been confirmed as a key issue by needs mapping and gap analysis.

1.3.11 Women at risk of domestic abuse

Supply mapping has identified 14 units of accommodation for this group, however this equates to only 8 household units i.e. family rooms. This number represents relatively low provision when compared to the supply profile. There is currently no move on or re-settlement support for this group, again this falls within the low end of the range given in the supply profile.

1.3.12 Young people at risk/leaving care

Comparison with the supply profile for this group shows a relatively high level of provision for young people/care leaver in terms of accommodation and a relatively poorer level of floating support.

The duties outlined in the Children Leaving Care Act will result in an increased pressure to provide accommodation and support to care leavers which will impact on the overall provision for this group.

1.4 Needs Profiling

Supporting People in Bath & North East Somerset has provided a welcome prompt to gather together extensive needs information from a range of sources. It is anticipated that the roll out of the programme across the locality will help to build on and maintain this information which is a valuable planning resource for both the statutory and voluntary sectors.

The next section provides a brief summary of needs information currently available, it's source and it's present day application.

1.4.1 Summary of existing information on need

Current plans and strategies

The plans referenced in section 1.2 and discussed in section 2.6 have been developed in response to local and national initiatives whilst at the same time reflecting local needs.

Needs information is largely gathered from members of planning groups who may be front line service providers, service planners, service users and carers. Needs information for these groups provides the basis of their work in progress.

Specific local research projects

Over the past few years in Bath & North East Somerset specific needs mapping exercises have been undertaken, either by officers internally or by external consultants with the required expertise. The former has been a particularly useful method of gathering information regarding hard to reach client groups, such as rough sleepers. The latter has been valuable in relation to current service users who may feel more comfortable providing feedback to an independent consultant.

Internally Bath & North East Somerset has conducted a review of local mental health accommodation and a three month research project focussing on the support needs of LSVT tenants. In addition Bath & North East Somerset has supported and facilitated the research of DiPSW students into tenancy failure, access to appropriate accommodation and/or support and longer term mapping of vulnerable single homeless people.

The needs of B&OME elders have been captured in a research project carried out by a local RSL in partnership with a specialist consultant.

Positive outcomes of needs mapping can be seen across the authority in the development of new services such as Care & Repair for B&OME elders and the recommendations for the provision of floating support for LSVT tenants.

1.4.2 Detailed analysis by service user group

The following sections provide an overview of needs data for each Supporting People client group in Bath & North East Somerset

1.4.2.1 Older people with support needs

Somer Community Housing Trust, Bath & North East Somerset LSVT partner has recently completed a review of sheltered housing

RESULTS AVAILABLE JULY 2002

In March 2002 the Older Person's Steering Group for Bath & North East Somerset produced a draft commissioning strategy which found that there would be a need for 60 - 75 extra units of extra-care housing over the next five to ten years. Work is in progress to re-align existing extra-care housing schemes with current demand and to make best use of the funding opportunities afforded by Supporting People.

1.4.2.2 People with mental health problems

The Mental Health Service Development and Implementation Group (SDIG) has described the unmet needs of people with mental health problems in its recent service improvement plan. The plan highlights specific difficulties relating to hospital discharge which can be linked to gaps in the provision of accommodation and support services for this group.

A particular concern is the difficulty in accessing appropriate supported accommodation as there is no shared referral route to the various providers. The feasibility of establishing a multi-agency referral and assessment panel is currently being explored. The group also identified the need for a specific post to support service users in accessing appropriate advice and information in relation to housing issues.

To summarise, the SDIG highlighted a number of concerns as follows:

_ Lack of services available in North East Somerset

_ Conflicting issues around housing benefit (loss of income whilst in hospital does not help to sustain tenancies)

_ Poor co-ordination of access to accommodation

_ Insufficient support for mental health in-patients

_ Re-instatement of Community Housing Officer

A review of all mental health accommodation in Bath & North East Somerset, completed in the year 2000, identified a lack of appropriate move on support for tenants who wish to live more independently. Move on from supported accommodation schemes may be hindered by this.

1.4.2.3 People with learning difficulties

The Supported Living Commissioning Strategy for people with learning difficulties provides accurate and current information on local accommodation and support needs for this client group.

The strategy estimates that 2% of the population in Bath & North East Somerset can be described as having a learning difficulty, which approximates to 3569 individuals. Of these individuals, 507 in Bath and 385 in North East Somerset are considered to have moderate or severe learning difficulties.

From the 367 adults with learning difficulties known to Social Services, 91 have been identified as people who might prefer a supported living placement, either immediately or over the next two years.

The strategy goes on the recommend the development of supported living schemes in a small scale, targeted way. This recommendation is currently being realised by the development of a "Keyring" project in Bath and the extension of the "Our Way of Living Scheme" (OWLS) in North East Somerset.

One of the main issues in relation to delivery of the strategy has been the difficulty in identifying accommodation for people with high support needs and the re-provision of care and support for those placed out of area.

1.4.2.4 People with physical or sensory impairment

Needs information for people with physical and sensory impairment is patchy. However, over the past year in Bath & North East Somerset, the take up of disabled facilities grants (DFGs) has increased significantly following a review of the grant policy which improved access to grants for particularly vulnerable groups (disabled people and older people on low incomes).

The Supported Living Best Value Review (2002) found that there are 914 households with a wheelchair user in Bath & North East Somerset. 46% of these do not live in a property adapted for wheelchair use, reflecting the immediate demand for accessible accommodation or adaptations to existing homes.

The 2001 Housing Corporation Performance Report shows that the national average of properties in the social rented sector that are suitable for wheelchair use is 1.7%, whilst in Bath & North East Somerset this figure is only 0.6%.

A recent survey of Social and Housing Services managers found that there was a need for a range of supported, accessible accommodation particularly for younger people. There is a clear need for an increase in the number of accessible homes across all tenures and all age ranges.

A consultation day involving 21 service users with physical and sensory disabilities was held on 15^th July 2002. Outcomes and feedback from the day will be available later in the year.

1.4.2.5 Single homeless people with support needs

Although homeless applications have decreased significantly since 1998/99, the total number of acceptances in the same period has increased from 294 to 355. In 2001/2, Bath & North East Somerset received 331 applications from single homeless people. Of these 168 were found to be eligible for re-housing with one of the local partner RSLs. Since acceptance for re-housing hinges on the assessed vulnerability of the individual, it can be assumed that the need for housing related support for this group is likely to be high.

Previous research, carried out by DiPSW students in 2000, which focussed on the support needs of single homeless people identified patterns of homelessness associated with:

¬ Mental health issues

¬ Lack of family support

¬ Previous homelessness

¬ Difficulties accessing appropriate support

¬ Social/geographical isolation

¬ Drug/alcohol issues

¬ Early school leaver/lack of life skills

¬ Difficulties managing money

¬ Parenting issues

¬ Difficulties claiming benefits

More recent research looking specifically at the unmet support needs of SCHT tenants, many of who have been housed via the homelessness route, identified significant demand for:

· Intensive tenancy support and sustainment service for people who have ongoing drug and /or alcohol related problems.

· The provision of a more general advocacy/liaison and practical support services available to a range of vulnerable tenants.

· The provision of re-settlement and outreach support for women who have experienced or are experiencing domestic abuse.

These findings form the basis of Bath & North East Somerset current partnership working with a number of providers, including SCHT, to increase and expand the range of services available to single homeless people.

1.4.2.6 Homeless families with support needs

In 2001/02 the number of homeless people accepted for re-housing dropped slightly to from 364 to 355 (although acceptances as a proportion of applications have steadily risen from 35% in 1998 to 59% in 2002). Whilst these figures represent a small decrease in numbers, there is a continued need to address the problem of emergency housing need.

The majority of people re-housed though the homelessness route will usually need general purpose accommodation, though a small number may need additional support or adaptations.

