Is Causeway Meeting the Housing Needs of Haringey? Rosie Dammers, Amelia Holgate, Oliver Wardman, Siyang Zhang

Is Causeway Meeting the Housing Needs of Haringey? Rosie Dammers, Amelia Holgate, Oliver Wardman, Siyang Zhang 10th June 2016

Contents Summary Main Findings Main Recommendations Background Information Analysis of Demographic and Equalities Data from Haringey and Causeway 5.1 Overall Numbers 5.2 Ethnicity 5.3 Gender Analysis of Causeway s Application Process 6.1 Birth and Cultural Origin 6.2 Housing Condition 6.3 Age 6.4 Referral Agencies 6.5 Employment Status 6.6 The Application Form 6.7 The Interview Process 6.8 Database and Data Collecting Other organisations and potential outreach activities 7.1 Telephone conversation with YMCA 7.2 Telephone Conversation with MACE 7.3 Telephone Conversation with Ladybur 7.4 Telephone Conversation with Tamil Housing 7.5 Conversation with PEEC 7.6 Telephone conversation with Haringey migrant support centre List of Sources 1

1. Summary The aim of this report is to evaluate Causeway s application process to ensure the charity is allocating housing to those most in need. The internal data supplied by Causeway has enabled us to compare local, national and other housing association statistics in order to find out whether certain groups are underrepresented in the application process. We hope that from the findings Causeway will be able to identify demographic groups who have been unable to reach their services and broaden the intake of new tenants. 2. Main Findings We have found that Black Africans have the greatest housing need in London and the borough. The needs of East Africans in particular have been increasing over the past year with the onset of the migrant crisis. However, amongst Causeway s recent additions to its service users, we have found that there is a slight overrepresentation of Eritreans, potentially due to Causeway's application process and Eritrean support networks. We have found that the ethnic group White Other, which mainly constitutes migrants from the European Union, are underrepresented amongst Causeway s service users, compared to the local and London need. Although Causeway focuses on young single homeless people, a disproportionate number of 21-25 year olds who apply do not become tenants. We speculate that this may be because they do not have adequate paperwork or English level. While conducting the report we have found that many organisations in the area and sector do not maintain good communications links or share relevant data. Better understanding of each organization's role will lead to smoother referral routes and a greater capacity across the sector. Cross-sector partnership is also becoming increasingly important as the supply of non-statutory homeless shifts towards refugees. 3. Main Recommendations Having only been involved in the organisation for 8 days, the scope of our recommendations will naturally be limited. However, the value of our recommendations as outsiders is that we can provide a fresh pair of eyes on the workings of Causeway s application process. 2

Collect data during the application process and analyse it regularly to ensure Causeway is meeting local housing need Create better communication links between local community groups, housing associations and charities, particularly those in touch with Eastern Europeans and the under 25s, through a networking event. Accept character references as well as landlord references. We hope that this will lead to an increase the success rate of the under 25s Ensure those allocated housing are those who are most at need by visiting them at home before offering them housing Better signposting and more rigorous referrals for the under 25 age group regarding which organization is more suitable for them. 4. Background Information London is experiencing a housing crisis built on a policy context which favours private ownership, welfare cuts and an inadequate supply of housing. This is marginalising low income groups who cannot afford to buy their own home. Due to the lack of affordable rents, many are being forced out of their homes towards the edge of cities, or else on to the streets. This is causing the numbers of homelessness people to rise, particularly within young and ethnic minority groups. The migrant community is also experiencing hardship. Cuts to legal aid, a tightening of immigration rules, and a reduction in the availability of basic services has made it harder for migrants to settle in London. Within the borough of Haringey Causeway plays a unique role. It has a history of helping migrants and refugees and a target group of young, single homeless adults, with a particular emphasis on shared housing. However, the increasing demand for housing is putting the organisation under strain; ensuring resources are distributed fairly and efficiently is paramount. 5. Analysis of Demographic and Equalities Data from Haringey and Causeway The aim of this section is to compare data on homelessness from the borough of Haringey with Causeway data to explore the extent to which Causeway is meeting the housing needs of the local population. 3

