Ending Destitution Together: progress report – year one 2021 to 2022

Annex A: Local authority models of service delivery: tackling destitution at local level

Local authorities across Scotland are delivering key services to support people with NRPF who are destitute or at risk of destitution. Alongside the programme of work covered under specific actions within the Ending Destitution Together strategy, councils continue to adapt and innovate their approaches in order to provide holistic support and to contribute to the wider ambition of ending destitution in Scotland.

Below are a few examples of the work Scottish councils are doing in this area:

Glasgow City Council

In Glasgow, the Health and Social Care Partnership worked to develop a process to support the discharge of people with No Recourse to Public Funds (NRPF) from acute mental health sites. The process was agreed in order to clarify discharge arrangements for people with NRPF with complex and ongoing mental health requirements in order that their needs can be met in relation to their mental health, broader accommodation and social issues and minimise the risk of harm to themselves, others and the likelihood of readmission within a short period of time. The process agreed is identical to general discharge protocols. However, where a person is identified as having NRPF then agreement is sought from an identified senior manager to agree the funding for the identified accommodation and support package. Funding is agreed for an initial three month period in order to facilitate the safe discharge of the person from hospital. During this period, the individual is supported to access ongoing care for their mental health needs and is assessed for any ongoing requirements beyond the 3 month period by their case management team, aiming to secure a long-term pathway out of destitution for them wherever possible.

North Lanarkshire Council

North Lanarkshire Council first developed a staff protocol in relation to No Recourse to Public Funds (NRPF) in 2017. This ensured that decisions regarding the provision of support for people with NRPF were applied consistently within the local area. By developing this protocol and delivering staff training, the local authority improved understanding of NRPF cases across different departments and council employees were in turn better equipped to support people with NRPF. Furthermore, by introducing a multi-agency approach when undertaking human rights assessments, bringing together colleagues from housing, social work, health, education and legal services, North Lanarkshire Council have improved communication across these various departments and agencies, creating collaborative interactions. In doing so they have employed a holistic approach where the private and family life rights of the individual or family are considered, and other important statutory duties are factored into decisions made. Post COVID-19, the council is in the process of updating its staff protocol to include new guidance in relation to public health considerations as well as adding a more robust review process which will implement quarterly reviews for any cases on support where the individual or family being supported are subject to the NRPF condition.

City of Edinburgh Council

From the start of the COVID-19 pandemic, City of Edinburgh Council has provided temporary accommodation for all, regardless of eligibility, including those who may have NRPF, in order to meet public health requirements. At the end of March 2022, there were up to 400 households in temporary accommodation under emergency public health measures. This has been a significant cost and resource on their Local Authority.

City of Edinburgh Council has worked in partnership with the third sector, including colleagues in Streetwork and Shelter, to support households to access their rights under the EU Settlement Scheme, and to equip them with information and knowledge on their rights and entitlements, including what they require to enable them to be eligible for recourse to public funds. As part of this emergency response, the local authority has held off making eligibility decisions on homelessness applications in order to give households the opportunity to access support enabling them to meet eligibility criteria for ongoing assistance.

South Lanarkshire Council

In South Lanarkshire presentations from individuals or families with NRPF are dealt with on an individual basis depending on their situation. There are many reasons why someone may have a NRPF condition and needs for support and advice vary widely. Within South Lanarkshire families/individuals tend to present either to housing/homelessness service or to locality (or emergency) social work services. A good multi-agency approach allows for links to be made with the right services/agencies. Where legislation allows and social work services are providing support (this can be financial, accommodation and/or support and advice) regular inter-agency meetings or internal review meetings are held to track progress, offer advice and support the family/individual to move on.

Where an individual presents for homelessness advice and it is determined they have NRPF, a response is provided based on individual circumstances. Often temporary accommodation is provided prior to confirmation of an NRPF condition - in this situation liaison between homelessness and social work services would confirm if the criteria were met to allow for social work support to be provided under relevant legislation.

During the period covered by this report, accommodation for people with NRPF was provided under a Public Health emergency response. Numbers of presentations from families and individuals with NRPF were relatively low, however the need for support ranges from short-term to much longer term, for example where a family is not yet able to apply for settled status under the EU Settlement Scheme, are unable to support themselves financially and completion of a human rights assessment indicates that support should be provided.

Highland Council

Highland Council has developed an internal protocol for frontline staff on how to manage and support homeless households with NRPF. This includes step-by-step guidance for frontline staff from the point of someone’s initial presentation to the council’s Homeless Team up to the resolution of the situation (depending on the specific circumstances of the case). The guidance is structured into a three-stage process with the goal of helping the NRPF person or household to resolve their homelessness or obtain recourse to public funds and access a full homeless service. This NRPF protocol is being piloted within Highland Council and will be actively reviewed and evaluated for future policy and practice implications.