The need for temporary accommodation for homeless households has increased steadily over the past three years in Bath & North East Somerset. With the advent of Choice Based Lettings in Bath & North East Somerset and the re-modelling of the Common Housing Register (now the Homeseekers Register) It is anticipated that the need for temporary accommodation will continue to increase over the next five years.

The following projections of need take into account changes in legislation (Children Leaving Care Act 2000, Homelessness Act 2002) and the introduction of greater choice for homeless applicants. The current supply and planned increased provision of temporary accommodation through the Bath & North East Somerset Temporary Accommodation Strategy have also been taken into account. Not all this accommodation would be needed immediately. Rather the supply will need to increase steadily between April 2002 and March 2004.

Projections of Need for Temporary Accommodation 2002-2004

1.4.2.7 People with alcohol and/or drug problems

Much of the information available in Bath & North East Somerset on the needs of individuals with alcohol and/or drug related problems suggests that this is the highest contributory factor to homelessness, tenancy failure and offending behaviour.

Nearly 65% of offenders referred by probation for support with accessing appropriate accommodation identify drug and/or alcohol related problems as their primary presenting need.

Between 1 April 2000 and 31 March 2001, the Drugs & Homeless Initiative received 12 referrals from prisoners wanting to access supported `dry' accommodation at 10 Stall Street upon release. As 10 Stall Street has only seven beds and received 52 referrals in this period, it was only able to accommodate one of the twelve.

Referrals to Somer Community Housing Trust's neighbour nuisance team between April and June 2001 highlights 33 tenants who are at risk of losing their tenancies due to drug and/or alcohol related problems.

SCHT are currently working in partnership with Bath & North East Somerset to develop a floating support service for tenants with problematic drug and/or alcohol use in line with recent research recommendations.

1.4.2.8 Offenders or people at risk of offending

Offenders who are released on probation are referred to Alpha in Bath & North East Somerset, who are currently contracted to provide advice and assistance (and limited re-settlement support) to secure suitable accommodation. Alpha do not provide a service to clients who are not on a probation order, i.e. those who have served less than 12 months. Nor do they support those who have completed sentences without early release, (more often than not offenders who have committed more serious offences or who have not behaved well in prison).

Between April 1998, when the Alpha service was first commissioned, and March 2001 there have been 374 referrals of people who originate from Bath & North East Somerset. During this period the majority (150) of referrals were still in custody, however a significant proportion were in temporary accommodation (104), of no fixed abode (52) or sleeping rough (32).

In the following year (2001/02) a total of 23 placements were made in Bath & North East Somerset, although this does not account for the total number of referrals. Private sector tenancies accounted for 6 of these placements with a range of social landlords providing a further 15 tenancies/licenses. Two individuals were placed in the night shelter.

The figures for the past four years suggest a large discrepancy between numbers of offenders in housing need and numbers actually accommodated. There is currently no specific provision of accommodation and support for offenders in Bath & North East Somerset. This issue is being addressed by the Pan Avon Supporting People group who have taken responsibility for improving provision for offenders across all four unitary authorities.

A successful bid to the Housing Corporation for capital and revenue funding to provide a "dry house" for ex-offenders in Bath will help to alleviate some of the issues outlined above, providing that concerns raised by local residents can be assuaged.

The bid was based on evidence collated from referrals to Stall Street, the existing dry house in Bath, during the period April 2001 to March 2002.

43 referrals were made to 10 Stall Street, all but one of whom were accepted, of these:

11 vacancies came up over the year and a total of 18 individuals lived in the supported accommodation at 10 Stall Street.

Of the 18 people resident in Stall Street during this period:

89% had a criminal record

33% were on a probation order on arrival at the project

28% had been to prison, and of those that had most had been 2-3 times

11% came straight to Stall Street from prison

Of the 18 residents only one committed an offence after moving in, shoplifting, which occurred after they had left the project. This person has since been back to court and requested a Drugs Treatment and Testing Order in order to deal with his on-going problem.

This means the re-offending rate for ex-offenders at 10 Stall Street compares extremely well to national statistics. This is a significant achievement and indicates the importance of supported housing in breaking the link between substance misuse and crime.

Moreover, these are people who are returning to Bath or living in Bath already - it is in the community's best interests that they are supported and policed effectively.

1.4.2.9 Mentally disordered offenders

In light of the shortage of accommodation and support for offenders in Bath & North East Somerset, services for mentally disordered offenders are scarce. However, a specific post to support mentally disordered offenders does exist with a caseload of approximately ten individuals per year. A large part of the work of this post-holder is around securing appropriate accommodation and support for clients (mainly male) who have high level, complex needs.

Alpha figures for this group suggest that nearly 16% of offenders being referred to service have mental health needs. Limited resources mean high reliance on the voluntary sector who do not always have the necessary expertise. A key issue is the lack of a bail hostel in Bath so offenders with mental health needs may be inappropriately remanded in police cells or prison.

1.4.2.10 Young people at risk

In 2001/02 Bath & North East Somerset received 36 applications from people aged 16-17. These are regarded as a priority need group and would have been offered permanent re-housing with one of the partner RSL's. Other young people over 18 applying as homeless are not regarded as being in priority need unless they also have a serious medical problem or vulnerability. This means they must find other solutions to their homelessness, usually through hostels or private-rented accommodation.

In the rural areas of Bath & North East Somerset, there is a problem with isolated young people facing homelessness because they are unable to sustain tenancies. They are often unable to access services in the larger towns as transport is inadequate and, in many cases, they do not identify with other areas of Bath & North East Somerset. Also, most young people are understandably reluctant to leave behind whatever support networks they have.

The Single Homeless Partnership has prioritised the need for a full-time Young People's Tenancy Support Worker to cover the rural areas and is working towards delivering this service

1.4.2.11 Young people leaving care

The Care Leavers Accommodation Strategy states that in recent years, the numbers of young people leaving care each year has averaged about 20, of whom 6 were aged 16 and 17. It is calculated that in any one year there will be between 60 and 70 care- leavers aged 16-21 years who will be the responsibility of the Leaving Care Service and who may have priority status.

The ratios of gender and ethnic origin were monitored but geographical spread was more difficult since most care leavers who stayed in the area ended up in Bath because there was very little affordable accommodation which they could access in any other area.

Most care leavers expressed a desire for self-contained accommodation but very few manage to maintain a tenancy at the first attempt. Considerable support is required. Assessed needs of care leavers over the past 4 or 5 years have demonstrated a range of support needs.

Work is currently underway in Bath & North East Somerset to increase the support opportunities for young people accommodated in the local Foyer. Bath & North East Somerset is also in the process of recruiting a young people's accommodation officer to work specifically with care leavers.

1.4.2.12 Women at risk of domestic abuse

Statistics collated in P1E returns suggest that the number of women accepted as homeless due to domestic abuse between April 1998 and March 2001 averaged 16.3 per year. This represents just over 5% per year of all homeless acceptances.

However, these figures only give an indication of those who were accepted on the grounds of domestic abuse, rather than the total number of women and children who lost their accommodation because of abuse. In other words many women who experience abuse are accepted for re-housing because they have dependent children rather than the abuse itself.

Recent research into the support needs of SCHT tenants highlighted the fact that there are no housing related resources to support women who experience abuse or for those who are settling in to a new community having fled from another authority. The research went on to recommend that the provision of re-settlement and outreach support for women who have experienced or are experiencing domestic abuse should be a priority for action.

1.4.2.13 People living with HIV/AIDS

The year 2000 saw the highest number of new infections (3425) ever in the UK, an increase of 14% on the previous year. The number of people living in the Avon Health Authority area is estimated at between 110 and 230.

Currently over 30,000 people in the UK are infected with HIV but around a third of these are untested and do not yet know that they have the virus. Within this growing population, the largest group living with HIV/AIDS, are gay men. There are now more new diagnoses amongst the heterosexual population, 48% of the total for 2000.