5.1 Overall Numbers With a target group of young, single, homeless adults who do not have specific needs, Causeway tends to attract applicants who are deemed non priority by the local council. Graph 1 shows the numbers of non priority homeless people in the borough, and confirms that there is a need in Haringey in particular. However, in Causeway s application process, there is no requirement for an association with the borough. While other Housing Associations, even those who specifically target migrants, require a 6 month connection with the borough (e.g. Chapter 1 Dashwood House). Graph 1 Though Causeway is serving the need of young single homeless people, it is not clear whether these people are directly related to the needs of the borough itself. It may be advantageous therefore, to have a question on the application form to identify whether the applicant has an association with Haringey or not. This would show that the borough s needs are being met rather than the needs of the whole of London. Recommendation: Insert a question into the application form on whether the applicant has an association with the Borough of Haringey. 4

5.2 Ethnicity It is important to state that in these graphs, the ethnicities may be second generation. Graph 2 Graph 2 has been constructed using Home Office live statistics on homelessness (https://www.gov.uk/government/statistical-data-sets/live-tables-on-homelessness). It is particularly relevant to Causeway because it specifies non-statutory homelessness. It shows that the numbers of non-statutory homeless individuals coming from other countries is increasing. This is shown by the blue line on the graph. Interestingly the yellow line shows that non-statutory homeless numbers from outside the EU was decreasing until 2014-2015 where they started to increase again. The increase in non-eu non-statutory homelessness over recent years may have disguised the fact that the needs of EU migrants persist. On the other hand, you might argue that there is no real trend to be extracted from this graph. Graph 3 5

Graph 4 Graph 3 has been constructed from the same source. It shows the ethnic makeup of Haringey s statutory homelessness. The ethnic data from non-statutory homelessness would have been more helpful. While that data does exist, it is patchy and difficult to access. Nevertheless, perhaps the most notable features of this graph are (1) that statutory homelessness is growing in Haringey, and (2) that before 2009 the number of black and white homeless in the borough was comparable, while in recent years the number of black homeless people have increased proportional to the number of white homeless people. Graph 4 simply reinforces this point and is constructed using data from the Haringey Council website. We know therefore that Black Africans are the largest ethnic group of homeless people in Haringey and that there has been an increase in black homeless people over the past 5 years. However, according to a Home Office report, 64% of all homeless in temporary accommodation in London are from an ethnic minority background. Causeway has experienced an increase in numbers of Black African applicants, especially migrants, and is therefore meeting the increasing demand for housing within that ethnic group. However, graph 5 suggests that black africans are overrepresented in Causeway applicants, as a far higher proportion of them approach Causeway than exist within the local homeless community. Graph 5 6

Graph 3 and 4 also tell us that the demand for housing is increasing within the White Other segment of the population. However, Graph 5 shows that they are underrepresented amongst Causeway applicants. In order to address this imbalance Causeway could reach out to local organisations who are in touch with EU migrants, such as the Haringey Migrant Support Centre. Testimonials from tenants have confirmed that local knowledge about the organisation is spread mainly by word of mouth. After approaching Ladybur Housing Association, we learned that the majority of their applicants are Eastern Europeans and so would fall under the category of White Other. This suggests that different organisations evolve to meet the needs of particular ethnic groups of the borough as a whole. Ladybur, however, only admits families and so there is a gap in provision for young and single Eastern Europeans which Causeway could aim to meet. Furthermore, a discussion with a member of staff at PEEC confirmed that there is a need for accommodating Eastern Europeans that is not being met in Haringey. According to PEEC, there is as much a need for single Eastern Europeans as there is for families. Many Eastern European individuals have a previous housing condition of sofa surfing and therefore fail to meet the criteria of the housing associations in Haringey. They also often have very little English. This may be leading to an increase in the numbers of homeless Eastern Europeans in the borough. The Equal Opportunities policy states that the charity will publicise and accept referrals from a wide range of agencies, monitor policies and procedures, and set E and D targets at the Management Committee meeting. Implementing this policy could be one way of creating a more representative balance of ethnicities. Recommendation: Better communication between local organisations. Recommendation: Reach out to local organisations working with Eastern European migrants. Recommendation: Monitor demographics of applicants regularly and report these to Management Committee Meeting. 7

5.3 Gender Graph 6 The national data on the gender of homeless people could be vastly underestimated according to a report in the guardian newspaper. The fact that Causeway has a more even split between male and female applicants than the national results is therefore a good result, and suggests that there is no need for concern. 6. Analysis of Causeway s Application Process The aim of this section is to analyse how applicants move through the application process. The success rate of the application will be looked at in relation to different variables, such as country of birth, cultural origin, housing condition and age. This will be followed with an investigation of the application form and interview. Please note, the figures in the graphs below represent the proportion of applicants at that stage of the application process rather than the total number. The sample size at each stage changes so it is useful to see these figures as a percentage, because it helps to illustrate the changes in the success rate of applicants. Raw data would not show this, as it would naturally decrease as the sample size decreases. 6.1 Birth and Cultural Origin 8

