Two Step Evaluation Report

Two Step Evaluation

Interim Report

H o p e W o r l d w i d e

2013

Two Step Evaluation

Report

Professor Daniel Briggs and Dimitar Panchev

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Acknowledgements

The authors of the following report would like to express their gratitude to Wil Horwood – Chief

Executive of Hope Worldwide; Tommy Cloherty – Head of Homeless Services; Ayo Williams – Housing

Support Worker; Gavin Bristow – Housing Support Worker; Lavern Thomas – Counselling and Moving On

programme; Margrethe Cameron – Procurement & Development Manager. Without their ongoing support,

the following report would not have been made possible. We would also like to thank all the volunteers at

the Hope Worldwide for their kindness and open-heartedness. Last, but not least, we thank all the service

users who shared their stories and experience with us.

About the Authors

Daniel is a researcher, writer and inter-disciplinary academic who studies social problems. For nearly fifteen

years, he has undertaken a significant amount of funded mixed-methods and ethnographic research into

various social issues from street drug users to terminally ill-patients; from illegal immigrants to gangs; and

from gypsies to deviant youth behaviours on holiday. He has lectured undergraduates and postgraduates

across Criminology, Law, Sociology and Social Policy for six years and is the author of 'Crack cocaine

users: High society and low life in south London' (2012, Routledge), the editor of 'The English riots of 2011:

A summer of discontent' (2012, Waterside Press) and co-author of 'Assessing the impact and use of Anti-

social behaviour orders' (2007, Policy Press). He currently teaches and researches in Madrid, Spain.

Dimitar is BA Hons MA Criminology graduate. Dimitar is a free-lance researcher, whose current research

interests include the process of stigmatization of drug users, the homeless and young offenders. Previously,

he has conducted research concerning social exclusion and genocide, persecution of ethnic minority

populations and their criminalization in the new social media; the construction of identities, consumer

culture and NTEs.

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Contents

Introduction........................................................................................3

Literature context................................................................................4

Analysis of referral forms.....................................................................9

The wider picture................................................................................52

Emerging themes from Two Step..........................................................71

Profile of clients.................................................................................77

Perspectives from landlords................................................................95

Conclusion and future recommendations..............................................98

Bibliography....................................................................................100

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Introduction

This following report presents the findings from our ongoing work in evaluating the Two Step programme.

The evaluation is using both a process and impact approach to measure the effectiveness of how the service

works on a day to day basis as well as how well it serves the group it is designed to support. We started this

work in May 2012 by acquainting ourselves with the service and we shadowed a number of interviews to

determine how the service functions. The second stage of the evaluation was our literature review which

consisted of placing in context the effectiveness of Two Step against other agencies offering similar

provision around the country. This was then followed by the creation of a protected dataset, which aimed to

construct a profile for the service users, covering the period 2006-2012. The fourth stage of the evaluation

included the cross-comparison of the work, which the Two Step programme has done in the light of reports

published by other leading charities tackling homelessness. The fifth stage of the evaluation aimed to

provide perspectives of service users who had successfully been housed by the service, in order to identify

potential improvements in the programme and the support provided for the housed individuals. The sixth

and final stage of the evaluation aimed at providing the perspectives of Two Step landlords in order to

understand what makes the programme unique and value-for-money. The report concludes by providing

future recommendations and potential areas of improvement.

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Literature context

The ‘homeless’ are a broad client group who range from temporary sofa surfers to street sleepers.

Indeed, many studies seem to concentrate their interventions on this street population rather than the more

significant group known as ‘hidden homeless’ who stay with family/friends (Hilton and Dejong, 2010). In

general, many are a potentially chaotic group who struggle in decision making and who have or experience

(a combination of) relationship difficulties, drug and/or alcohol problems, mental health issues and are often

in significant debt. The process by which many become ‘homeless’ can often be through temporary stays

with friends or family, which depending on circumstances, can drift into street sleeping if those networks are

exhausted (Briggs. 2012). Many also lose their dignity and self-respect in this process which increases their

sense of shame, and this makes them quite a difficult group to work with should their circumstances

deteriorate. This is why by the time many on the street come to the attention of various social services, their

problems, including financial, social, individual and emotional are already incestuously entangled and

difficult to manage (Briggs et al., 2009). Many develop increasingly unpredictable lifestyles and are sent

from service to service; more often than not, they can’t manage this and drift further from contact from

services and develop increasingly fatalistic thinking. It is often at this stage that many become targets of

punitive systems which often work against their complex circumstances (Leibow, 1993) and, since the

1990s, subject to social control through aggressive social policies and law enforcement because they are

seen as blighting community life (Matthews et al., 2007; Matthews and Briggs, 2008; O’Connor, 2007).