Although the number of new diagnoses in recent years amongst drug users has remained relatively small, there is still some concern over the increase in the incidence of high-risk injecting activity.

The accommodation and support needs of people living with HIV/AIDS have been well researched and are outlined below:

· Uncertain prognosis may be linked to decline in mental health therefore emotional support is vital

· The need for lifetime standard accommodation which can be adapted as needs change

· The need for security of tenure

· Reliable heating systems and properties in good repair

· The need to be able to sleep during the day if kept awake at night with night sweats

· The need to live close to health/social care and support services

· The need to live close to local amenities e.g. transport, shops

· Safe locations away from harassment and violence

There is one part-time social worker in Bath & North East Somerset to support people who are HIV positive or living with AIDS. Support generally includes information awareness, sex education and drug advice as well as emotional support and befriending.

There are no specific housing related support services or accommodation for people with HIV/AIDS, although the need for a floating support service providing practical and emotional support has been identified.

1.4.2.14 Refugees

Information on the needs of refugees living in Bath & North East Somerset has been difficult to identify and collate. Comprehensive needs mapping should address this issue in 2003/04

1.4.2.15 Teenage parents

Between April 2001 and March 2002 there were thirty seven homeless applications by young parents aged between 17 and 19 years. Of these young women twelve were aged 17, ten aged 18 and fifteen aged 19. Bath & North East Somerset accepted a duty to re-house eighty one percent of these applicants.

The Life Hostel in Bath offers accommodation and support to young women who are pregnant, however the scheme cannot accommodate young parents. The only option for the majority of teenage parents in Bath & North East Somerset at the present time is an unsupported tenancy with a general needs landlord.

For young parents in the 16 to 17 years age bracket securing a tenancy may be an issue due to a lack of availability of deposit guarantors.

In summary, there is a significant unmet need in Bath & North East Somerset for both appropriate accommodation and support for teenage parents.

2.5.2.16 Rough sleepers

Bath & North East Somerset strategy to tackle rough sleeping has recently been reviewed and submitted to the Rough Sleepers Unit. The last street count identified four people sleeping rough in Bath & North East Somerset. However, this figure does not fully reflect the true level of rough sleeping in Bath & North East Somerset. We know that a much higher number of people are cycling between street homelessness, hostel accommodation, living with friends/family and, in some cases, a social housing tenancy.

1.4.3 Other sources of needs information

There are a number of other routes by which the authority has gained needs information which help to provide a picture of Bath & North East Somerset as a whole

2.5.3.1 Housing and Regeneration

Bath & North East Somerset's 2000 Housing Need Survey identified significant housing need. Between 2000-2005, an average of 300 new affordable homes per year are required to meet the aspirations of concealed households alone. The investment programme will deliver an average of 120 homes a year during the same period. Also, during the same period, approximately 200 social housing units a year will be sold under the Right to Buy.

Bath & North East Somerset' investment programme aims to provide 600 units of affordable housing between 1999 and 2005. Whilst the programme is proceeding on target, there is an on-going problem with identifying suitable sites for development. This is due to a shortage of land suitable for residential development and to the high cost of housing. The cost of purchasing large properties plus the cost of rehabilitation or conversion means that many apparently suitable brown-field sites are unaffordable.

Other factors, such as an ageing housing stock and where it is located mean that we should be looking at how we can better invest in the resources we already have available. The nature of many properties makes them difficult and expensive to adapt to the needs of older people and those with disabilities. Investment should be looked at in the wider context, giving priority to schemes that benefit those in greatest need.

The national perspective is increasingly focusing on promoting independence and choice. Prevention of housing need is also given greater prominence, including the development of intermediate care.

The overall picture of housing need in Bath & North East Somerset is one of a growing need for affordable homes, both for people with a general housing need and for those whose need is for a range of supported housing (as highlighted by the Supported Living Review). The gap between need for and supply of affordable housing in Bath & North East Somerset is growing year-on-year. As a consequence, it is becoming more important than ever that we have a clear strategic plan outlining our objectives and priorities.

General Need

The following table is taken from the Housing Survey 2000 and shows the level of need for general-purpose housing for new households.

The Housing Register currently holds the details of 3,014 people seeking alternative accommodation, including existing RSL tenants seeking a transfer. More accurate information will be available over the next year, as a result of the implementation of the new choice-based lettings system and associated IT system.

2.5.3.2 Best Value Reviews

Best Value Review of Supported Living

Bath & North East Somerset has recently concluded a Best Value review of Supported Living. The purpose of this Best Value Review is to evaluate the current arrangements for the planning, commissioning, arrangement, delivery and evaluation of services and accommodation that contribute to the support of people (aged 16 plus) who;

· are responsible or

· aspire to be responsible or

· could be encouraged to be responsible for their tenancies or property

· require assistance in maintaining their independent lifestyle.

The review followed a standard methodology incorporating service profiling, setting aspirational goals, gap analysis, options appraisal, conclusions and action plan.

A long list of issues and aspirations were collated by the review team. These issues were identified as a result of consultation and benchmarking.

The long list of issues was summarised and ratified by the Steering Group on 17^th December 2001 under five key headings:

· Inclusion

· Assessment

· Care Packages

· Suitable accommodation

· Planning and Commissioning.

There was a very close inter-relationship between these themes, demonstrating that the thematic approach to the review has resulted in a better understanding of supported living - both the concept and the services that contribute to delivering actual services.

Assessment

This was at the heart of the review because the assessment of an individual's housing and support needs is the foundation on which to build supported living services. The operation of eligibility criteria for housing and social services is necessary to meet their statutory obligations and manage their respective resources in a fair, transparent and accountable way.

The assessment function operates according to a number of separate eligibility criteria, e.g. housing, occupational therapy, grants and adult care criterion. These are used to determine who is eligible for assessment for housing and social care support. It has been identified that these different criteria can adversely affect Bath & North East Somerset ability to work together to give the customer a seamless service.

Assessments can result in the provision of housing and social services care packages. Alternative services that could inform the planning and commissioning of services and housing to meet needs are not always captured.

Inclusion

Some people requiring low level support may be excluded by our assessment criteria but will still wish to have/could benefit from supported living services.

To address this, Bath & North East Somerset will look to establish more supportive, inclusive communities to provide this support by improving social inclusion and reducing the dependency on direct social services provision of low level support services.

Accessing information on supported living services available is currently achieved through the distribution of leaflets or by a potential service user contacting the council. However it is not clear that all potential supported living service users are being captured through these mechanisms or are aware of the services that could be available to them. We need to revisit the means and methods of communication that we employ to meet our target audience (leaflets will not inform everyone).

Care packages

Existing support services are evolving to become more flexible and responsive to the needs of service users however we do not yet meet all our customers needs regarding out of hours provision.

Customer requirements and budget demands mean that we need to review the levels of service that we directly provide. For example, approximately 65% of home care service users receive only two hours a week of relatively unskilled service delivery. Whilst these services form part of more extensive packages, consideration needs to be given to whether the overall package is appropriate, whether the council should be supplying it, if the service should be commissioned from another provider or provided by a group in the local community.

Efficiencies realised as a result of re-focussing our home care and investing in other support services are estimated at between £400 to 700K depending on the successful application of a local Public Service Agreement (PSA) . A PSA can provide pump priming money to invest in support services that reduce the need for residential placements with the obligation to meet stretch targets on relevant indicators. These savings will be reinvested back into more intensive services.

The provision of Care Direct, an extended hours advice service for older people begins operating in October 2002. This service may have the potential to be expanded to include all other client groups.

Planning & Commissioning

The planning and commissioning function should use the information generated within each of the themed areas to produce a strategic plan for the future.