Graph 7 Graph 8 The largest proportion of country of birth is Eritrea. This reflects national migration trends as Home Office statistics show that the largest number of migrants into the UK over 2014/2015 were Eritrean. By providing housing for the Eritrean community, Causeway is meeting the demand of a group whose need is growing. It also means the charity is able to stick to it s history of providing accommodation to migrants. Several interviews with tenants have confirmed this. Abiba Tesfay, who has lived in Eritrea, Ethiopia and Sudan and has been Causeway accommodation for 5 years, explained that the Eritrean connection with Causeway was like a culture. She had come to the country and stayed in hostels with her friends and fellow Causeway tenants Sami Khayri and Riktet Tesfa Manyme. While communication with the community was maintained through her church, which was the main reason she came to London. 9

Another tenant, Senay Shaye, also from Eritrea, came to London via Stoke to work on Crossrail. At NASS he had taken IT, Maths, and Literacy courses, and had quickly passed his driving test. He had not claimed to be in urgent housing need but knew from the Eritrean community that Causeway would be the safest housing opportunity when moving to London for work. Graph 7 shows that lots of Eritreans get through the interview but then reject housing when offered. This implies that they are not necessarily using Causeway as a last resort or are not in urgent housing need. We speculate that some Eritreans use Causeway as an extension of their ethnic or community support networks. Perhaps Causeway is used as one of several viable housing options when moving to London, for example. Graph 7 and Graph 8 show that even though the numbers of Irish applicants is relatively low, those who do come to Causeway have a very good chance of securing a place in shared accommodation. We can deem that the quality of Irish applicants is high. This is a success story for Causeway as it is essentially an Irish housing association and is partly funded by the Irish government. Recommendation: Surprise house visit in between getting through interview and getting housing. Ladybur already does this to ensure those who are offered housing are those most in need. 6.2 Housing Condition Graph 9 Graph 9 shows where applicants are living before they apply to Causeway; the majority are staying in hostels. This information could be used to inform decisions about where the organisation can most effectively build links with referral agencies regarding prospective tenants. Graph 9 also shows applicants from private housing are likely to get housed. This could be because it is easier for them to access the right documentation and they have lived independently in the past. 10

6.3 Age Graph 10 This graph shows that Age group 21-25 is the most in need among all age groups (the height of the blue bar). However, they are disproportionately less likely to get through the interview process compared to other age groups (the relatively low height of the grey bar). This disparity could be because many in this age group will have been living at their family home and therefore unable to obtain a landlord reference. High unemployment and cuts to benefits for the under 25s means that they are an especially vulnerable group. One recent report on accommodation for homeless people suggested that 49% of service users are between 16 and 24. There are many organisations which deal with people under 21, specifically Centrepoint and Catch-22 Lambeth, however there appears a gap in provision between the ages of 21 and 25. This might be especially true for people with the multiple need of being both young (21-25) and a refugee/ migrant. Recommendation: Accept character references as well as landlord references. Another reason for a low success rate within the 21-25 age group may be that they do not possess the English language criteria required. During this investigation we did not compare whether there was a correlation between age and reason for rejection. This could be a useful exercise (or even country of birth and age group) as this data could help Causeway to reach out to the 21-25 age group more efficiently. 6.4 Referral Agencies Graph 11 11

Graph 11 shows that on the application form, the majority of applicants do not say where they found out about Causeway. Obtaining this data would help the organisation to know where to channel resources in order to improve the quality of their applicants. Recommendation: Ensure applicants state how they have been referred to Causeway on the application form and use data to track pathways of applicants. Many tenants have stayed in hostels at some point during their housing pathway. Commonly tenants come to Causeway after they have stayed in the hostel for the maximum stay, normally 2-3 years. For example this is the case with Ubah Ali Awad. The YMCA indicated that they want to strengthen ties with Causeway and they think there is a lack of communication between organisations. They currently only refer people over 25 to Causeway as they aren t aware of the application criteria. According to graph 10, under 25s are not getting through the application process successfully. If Causeway got more applicants under 25 from hostels (hence meeting the correct requirements) then they would have a better chance of being successful. Recommendation: Strengthen ties with organisations in touch with 21-25 age group such as YMCA. Supply them with an application form and ensure they are aware of Causeway s criteria. 6.5 Employment Status Graph 12 12