The inclination towards punishing the homeless population for deviance and transgression is one that

is deeply embedded within the fabric of the British society (Carlen, 1996). Increasingly, a tendency to blame

the economically and socially marginalized sections of society for their own problem has been noted

(Jordan, 1996) and the popular image of these in the public imagination has changed little over time (ibid.).

The presence of the homeless population has been rendered as being ‘out of place’ in public space, as it

disturbs the otherwise aesthetic and economically ‘revitalised’ urban landscape (Cresswell, 1996; Mair,

1986; Ruddick, 1996; Snow and Anderson, 1993). This has led to the exclusion of the homeless from

‘prime’ city space (Duncan, 1983) because of their ‘spoiled identities’ (Goffman, 1968) and the fear that

their existence might in some way infect the former or its inhabitants. This has required the ‘purification’ of

public space (Sibley, 1995) either through the criminalisation of basic street survival strategies (Mitchell,

1997) or the re-design of inner-city environment (Soja, 2000). Arguably, this has also led to changes in the

way which the homeless are treated. From an earlier ‘malignant neglect’ (Wolch and Dear, 1993) this has

grown into a large-scale punitive regime, making life on the streets next to impossible unless one is

criminalised and is processed through the criminal justice apparatus (Mitchell, 2001).

Parallel to the social exclusion of the homeless, a tendency of increasing charitable care has been

documented – an increased number of night shelters, hostels and day centres as to provide sustenance and

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temporary shelter for the disadvantaged (MacLeod, 2002). In the UK, as the British government and urban

managers have adopted an increasingly aggressive stance towards street homeless people, the number of

night shelters and ‘direct access’ hostels (over 95% of which are provided by non-statutory organisations)

almost doubled through the 1990s (May et al. 2005; May et al. 2006). These represent ‘spaces of care’

(Conradson, 2003) in an otherwise hostile environment (Parr, 2000, 2003) and their numbers have been on

the increase over the past two decades (Fyfe and Milligan, 2003) as response to social welfare restructuring

and the decline of statutory service provision for marginalised groups. Even though under the New Labour

substantial improvements were made in terms of the services provided and a significant reduction in the

number of rough sleepers was made, those remaining on the streets were increasingly perceived as an anti-

social behaviour problem (Fitzpatrick and Jones, 2005). What is more disturbing, however, is that among

those living on the streets, drug use seems to be prevalent and widespread. Fountain et al. (2003) in a

London-based survey demonstrated that 83% of their sample had used a drug, 36% were dependent on

heroin and 25% on alcohol. Sixty-three per cent reported that their drug or alcohol use was one of the

reasons they first became homeless, but the majority (80%) had used at least one additional drug since then.

Overall, drug and alcohol use, injecting, daily use and dependency increased the longer the respondents had

been homeless. This in itself, however, does not mean that the homeless have never made use of support

provided by the third sector.

The day centres, as Llewellin and Murdoch (1996) note, have been an important feature of homeless

service networks for many years and are relied upon by both ‘visible’ and ‘hidden’ homeless people (those

living on the streets and those staying in hostels, night shelters, in relatives or friends) (Reeve and Coward,

2004; Robinson and Coward, 2003). Historically, the responsibility for operating these and the provision of

emergency accommodation for single homeless people has been placed on the voluntary sector as the neo-

liberal form of governance took over the welfare state and a the crisis of street homelessness ensued

(Saunders, 1986; Anderson, 1993).

Created to resolve one problem, emergency accommodation also has its own problems to resolve.

The shelters, for example, are an important part of the suburban social service delivery system, as they meet

the short-term needs of the homeless. At the same time, however, such programs ultimately set up some of

the most vulnerable to fail, especially those addicted to alcohol and drugs (Hick-Coolick et al. 2007). In

some cases, the shelters could also be perceived as a resemblance of ‘total institutions’ (Goffman, 1961) as

far as the deterioration of personhood and self-autonomy is concerned (DeWard and Moe, 2010). In cases

where this type of emergency accommodation has succeeded in assisting homeless people with finding

accommodation, in has been documented that the housing costs paid by the formerly homeless can be quite

high, in one case nearly three-quarters of the sample spending forty per cent or more of their income on

housing (Glisson et al. 2001).