It must also plan for the harmonisation of these key themes e.g, to match the volume of available accommodation for supported living with the capacity of the assessment staff to assess the number of applicants for housing and social care support (and review their ongoing needs in social care). It must also ensure that the right level and type of support services are available to support this volume of accommodation and tenants.

Another role is to ensure that there is adequate recording and monitoring of activity across all these themes to perform this role of harmonising the five key elements of supported living, for example the number of, and reasons for tenancy breakdowns.

The existence of 65 planning groups is not effective and the number of groups will need to be rationalised.

Suitable accommodation

New supported living schemes/units have to compete with the economic development needs of the area for new build land in a generally high cost local market for housing and land. The availability of affordable housing for supported living is obviously one key determinant of the Council's ability to achieve greater social inclusion and to enable social services to support people's independence as an alternative to institutional care.

Appointing a supported living "champion" who can influence the community strategy and the draft local plan is a way of raising the priority afforded to supported living. On examination of this proposal it was felt that rather than nominate an individual to champion supported living, that performance management systems could be used to effectively provide focus and raise the profile of Supported Living thereby achieving the same aim.

Bath & North East Somerset is a strategic housing authority. It is developing its partnership working with local Registered Social Landlords. It is important that Bath & North East Somerset fully uses its influence with RSLs in new development and in the use of existing stock to meeting the most urgent local needs.

Effective partnership working between the Council and its RSL partners. The Council should use its influence with RSLs and other partners to ensure that effective partnerships are formed and maintained and where necessary build on or strengthen existing contractual arrangements.

This is of high importance as increasing the quantity of the existing housing stock made available for supported living has the potential to provide far more in number of units than new build which is hampered by the local housing market.

The report concluded that all of these issues are inter-related and that it would not be possible to resolve one issue because to do this successfully requires account to be taken of the other issues.

Best Value and Customer Involvement

As part of its approach to Best Value, the Housing Needs Service in Bath & North East Somerset wished to examine ways of involving and engaging service users, including applicants for assistance under the homeless legislation, applicants on the housing register and those using the Housing Advice Centre. A report in September 2000 outlined the findings of a study undertaken by Adams Integra consultants.

The report made a number of recommendations which have provided a useful framework for Strategic Housing Services in Bath & North East Somerset. Many of the recommendations are relevant to the roll out of Supporting People and are in the process of being implemented.

Temporary accommodation

· Consider options for increasing the supply of temporary accommodation available for homeless households, especially in Bath itself;

· Improve the quality of available temporary accommodation by exploring alternatives to bed and breakfast;

· Review the level of support available to households while in temporary accommodation.

Supported housing

· Identify unmet needs including those of young people, people with mental health problems and drug dependency;

· Review the provision of supported housing to meet those needs;

· Review criteria for the assessment of vulnerability to ensure it meets the latest guidance and good practice.

Involvement of Existing and Potential Service Users

· Develop a strategy for wider involvement for the short, medium, and long term;

· Use a range of involvement mechanisms to ensure all who want to be involved can, to the extent that they want or their circumstances and time available dictate;

Around the same time as the Adams Integra review, work was being progressed on the developing supported housing strategy in Bath & North East Somerset. This has subsequently subsumed by Supporting People but is nevertheless a useful source of information on client need.

Aldbourne Associates were commissioned by Bath and North East Somerset (BANES) Council to conduct an independent audit of care and support services for single people in the area. Their study was one of a group of research projects used to inform the Supported Housing Strategy. There were a number of common themes arising from meetings with BANES staff, provider staff and users. Findings and conclusions are as follows:

· There is a need for co-ordination of the care and support services and supported accommodation and more linkage. This could come about from closer monitoring and ensuring all of the service providers have the opportunity to attend the liaison meetings and are kept informed

· There is a need for protocols and central formal referral procedures from all agencies e.g. GPs etc.

· There is a need for floating support and more resettlement workers, which would allow more people to be housed in the community and receive appropriate help

· Gaps have been identified for the very young and also for people with higher and/or dual diagnosis. Consideration should be given to providing more resources to existing service providers to enable them to fulfil this service

· It would appear that resources are over stretched so that only limited or no forward planning for housing is carried out for care leavers

· There is a need for effective assessment and provision of more intensive services

· Lack of staff and resources result in support services only being available during the week and then only during the day. There is therefore a gap in service provision at a time when clients are often at their most vulnerable.

· Some of the hostels are not designed to take disabled people and/or do not have sufficient space for common rooms

· There is a need for monitoring and analysis regarding the provision of services for black and ethnic minority users.

2.5.3.3 Social Services Joint Review

The review report completed in March 2000 concluded:

"Many service users are positive about the services they receive. There are some innovative services that meet needs well, but there are also some inconsistencies. The Authority has made good progress following local government reorganisation; to build on this, it now needs to have a more coherent approach to management, to ensure consistently good performance in a best value context. Prospects for moving forward are encouraging.

Services for looked after children are of particular concern, both regarding operational practice and strategic management. The Authority had already recognised this and had raised the issue with the Social Services Inspectorate. There are plans in place to deal with problems in childcare, but the Authority needs to concentrate its efforts to understand more fully the complexity of the issues. The Authority is working towards a more explicit performance framework that will improve consistency of standards and ensure that individuals' work is objectively evaluated. There are some new and innovative services for children and families and adults, focusing on both prevention and rehabilitation. To meet the challenge of Best Value, the Authority needs to be more cost-conscious."

2.5.3.4 Bath Communities Partnership

In January/February 2000, the Bath Communities Partnership was formed to make a bid to the RDA on behalf of the neighbourhoods and communities in the City with greatest needs. The objectives of the bid were to:

The initial consultation phase of activity has now been completed, with a focus on consulting with and identifying the needs and priorities of two sets of communities:

· The people who live or work in an area in Twerton and Southdown Wards of Bath

· Members of the Black and Other Minority Ethnic communities across the City

Working groups have been set up to guide and manage consultation and research and so far have produced documents including:

_ Regeneration framework

_ Regeneration proposals

_ Progress report

_ Summary of the above

2.5.3.5 The needs of Black and Other Minority Ethnic people

There are a number of sources of data on the housing needs of B&OME communities in Bath & North East Somerset which have been summarised below. However, census information concerning the profile of B&OME communities is inaccurate and out of date. According to the 1991 census the B&OME population in Bath & North East Somerset is estimated at 2,500 although it is recognised that this figure underestimates the true figure by 10 -15%.

The Bath & North East Somerset Housing Need Survey dedicated a considerable amount of time and effort to identifying the needs of local B&OME communities. Despite this, much of the information gathered focused on general needs housing, state of repair, demand, and affordability. The report contains few specific references to or analysis of the need for supported housing for B&OME communities, although it does provide some analysis of need for sheltered housing which appeared to be relatively low.

In 1998, following the creation of the unitary authority, Bath & North East Somerset commissioned a report from United Housing Association in partnership with Gerard Lemos to inform local housing providers of the needs of B&OME elders.

The report concluded that:

· The number of ethnic elders needing appropriate housing will increase over next five years

· Income levels are low therefore affordability is an issue

· There is a need for suitable sheltered accommodation that recognises cultural diversity

· There is also a need for repairs service for elders who wish to stay in their own homes

The Supporting People B&OME consultation group has been instrumental in taking forward the recommendations of the United/Lemos research project and has worked in partnership with Care & Repair in Bath & North East Somerset to secure funding and develop new services for this group.

2.5 Wider Strategic Links

The Bath & North East Somerset Supporting People Shadow Strategy has been drawn together with reference to a range of other existing plans and strategies. Review of existing plans and presentations to planning groups was followed by the distribution of a short questionnaire, which aimed to confirm the Supporting People Team's understanding of shared issues. Additional areas of overlap, for example shared requirements for service user/carer consultation or more comprehensive needs data, have also been mapped as part of the strategy development process.