Graph 12 shows that the majority of total applicants and successful applicants are unemployed. If Causeway monitored the job status of its tenants then they could evaluate the the impact of their Life Skills programme and use the evidence to support funding bids. This appeals to the idea of the aspirational homeless person becoming a productive worker. The Life Skills project has helped me apply for the right welfare benefits and also with a Gardening and carpentry project, so i now have a nice garden to relax in - Michael, PRASC tennant Recommendation: Periodically review the job status of tenants to see the rate of people entering employment in Causeway accommodation. 6.6 The Application Form The application form is useful for determining if applicants meet the criteria to be housed. However, the order of questions is sometimes illogical and leads to inconsistencies in answers. For example, What is your current housing situation? is not present in the housing needs section of the application form and leads to conflicting descriptions of applicant s current housing and current residence. Slightly altering the order of questions and changing as many as possible to multiple choice would make data entry and analysis easier. The equal opportunities section of the application form is attached to the back of the form. Although this section is optional, moving it towards the front of the application form may lead to a better completion rate and ensure Causeway collects the data it needs to fully evaluate the extent to which it is meeting local housing need. Recommendation: Change questions on application form to clear order and with multiple choice options where possible. Also, move equal opportunities section to the front of the report. 13

A sample application form has been constructed for possible use in the future with a clearer layout and modified questions. 6.7 The Interview Process The interview was a good way of getting a general feel of the individual applicant and their current situation. However, it would good to ensure that by the end of the interview all information on the application form has been filled out. Recommendation: Ask applicants to answer every question on the application form when conducting interviews. Staff at Causeway reported interviewing applicants who knew what questions they were going to be asked. This is probably due to the strength in the social links between current tenants and applicants. The largest cause for rejection at interview appears to be language requirements. Causeway requires a reasonable standard of English which other housing charities in the local area do not. Causeway could therefore signpost individuals to these organisations. It could also direct them to English courses. Recommendation: Have two sets of interview questions to make it harder for applicants to learn the questions from friends. Recommendation: Signpost applicants to English courses and housing charities which do not have english as part of their criteria. 6.8 Database and Data Collecting Collecting and processing as much demographic data as possible will be important for future planning and business development within the organisation. The current database is well designed however, more staff resource may be required to ensure its use is maximised. Recommendation: Implement process for periodically collecting, monitoring and analysing equalities data. 7. Other organisations and potential outreach activities After speaking to other housing associations and charities, Causeways application process stands out as being particularly rigorous and the criteria relatively hard to meet. Though this is necessary to keep a manageable waiting list, the application process must be focused on assessing housing need in each case. Most other organisations do not have english 14

requirements and are prepared to accept character references in place of landlord references. Many reported having experienced a sharp increase in the numbers of Eastern European applicants; it may be that the criteria acts as a barrier to them applying to Causeway. It also appears that organisations in the local area are not in competition with one another, since all seem to have a different target group. By working together, organisations could improve efficiency, the quality of applicants, and ensure the needs of the borough are met. Below are the details of conversations had with other charities during the research process. Recommendation: Networking event with other housing associations and charities in Haringey. 7.1 Telephone conversation with YMCA - People they refer: They tend to refer independant, working people between 25 and 30 because they know we only take independant people, and tend to refer people who they think meet our criteria. They don t have any lists/specific referral processes. - How they know about us: through word of mouth - People they think in need: People under 25s because they are less likely to have landlord reference, no family ties and little HB and those with mental health needs. Recommendation: Improve communication links with YMCA to increase quality of applicants. They want to strengthen ties. They think there is a lack of communication between organisations and are happy to share information on clients or people most in need. Contact - shaun.ashley@ymcahornsey.org.uk 7.2 Telephone Conversation with MACE - Applicants they take: They have diverse range of ethnicities but majority applying are black african. 80% of the applicants are ethnic minorities. They take single, homeless people and for those over 35, they will get a studio flat. The majority of their applicants come from hostels. - Application procedure: They need 2 character references, driving license, passport, proof of employment, JSA and NI number. They do not request landlord reference from the applicants. No English requirements. 90% of the applicants get through interviews unless they do not have relevant documentation. - Promotional activities: No, mainly relying on word of mouth. 7.3 Telephone Conversation with Ladybur - Applicants they take: They only take people from Haringey and must be over 25. The applicants must be able to prove they have lived continuously in the local area for at least 5 years and the right to remain in the United Kingdom if originally from outside 15