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An alternative to the shelters are the hostels, but these also display some problems which need to be

tackled. A study of homeless Scots in London reported that many would rather live on the streets than stay

in certain ‘rough’ hostels and night shelters, while at the same time making clear that sleeping rough was

unpleasant, highly dangerous and not something that they wanted to do (Fitzpatrick et al., 2000). For some

interviewees, this was based on the sense that at least on the streets you can avoid aggressive or intimidating

people, whereas in a hostel you are stuck in a confined space with them (ibid.).

Studies in Glasgow, south Wales and a number of English cities (Jones, 1999; Fitzpatrick and

Kennedy, 2000; Jones and Higate, 2000) have noted the particular problems of bullying and theft in large,

traditional hostels. The ready availability of drugs within and around hostels has often been commented

upon by participants in these studies: ‘What you get told and what goes on [in the hostel] are two different

things. We are told that drugs are a no-no, but loads of people are on drugs . . . people come in here and

end up with a habit – I’ve tried things in here that I never touched before’ (Jones, 1999: 87). In some cases,

people report sleeping rough or using Bed and Breakfast hotels in an attempt to avoid other drug users and

go ‘straight’ (Scanlon and Wigglesworth, 2001). At the same time, it is important not to assume that there

are hostel places available for all of those who want them. A number of studies have highlighted people

sleeping rough as a result of being barred from hostels because of rent arrears, violence or substance misuse

(Carter, 1999; Fitzpatrick and Kennedy, 2000).

This is not to suggest that the homeless are ‘better off’ on the streets than in hostels - small-scale,

well-run, supportive hostels provide a key step in the resettlement process for many homeless people.

However, it is to contend that homeless people should be permitted to have a say if they feel that the hostels

available to them are unacceptable. A constant flow of secured funding is needed in order to continue the

improvement of hostel services, and this should be accompanied by encouragement (not coercion) of street

homeless people into taking up appropriate accommodation where such is made available. To summarise,

hostels do have a role in terms of provision of short-term housing, but as Busch-Geertsema and Sahlin

(2007) conclude, only the organised provision of mainstream housing which is let with security of tenure

and coupled with support for its residents is the only long-term solution to the crisis.

With the new reforms in the housing benefits system from April 2013, it is more than likely that the

current problem will be worsened. The criminalization of ‘squatting’, the most recent legislative example of

‘revanchist’ policy, as this type of anti-social behaviour is now penalized by a fine of up to £5000 or a six

month custodial sentence (or both). Moreover, in the words of the Justice minister Crispin Blunt:’

homelessness was at the lowest level for 28 years and the government was spending £400m on homelessness

and £164m on bringing about 10,000 empty homes back into use’ (BBC, 31st August 2012).

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This does not seem to be the case when the most recent statistics released by the Department for

Communities and Local Government are examined. According to the DCLG, between July 1st and 30th Sept

2012, 13,890 were accepted as owed a main homeless duty – an increase of 11% since the referral for the

same period in the previous year. In temporary accommodation, 52,960 households were accepted until 30th

Sept 2012, an increase of 8% when compared to the previous year. The Number of households in B&B

hotels rose to 4,350 – an increase of 29% since last year (DCLG, 2012). The housing charity Shelter also

released statistics that indicate a sharp increase in demand for help among people who are at risk of being

homeless – the organisation has seen an increase of 80% over a three-year period in the number of people

who have used its hotline. Of these, 23,086 were helped by the hotline in the 12 months to the end of

September, compared with 12,852 in the twelve months leading up to September 2010 (Evening Standard,

30th Nov 2012).

The recession has also had an impact on the mainstream housing market. A report by Shelter (2013)

indicates that the number of people struggling to pay their rent or mortgage each month has increased by

44% over the past year, reaching 7.8million. Of these, almost a million people used payday loans in order to

pay their rent or mortgage and another 2.8 million people used an unauthorised overdraft to help pay their

rent or mortgage, with 10% of all doing this every month.