The information set out below highlights key themes and issues that have emerged during strategy mapping. Table Three in Section 2.6.9., Meeting Key Targets, details how each objective will be carried forward by the Supporting People programme.

2.6.1 Links to the Local Plan

The Council has drafted its' District Wide Local Plan for the period up to 2011. Housing is acknowledged as a major factor in the development of the plan. Joint working between Planning and Housing Officers has meant that the Council has been able to formulate a planning policy that takes account of housing need without compromising on the need to protect the local environment. Continued support for the use of section 106 agreements will ensure that local housing need is met through new developments

2.6.2 Links to the Community Strategy

Increasingly, the Council will work with partners to achieve the Corporate aims set out above. To facilitate this, the Council is developing a Community Strategy. This will establish a 10 - 15 year vision for our local communities, setting out the key priorities for improving quality of life and developing Council and other major services. The Community Strategy will co-ordinate Council activities with those of other public, private and voluntary sector organisations. It will be drawn up with wide public involvement and through a new "Local Strategic Partnership" with key private and public sector service providers.

This will build on the existing work of the Local Agenda 21 Community Partnership which has developed a Vision for a better quality of life in Bath & North East Somerset and endeavoured to achieve sustainable development in the area over the past few years.

2.6.3 Links to Community Safety and Drug Action Team

Bath & North East Somerset Community Safety Strategy

The provision of safe, secure, and where necessary, supported accommodation is essential to achieving the Council's corporate objective of building a healthier and safer community. There are a number of areas in which the Supporting People Strategy can contribute to achieving the district wide community safety priorities. These priorities include:

· reducing burglary and vehicle crime,

· reducing drug and alcohol related crime,

· reducing youth crime,

· providing support to vulnerable victims and reducing fear of crime.

The promotion of home security is essential in reducing both burglary and fear of crime, and in providing support to vulnerable victims. The Council has a responsibility through its Planning and Development Control Services to encourage developers of new homes to meet high security standards.

The Supporting People strategy also links with the Community Safety Strategy and Young People's Substance Misuse Plan in its aim of ensuring that young people have access to appropriate accommodation and support services. There are a number of projects working with young people, including the newly developed floating support service funded through Safer Communities Supported Housing funding.

Bath & North East Somerset Domestic Violence Action Plan

This multi-agency action plan has highlighted a number of key areas of overlap in relation to the planning of services for women who have experienced domestic abuse. Of particular note are objectives outlined in the sections of the plan covering ongoing support and housing :

· Establish follow up home visits programme

· Develop interventions which enable women to stay within home/relationship in safety

· Remove obstacles, clashing policies and delays

· Develop services to support hose wanting to stay in homes

· Support for survivors

Bath & North East Somerset Drug Action Team Plan

A housing strategy for people with drug problems is in development at the time of writing. This plan will be incorporated into the DAT plan when it has been ratified by the relevant partners

2.6.4 Links to Health

Bath & North East Somerset Health Improvement Programme (HimP)

The HImP captures the objectives and key tasks that have been identified for improving the health and wellbeing of all local people in Bath & North East Somerset. The plan provides the framework for the provision and development of health and social services within the context of national priorities for health improvement. Specific objectives identified within the plan may be delivered by a range of other strategy and planning groups, which have been referenced below.

The Supporting People programme in Bath & North East Somerset will be a key vehicle for taking forward the HimP objectives set out below.

Meeting the needs of B&OME People

Objective - To ensure the involvement of black and other minority ethnic people in developing responsive and accessible services

Key task - To fund local projects to improve the health of B&OME people

Key link: The Bath & North East Somerset Race Equality Action Development group

Key document: Tackling Inequalities in Health

Tackling drugs

Objective - To achieve health benefits for the community by reducing the level of problem drug and alcohol use through preventative work, and the provision of treatment

Key task - Improve access to interventions and treatment for vulnerable young people

Key link: The Bath & North East Somerset Drug Action Team

Key document: The Bath & North East Somerset DAT Annual Plan

Teenage pregnancy

Objective - To reduce the rate of teenage pregnancies and increase the number of teenage parents in education, training and employment

Key task - Support proposals for more targeted housing support for teenage parents.

Key Link: The Bath & North East Somerset Teenage Pregnancy Steering Group

Key document: The Bath & North East Somerset Teenage Pregnancy Strategy

Mental Health

Objective - To improve mental health services in line with the National Service Framework and Health Service Advisory Report whilst ensuring services are sensitive to the needs of patients within Bath & North East Somerset

Key task - To improve partnership working with the housing sector

Key Link: The Bath & North East Somerset Service Development and Local Implementation Group for mental health

Key document: The Bath & North East Somerset Local Implementation and Joint Investment Plan for mental health

Older people

Objective - To improve the health of older people and ensure good services in line with the National Service Framework

Key tasks - Ensure the ongoing development of services which promote independence at home

Key Link: The Bath & North East Somerset Older Person's Steering group

Key document: The National Service Framework for older people

People with learning difficulties

Objective - To improve the delivery of health and community services to people with learning difficulties by promoting rights, independence, choice and inclusion

Key task - Delivery of Valuing People Objective 6 for 2002

Key Link: The Bath & North East Somerset Local Implementation Group for learning difficulties

Key document: The Bath & North East Somerset learning difficulties Joint Investment Plan

Developing partnership working

Objective - To enable joint working between partners in health and social care

Key tasks - To work with partners in examining models of integrated services for older people

Key Link: The Bath & North East Somerset Health Improvement Partnership Board

Joint Investment Plans (JIPs)

Each Health and Local Authority together with stake holders have in the past been required to prepare and publish a Joint Investment Plans for a number of service user groups. JIPs are no longer a requirement but joint planning continues to result in the delivery of services to vulnerable people.

Plans are jointly owned 3 year rolling programmes aimed at supporting the key aspects of the Health Improvement Programme. The purpose of JIPs are to:

· Facilitate greater integration between services

· To ensure that we know where money is currently being invested

· To ensure that resources are being used to the best effect

· To agree priorities for change and re-investment

· To ensure that we have joint systems to measure improvements in services

Mental Health JIP

The Local Implementation and Joint Investment Plan for mental health in Bath & North East Somerset has been developed according to the priorities laid out in the National Service Framework (NSF). The plan has been developed by the Bath & North East Somerset Service development and Implementation Group (SDIG) which draws together stakeholders from all sectors of mental health services.

Specific targets, where there is overlap with Supporting People, associated with each standard of the NSF are highlighted below.

Standard 1: Promoting mental health - Providing information and opportunities for meaningful occupation for rough sleepers and other homeless people.

Standard 4: Improved access to services - Better access to mental health care for rough sleepers and other homeless people.

Standard 5: Access to appropriate accommodation - Promoting the provision of crisis accommodation and supported accommodation

Older Person JIP

The older persons JIP in Bath & North East Somerset is steered by the requirements of the National Service framework for older people. The programme of National Service Frameworks is part of the Government's agenda to drive up standards and reduce unacceptable variations in health and social services.

The NSF sets standards for the care of older people across health and social services. These standards apply whether an older person is being cared for at home, in a residential setting, or in a hospital.

Of particular relevance to Supporting People are the targets concerned with promoting independence, in particular:

Older people will have access to a new range of intermediate care services at home, or in designated care settings, to promote their independence by providing enhanced services from the NHS and councils to prevent unnecessary hospital admission.... and to prevent premature or unnecessary admission to long-term residential care.

Learning Difficulties JIP

The preparation of the Joint Investment Plan is co-ordinated by the Local Implementation Group for Learning Difficulties. Over the past two years the preparation and review of the plan has and involved stakeholder events and subgroups working on how services should be developed in the future.

The link between Valuing People and the JIP

The key principles of the learning difficulty White Paper, Valuing People 2001, are the achievement of independence, choice, social inclusion and individual rights for people with learning difficulties. The objective of the Joint Investment Plan is to improve the lives of people with learning difficulties within our locality through the promotion of integrated services that will enable adults with learning difficulties to achieve and maintain maximum independence.