the UK. Applicants are usually families living in overcrowded accommodation. They house people from private sector rather than from hostels. - Demographic data: They had many Eastern europeans such as Polish, Romanians. They took couples and families and want families in middle age and are professionals. They do not have specific target group, but try to match housing needs with local demographics. They will select people based on ethnicity, religion etc. to create balance. - Application procedure: They need passport, marriage certificate, bank details, tenancy agreements. They do not need references, and take allowances for young people. The committee decides who is the most in need. In interview part they will explain housing co-operative to the applicants. If needed, they will have surprise house visit after interviews to check whether the applicants are living in the current address they wrote down in application form. - Promotional activities: People hear their organization from word of mouth, website or local newspapers 7.4 Telephone Conversation with Tamil Housing - Applicants they take: They mainly house families, this means they have no requirement for the tenants to speak a high level of English when they house them. Like Causeway prioritises the Irish, Tamil housing association prioritises Tamil speakers. - Application procedure: They take referrals from Haringey council. The council provide 3 applicants in order of priority, of which all view the vacant property, then the highest priority applicant gets the first say. 7.5 Conversation with PEEC - They mainly take referrals through hostels or Haringey council. - Eastern europeans fail to meet the criteria for most housing associations as the majority of individuals have a previous housing condition of sofa surfing, so they have very little documentation when applying for housing. They also lack English skills, which would result in them failing to meet the Causeway criteria. They feel individual Eastern Europeans have been underrepresented by Causeway and Haringey as a whole due to this problem. - PEEC would like to improves ties with Causeway and feel if an interpreter was provided for the interview it could be very useful for the applicants. 7.6 Telephone conversation with Haringey migrant support centre - HMSC sees a lot of asylum seekers with no recourse to public funds - However, it is also in contact with refugees who it refers to housing charities and associations - They are keen to build better links with Causeway Contact - Karolina Maroszek : karolina@haringeymsc.org 16

8. List of Sources Department for Communities and local government- statutory homelessness report 2104 https://www.gov.uk/government/uploads/system/uploads/attachment_data/file/339003/statut ory_homelessness_1st_quarter Jan_-_March 2014_England_20140729.pdf Gov.uk. Live Tables on Homelessness https://www.gov.uk/government/statistical-datasets/live-tables-on-homelessness Crisis - A Review of Single Homelessness in the UK 200-2010 http://www.refugeeaction.org.uk/assets/0000/8279/london_migrant_homelessness_conference_report.pdf YMCA North London, Annual Report http://www.ymcanorthlondon.org.uk/wpcontent/uploads/annual-report-final-1.pdf Haringey Council, Housing Strategy: Equality Impact Assessment http://www.haringey.gov.uk/sites/haringeygovuk/files/draft_housing_strategy_equalities_imp act_assessment_1.pdf Haringuey Coucil, Housing Strategy 2015-2020 http://www.haringey.gov.uk/sites/haringeygovuk/files/1072.10_housing_strategy_july_revise d.pdf Haringey Council, JSNA Housing http://www.haringey.gov.uk/social-care-andhealth/health/joint-strategic-needs-assessment/other-factors-affecting-health/jsnahousing#levelofneedofpopulation Homeless Link- Single Homeless Report http://www.homeless.org.uk/sites/default/files/site-attachments/full%20report%20- %20Single%20homelessness%20support%20in%20England%202015.pdf Homeless link- London Migrant Homelessness Conference 2013 http://www.refugeeaction.org.uk/assets/0000/8279/london_migrant_homelessness_conference_report.pdf http://www.homelessuk.org - for a good list of other housing associations Homeless watch- Report on homeless services for single people and couples without dependents. http://www.homeless.org.uk/sites/default/files/site-attachments/snap2013_full_report.pdf 17

The Guardian, Why Women Homelessness Services are Failing Women http://www.theguardian.com/housing-network/2014/mar/07/homeless-services-failingwomen-st-mungos MACE, Housing Cooperative http://www.macehousing.org.uk Ladybur, Housing Cooperative http://www.ladybur-housing.co.uk Haringey Migrant Support Centre, HMSC http://haringeymsc.org.gridhosted.co.uk Tamil Housing, Devan 07983 961247 PEEC Polish and Eastern European Christian Family Centre, http://www.peec.org.uk/ PRASC, Causeway Croydon http://prasc.org/prasc-members/ :) 18