Objective 6 of the LD JIP outlines housing related priorities for people with learning difficulties including:

¬ Improving knowledge of housing and advice needs

¬ Increase the range of local housing options

¬ Development of home support service and training unit

How the supported living commissioning strategy overlaps with Supporting People

Supporting People is aimed at helping vulnerable people to live independently in the community with a range of housing support. People with learning difficulties, as a group, have suffered social exclusion and are under-represented as owner occupiers and holders of tenancies in their own right. The supported living commissioning strategy is focused on enabling people with learning difficulties to access ordinary housing with support tailored to meet individual assessed needs and maintain independence. Supporting People is an important policy initiative to the supported living commissioning strategy in, for example, the mapping of housing needs and localised funding of supported housing.

Welfare to Work for Disabled People JIP

This plan is aimed at all disabled people of working age including people with learning difficulties and people with emotional and mental distress. It has been developed by the JIP working group, a range of partners who have direct involvement in providing employment services and/or other services to disabled people.

The plan takes a holistic approach in tackling welfare to work issues and highlights affordable, accessible housing as one of the keys to success.

Specific action points include:

-Need to ensure that housing strategies take account of the employment needs of applicants when planning future social housing

-Need to monitor the new housing needs register to see how effectively the new model increases the numbers of disabled people applying for and accessing general needs housing.

Teenage Pregnancy Strategy

ODPM guidance on good practice in supported accommodation for young parents highlights the objective set by the Social Exclusion Unit that all under 18 teenage lone parents who cannot live with their family or partner should be placed in housing with support, not an independent tenancy.

A recent audit of provision for teenage parents in Bath & North East Somerset highlighted the lack of supported housing options for this group. In response to this the Bath & North East Somerset teenage pregnancy strategy identifies as one of it's key targets a partnership arrangement with a local RSL to provide units of accommodation with support for young parents.

In addition the plan raises the issue of developing support services for homeless young parents which could replace the reliance on bed and breakfast accommodation for this group.

2.6.5 Links to Social Services

Care Leavers Accommodation Strategy

This plan has evolved from the requirements of the Children Leaving Care Act .

The Care Leavers Accommodation Strategy is a partner to the Youth Homelessness Strategy but has been developed to focus on the specific issues that care leavers may face. This document identifies further areas of need in relation to:

_ Lack of high support schemes

_ Lack of provision for teenage parents

_ Lack of emergency accommodation other than bed and breakfast

_ Lack of support for young offenders

_ Lack of guarantors for young people

_ Lack of independence training

2.6.6 Links to Social Inclusion

Bath & North East Somerset Social Inclusion Strategy

This strategy sets out Bath & North East Somerset approach to tackling issues of social inclusion related to the causes and effects of:

¬ Comparative poverty or exclusion through location such as rural poverty or isolated estates in urban areas

¬ Poverty or exclusion through circumstances such as lone parents, or frail elderly people, or ill health, unemployment or issues affecting children or young people

¬ Discrimination or exclusion through being perceived as part of a group due to reasons such as gender, or minority ethnic or cultural background, or disability or age

The Supporting People programme in Bath & North East Somerset shares the objectives of the Social Inclusion Strategy which can be summarised as:

A focus on people rather than services - Supporting People services will be provided on a needs led basis,

Targeting resources and services to achieve social inclusion, community development and empowerment - Supporting People in Bath & North East Somerset will focus on addressing imbalances in service provision for excluded groups

Specifically, the Social Inclusion Strategy is being delivered through a series of focussed consultations with local residents of socially and economically excluded area e.g. areas where there is a high density of social housing.

The objective is to involve specific communities where residents would not normally engage in consultation exercises. A good deal of information on resident views has been collated in this way relating to a range of issues including buildings, safety, community, environment and services. The results of these types of consultation have been useful in informing the Bath & North East Somerset SP strategy.

2.6.7 Links to Rural Strategies

TO BE INSERTED

2.6.8 Links to Housing

Bath & North East Somerset Housing Strategy

The Supporting People programme in Bath & North East Somerset will be a key delivery tool for the Housing Strategy locally. A number of the objectives set out in Section 2.1.3 of this document will be jointly taken forward by the Supporting People Team and the Partnership and Planning Officer who is responsible for delivering the broader objectives of the Housing Strategy.

In previous years the Housing Strategy has incorporated a number of key themes which are shared with the aims and objectives of Supporting People. These include:

¬ Joint commissioning activities

¬ The use of empty properties

¬ Promoting independence

¬ Matching provision to need

¬ Specific improvements for young people and for homeless people

¬ Increasing choice

¬ The needs of B&OME People

¬ Delivering Best Value

¬ Consultation and user involvement

A considerable amount of work has been undertaken in recent months to update the Housing Strategy. In particular a wide range of stakeholders were involved in a consultation event in April 2002 which aimed to prioritise actions required over the coming years to deliver the strategy. As a result of this exercise, the current focus of the Housing Strategy (where it overlaps with Supporting People), in order of priority is as follows:

¬ The re-designation and re-use of hard to let sheltered schemes

¬ Increased availability of "stepping stone" accommodation

¬ Audit of stock for adaptations

¬ Provision of "non-specific" core and cluster accommodation

¬ Planning ahead for people with learning difficulties

¬ Identifying funding for the development of garage sites

¬ Development at Western Riverside to include supported schemes

¬ Increase the provision of temporary accommodation for homeless families

¬ Development of warden services for wider range of residents e.g. Mental Health

Bath & North East Somerset Single Homeless Strategy

This strategy has been developed by the Bath & North East Somerset Single Homeless Partnership, in conjunction with the Supporting People Team, and outlines the priorities identified by agencies working with Bath & North East Somerset council. They are:

¬ Better co-ordination of the Community Support Team

¬ More support for vulnerably housed people

¬ A shared database of information on people using services

¬ Increased, varied and flexible accommodation options

¬ Re-alignment of existing services to meet changed need

Empty Properties Strategy

At present it is estimated that there are approximately 163 properties in the Bath & North East Somerset area that have been empty for 12 months or more. While this is lower in comparison to national figures, this is unacceptable in an area with a high demand for housing and a shortage of affordable homes. The main aim of this strategy is to bring empty properties back into use.

The Government has introduced policies aimed at targeting long standing empty properties. Within the Town and Country Planning Act 1990 the Planning Policy Guidance 3 (PPG 3) requires local authorities to give priority to re-using previously developed land within urban areas, bringing empty properties back into use, converting existing buildings in preference to the development of green field sites.

In addition the number of empty properties re-occupied is one of the Best Value Performance Indicators (BVPI64) in Bath & North East Somerset. Most of the expertise and local knowledge needed to make the empty property strategy work is already located within the Council.

For the strategy to be successful there must be a unified approach. Building strong links with Registered Social Landlords, private owners, Town and Parish Councils and community and residential groups is key.

The Supporting People programme will provide help to provide a steer and may also identify enterprising opportunities to encourage empty properties back into use. This may include utilising space over shops and creating short term affordable accommodation which is suitable for both general needs and supported accommodation.

Temporary Accommodation Strategy

This document sets out the increased demand for temporary accommodation that has resulted from changes to the legislative framework governing homeless applications to local authorities. Firstly, the Children (Leaving care) Act 2000 and the Homelessness Bill 2001 have resulted in an increase in the number of households to whom the council has a full housing duty.

In addition there has been a significant increase in levels of vulnerability amongst those presenting as homeless whilst the overall supply of affordable housing has decreased.

The strategy identifies the need for an additional 95 units of temporary accommodation to be delivered in Bath & North East Somerset between 2002 and 2004.

Youth Homelessness Strategy

The Youth Homelessness Strategy identified key areas of concern in relation to the accommodation and support needs of young homeless people. The framework for this strategy and the priorities contained within it came from a conference on Youth Homelessness held in July 2000. Since that time a number of developments have been progressed which have impacted positively on the issues set out below. These have been highlighted in bold text:

_ There are currently very few housing options for young people. Planned new provision will fill some of the gaps but there remains a need for different types of supported accommodation along with a floating support service for young people who have tenancies but are struggling to sustain them. The housing needs of 16/17 year olds are not always the same as `older' young people aged 18-24. It is important that these differences are recognised in the planning of new housing and other services.

_ Support for young people in temporary accommodation has improved, following a successful HAP2 bid to the Rough Sleepers Unit. Pathways now employs a Support Worker for 16-17 year old people in temporary accommodation.

_ A Floating Support Service for young people has attracted £40,000 funding from the Housing Corporation under Safer Communities provisions. This will cover the cost of one worker to be employed by Bath Self Help Housing Association.

_ Accessibility of advice and advocacy is a particular problem. Whilst SWAN (South Wansdyke Advice Network) does operate mainly in North East Somerset, young people living in rural communities can still experience difficulty accessing advice. Mainstream agencies not targeted specifically at young people may have labels that put off young people/stigmatise them, for example drug users/offenders/mental health problems. There is a low take up of services by ethnic minority groups.

_ There isn't a clear and consistent process for assessing young homeless people. This makes it difficult for young homeless people to know, or find out, how to access housing and/or to challenging barriers to housing.

_ An Accommodation Policy for Young People & Care-leavers is currently under review by Social & Housing Services in the light of the Children Leaving Care Act 2000 and changes made to categories of Priority Need contained in the Housing Act 1996 Part VII (Homelessness). To make the policy more accessible it is being split into two areas, care-leavers and young homeless people.

_ The Social & Housing Services Joint Assessment Process has been reviewed and changed. A leaflet will be produced to explain the new procedure.

_ There is a lack of specialist detox and rehab for young people. When places are available it is very difficult to secure funds. Also, there is a waiting list for many services - even a short time waiting is a long time for a young person. Young people's psychiatric service ends at 18. Young people 19/early 20s often have specific mental health needs (eg eating disorders, self-harm) and do not wish to go to the adult service. There is a lack of specialist services in B&NES and young people may have to travel to Bristol or further for treatment. Many young people do not want to access services seen as linked to authority eg GPs, Social Workers, Psychiatrists.

_ There is a lack of accommodation for young disabled people, particularly in Bath where the physical geography and the architecture in central Bath makes it particularly difficult to adapt or develop accommodation for disabled people.

2.6.9 Meeting Key Targets

Supporting People is the delivery tool for the strategies outlined above. In addition to a range of accommodation and support services that will be commissioned as part of the Annual Plan for 2003/04 the programme will contribute to other agendas in a number of ways. Table Three below sets out in further detail how the programme will help to achieve targets already identified in other local plans, in line with the specific aims set out in Section 2.1.1

Table Three - Summary of key targets by service user group

2.6

2.7 Cross Authority Links and Issues

A number of cross authority issues concerning administrative and commissioning arrangements, resource responsibility and service levels have been identified and are outlined in the table below, which summarises the findings of early cross authority needs mapping undertaken between April and June 2001.

2.7.1 Local Issues

Other neighbours

While the benefits of partnership working with other ex-Avon authorities are recognised, there is also a need for recognition of the fact that Bath & North East Somerset shares borders with two Wiltshire authorities.

Early mapping of local cross authority provision highlighted the fact that there is a high degree of service user in and out migration between Bath & North East Somerset and a number of other authorities. This is a significant pattern for all cross authority service user groups.

Commissioning arrangements for these groups will continue to operate on a reciprocal basis within the CUBA authorities although these may need to be negotiated with other Bath & North East Somerset neighbours, possibly on a scheme by scheme basis.

National Schemes

In addition to the border issue outlined above, Bath & North East Somerset also hosts a large, nationally accessed RNID scheme for people with hearing loss and other sensory impairments, learning difficulties or mental health needs.

The scheme currently supports around eighty individuals who have been placed, and are financially supported by, some thirty other local authorities across the country. Many of the schemes residents have lived in Bath & North East Somerset for more than fifteen years.

Although much of the provision is registered residential care, the scheme receives a significant amount of SHMG via a local RSL partner. It has been agreed locally that Bath & North East Somerset, as the host authority, should administer Supporting People funds to the scheme.

However, in the current climate of modernisation and the challenges of the National Care Standards Act, issues concerning the re-provision of a number of the schemes units have arisen. Most significantly the drive towards the provision of community based supported living has led to some ambiguity in relation to continuing care responsibilities where resident have health, social and housing related support needs.

Provision for ex-offenders

Finally, the provision of housing related support services for ex-offenders, linked to PAG funding, has over the last five to six years been Avon wide. A Bristol based advice service, Alpha, has supported ex-offenders released on probation in finding appropriate accommodation and support in whichever local authority area they originated from.

The centralised nature of this provision has resulted in a limited basic service to Bath & North East Somerset residents with no PAG funding available for the provision of local accommodation based services. This is a more acute issue for mentally disordered offenders and is likely to become more pressing with the imminent withdrawal of Probation top up funding from the PAG funded advice service.

The CUBA response to this issue has been to work in partnership to develop a service specification for a pan Avon floating support service for offenders. The service, to be funded by PAG released from Alpha, was put out to tender in June 2002 and was awarded to XXXXXXXX following a successful tender submission.

Opportunities for "growing" the floating support service using Transitional Housing Benefit have also been explored with the aim of supporting offenders who have served less than twelve months or a full term prison sentence i.e. not released on probation.

2.7.2 Level of Cross Authority Provision in Bath & North East Somerset

INSERT RESULTS OF CROSS AUTHORITY BASELINE SURVEY - results due back from ODPM by 14^th August

2.8 Service Quality and Reviews

The Bath & North East Somerset Supporting People review methodology and timetable has been structured and informed by a systematic process of visits to providers, strategic decision-making and consultation.

In the first instance, all providers were visited by the Supporting People Team and required to fill in an accreditation questionnaire. The results of questionnaires were used to highlight specific issues with which providers would require support in order to achieve accreditation following a review. Concern has grown in the Supporting People Team, and is evident on the Kweb, over the use of the word "accreditation". The four areas examined do not necessarily ensure fitness to provide services to vulnerable people, and it is proposed that we redefine this questionnaire as an "entry" into the programme, rather than implying fitness to provide. At this stage, caution is furthered by the lack of any statement from the National Care Standards Commission concerning their stance on Supported Housing. It is a proposal that any such release would be examined with a view to redevelop the accreditation process to accommodate this, along with any increased expectations from Bath & North East Somerset.

The decision to carry out reviews by client group has largely been informed by the need to compare the quality and range of local provision with the specific service aims (and desired spectrum of provision) developed for each group. This has been the result of broad user and stakeholder consultation, i.e. to be able to show specifically where service provision is at odds with service aims, (and desired spectrum of provision), for a particular client group.

A strategic decision was also made early on to review as a matter of priority any services where guidance on means testing and charging was likely to have an impact on service users. Locally this has been interpreted as provision for older people with support needs and some services for people with learning difficulties and/or mental health problems.

A programme will need to be published in September 2002 to stakeholders indicating when the service reviews will be carried out. It is an intention that the Bath & North East Somerset Supporting People website hosts this programme, though in view of the timescale it will probably be necessary to mail this directly to providers in the first instance.

The general aim will be to prioritise review on services that are considered a higher risk.

Factors to consider (with suggested weighting from 1-5 in red) include:

· Authorities should use their judgement in considering factors jointly - a single factor may not be sufficient in itself to prioritise for review.

· Services for high-risk client groups e.g. mentally disordered ex-offenders, or violent offenders who may present risks to themselves or others. (4)

· Services due for review under another programme e.g. Best Value, SHMG, Residential Home or other strategic review. (3)

· Services not reviewed for 5 years or more. (2)

· Services not well known to the authority. (3)

· Services for greater numbers of people generally indicate a higher priority. (4)

· Services with performance concerns i.e. complaints, high voids level, or the nomination agencies' nominations have been rejected unreasonably. (5)

· Services that are believed to be less cost beneficial than others. (3)

Having taken into account all the above factors, the initial review programme was drawn up using a matrix of weighted criteria, which were then scored out of ten for each service. For example services were scored from 1 to 10 on "services not well known to the authority", this criterion having been given a weighting of 3. The product of score x weighting gave the overall score that is then ranked in the review timetable for the service in question.

Example:

Involving Stakeholders

The Bath & North East Somerset Supporting People Team has worked in close partnership with a range of service providers, users and other stakeholders. Key to the process has been the involvement of disability and race equality advisory groups with specific input from local Black and Other Minority Ethnic agencies.

Preparing Providers

Early in the Supporting People programme, (May 2001), a workshop for providers was held which focussed on "hard" and "soft" elements of service reviews. The former including the provision of appropriate financial and performance information, the latter including mechanisms for involving service users and the quality of information provided to potential users. The workshop was a valuable exercise in preparing providers well in advance for the demands of service reviews and was followed in March 2002 by a further workshop on Supporting People accreditation requirements.

Methodology And Guidance For Supporting People Contract Reviews

· Where the review will inform a Best Value review; (Bath & North East Somerset BV programme at present sets out to review Services to Disabled Adults in Jan2004, and Joint Working and Partnerships in Feb 2004. From 2002, BANES are also subject to Comprehensive Performance Assessment; the SP review programme must be set as complementary to this)

· Where the provider and authority agree it would be beneficial;

· Where there is an unexpected change in demand for provision - e.g. following supply mapping.

Structure of the Contract Review Process.

18 The review process focuses on five criteria that must be satisfied before a service is eligible for SP funds. These are:

· Operate in accordance with the local Supporting People strategy

· Meet identified current and future demands for services;

· Provide a quality service which effectively meets the need / preferences of service users and potential users;

· Be cost beneficial; and

· Be provided by an organisation, which offers a reasonable likelihood of remaining in business in the foreseeable future.

· Does the service meet the authorities strategy? - Can be broken down into a number of smaller questions.

· What does the strategy say about promoting independence;

· To what extent does the service contribute to this aspect of the strategy; and

· What is the evidence to support this assessment?

27. As the review timetable progresses, copies of the review meetings findings and conclusions will be made available on the Bath & North East Somerset Supporting People Website, with paper copies circulated to relevant stakeholders. It is also being considered to circulate reports to local libraries, as this has become an established method of publicising registered care home inspection reports.

28. Where a review produces recommendations for changes in a service, or indicates that the service will be decommissioned, realistic short (<3m), medium (3-6m) and long-term (6m+) timescales will be agreed in the review for implementation. These should reflect both the degree of risk involved, and the operational ability of the service to respond, but primarily be set in the interests of protecting the vulnerable adults that use the service.

29. Subject to sufficient and appropriate space, review meetings will be held on site of the service concerned. Where this is inappropriate, meeting space will be made available within Bath & North East Somerset council.

2 THE OPTIONS AND STRATEGY

The emphasis of the Supporting People programme in 2003 will be to ensure a seamless transition from existing financial arrangements. The review process and lead-in period for changes following a review preclude the introduction of significant changes to current commissioning patterns. However, there will be opportunities for new developments which are outlined in the following section

3.1 Immediate Service Development Opportunities

Opportunities for development and re-direction of services in Bath & North East Somerset will be explored where:

· The provider and the Commissioning Body agree on new services to be developed or changes to existing ones

· Additional funding is available from other non Supporting People sources

· Pipeline funding has been secured for the purpose of development

· Immediate savings/service user benefits have been agreed with providers following an early scheme review

The table below outlines the main areas for possible action in the first Year of Supporting People grant.

3.2 Other Principle Priorities/Innovations

There are a number of other principle priorities that have been identified but may not form part of the SP programme in the first year. Developments which are on going and those which have longer time-scales are also included.

3.3 Contingencies, Risks and Issues

TO BE INSERTED

3 ANNUAL STATEMENT

The ODPM has required local authorities to project what developments could be implemented if funds were made available to increase the number of services commissioned by 10%. This requirement in no way guarantees or anticipates that funds will be made available. Any announcement of that type will be made during 2003.

This section compliments the previous section on immediate development options and sets out in greater detail the resource implications. Changes which are already planned or the re-use of funds from existing services are accounted for.

This section provides a high level overview of funding implications of the shadow strategy and clearly indicates the Supporting People funding required to develop each scenario.

Tables Four to Ten set out below provide a summary of each proposed new service giving details of associated costs and why the scheme has been prioritised

Table Eleven gives an overview of all funding required to deliver proposed new schemes

Table Four: Additional service 1

Table Five: Additional service 2

Table Six: Additional service 3

Table Seven: Additional service 4

Table Eight: Additional service 5

Table Nine: Additional service 6

Table Ten: Additional service 7

Table Eleven: Summary financial table

APPENDICES

Appendix One - Bath & North East Somerset Supporting People Decision Making Group Terms of Reference

Purpose of Decision Making Group

To have formal responsibility for the development, implementation and future direction of the Supporting People strategy.

To make recommendations to Elected Members and the Partnership Board regarding the commissioning or re-modelling of Supporting People services.

Objectives of Decision Making Group

· To identify strategic groups with which there will be links and how these links will work

· To identify which local strategies will have shared objectives with the SP strategy and to encourage shared ownership of issues

· To ensure that consultation with providers and users of SP services is broad and inclusive

· To ensure that the needs of black and other minority ethnic groups are appropriately reflected in the SP strategy

· To contribute to the development of cross authority arrangements for a number of SP service user groups

· To identify priorities for future funding by engaging with the process of comprehensive needs assessment

· To develop links with commissioning partners in health and probation to ensure a robust framework for the implementation of the SP strategy

· To take responsibility for commissioning appropriate IT which meets SP requirements and is interoperable with new social services and housing systems

· To set up short term sub-groups to progress work on specific issues

Reporting and accountability

The Decision Making Group will report to commissioning partners, Elected Members and the Partnership Board

The Group will liase closely with the Broad Consultative Forum through existing representative groups

Membership of Decision Making Group

Nick Harris, Head of Adult Care & Commissioning Joint Chair, Social Services

Jane Shayler, Group Manager Assessment & Commissioning Joint Chair, Housing

Judy Overton, Commissioning Manager Social Services

Derek Thorne, Partnerships Manager Avon Health Authority

Mark Ellery, Partnership Manager Avon & Somerset Probation S

Appendix Two - Bath & North East Somerset Supporting People Forum Terms of Reference

Purpose of Forum

To provide a broad and inclusive framework for consultation, and for steering and shaping the implementation of the Supporting People strategy.

To act as a conduit for the views of Supporting People groups, service users and carers and to disseminate agreed information on developments and advances back to those groups.

Objectives of Forum

· To identify gaps in the consultative framework and to support the development of new structures accordingly

· To respond to consultation on development strategies and commissioning of services within agreed time-scales to ensure key milestones are reached

· To engage with the process of comprehensive needs assessment and to provide local information on need

· To provide members for short-term sub groups to progress work on specific issues

· To set particular objectives and to monitor progress (against DETR timetable)

· To provide local information on need which includes the needs of Black and Other Minority groups

Reporting and accountability

The Forum will report to the Supporting People Decision Making Group

The Forum will meet on a quarterly basis to receive updates on strategy development and to consider the final draft strategy

Appendix Four - Analysis of Supply Mapping