With this in mind and the cuts in government funding to councils, it is hardly surprising why London

is experiencing such as severe crisis in terms of housing, a problem which has led to the adoption of radical

measures. A research by the Guardian (4th Nov 2012) showed that many councils in the metropolis are

acquiring properties across the UK for vulnerable families – among the areas being Luton, Windsor

Slough, Margate and as far away as Manchester, Derby, Hull and Birmingham.

Similar are the findings of a report by the Child Poverty Action Group and Lasa, which predicts that

124,480 London households will be hit by a combination of Local Housing Allowance and under-

occupational penalties. Seventeen of all London councils were already in the process of outsourcing families

from the capital and had secured or were considering temporary accommodation outside of London for

future use. Among these were Kensington and Chelsea, which had moved homeless families to Manchester

and Slough; Waltham Forest, which acquired properties in Luton, Margate and Harlow; Brent, which had

relocated several households to Hastings; Tower Hamlets, which had relocated a handful of families to

Northampton; Hackney, which was also ‘reluctantly looking to procure accommodation outside London’

(Landlord Today, 6th Nov 2012) and Newham (Newham LBC, 5th Nov 2012).

The restricted funding of councils has led to much reliance on the third sector to provide a temporary

solution to the problem by transferring the homeless in other boroughs and in the hands of private landlords

(Briggs and Panchev, 2013, current report). Some of the boroughs, however, have been hit worse than

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others, or so it seems. The assumption that many asylum seekers and economic migrants move to Croydon

has led to the transfer of ‘problematic populations’ into another borough – Lewisham, which is in the

process of building more council homes in order to meet the demand (East London Lines, 14th July, 2012).

The total number of homeless families in Croydon by the end of 2011 was 1,600, of which 300 were living

in B&B accommodation (East London Lines, 29th Nov 2011). If these statistics are correct, then, a third of

all homeless families that are put in B&B for longer than the recommended six-week period in London are

situated in a single borough! (London 24, 30th Jan 2013). What has caused the problem? According to

councils, it is the withdrawal of private landlords from the social housing market which has forced them to

place more and more homeless people in bed and breakfast accommodation (24 Dash, 30th Jan 2013). Thus,

the search for affordable housing outside the boroughs is justified, as the budget allocated for temporary

housing cannot be stretched to cover an increasing demand – in Croydon the families living in temporary

accommodation has increased by 30%, compared to an overall 5% increase in London over the past year

(East London Lines, 23rd Jan 2013).

Even though some attempts are made to improve the current situation - bringing abandoned

properties back in use or the conversion of redundant council properties (The Information Daily, 22nd Jan

2013), such measures will hardly solve anything in the long-term, especially when working families, ex-

servicemen and community volunteers are considered of priority need for council accommodation, and not

the homeless or the destitute (Guardian, 9th Nov 2012). In the words of Kay Boycott, the CEO of Shelter,

‘the fact that councils are offering people homes hundreds of miles away – uprooting families from schools,

communities and jobs – is testament to the scale of London’s housing crisis’ (East London Lines, 29th Nov

2011).

This means it becomes increasingly important that intervention takes place before people reach this

‘street stage’. From what we can see from our initial reviews of some of the key agencies in London is that

TwoStep provides a very valuable intervention in that it can reverse the downward trajectory of

homelessness before someone’s circumstances deteriorate.

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Analysis of referral forms

We have entered 4,814 referral forms running from 2006 to 2012 from the Two Step archives. The

following section includes a year-by-year breakdown of the profile of the clients with whom Hope

Worldwide worked over the 7-year period.

2006 Data

For the year 2006, a total of 421 cases were analysed and the findings were as follows:

The male service users which were referred to the Two Step programme during the year were a total

of 355, accounting for 84.3 per cent of all cases. The female service users numbered 66, accounting for 15.7

per cent of all cases.

The age distribution of the clients was as follows: 17 and under – 1 case, accounting for 0.2 per cent

of all cases; 18-25 age group – 52 cases, accounting for 12.4 per cent of all cases; 26-35 year-olds – 139

cases, accounting for 33.0 per cent of all cases; 36-45 – 147 cases, accounting for 34.9 per cent of all cases;

46+ year olds – 82 cases, accounting for 19.5 per cent of all cases.

Although the Two Step clients have a various background and have been exposed to different

problems which have ultimately led to their homelessness, there are several common problems which play

as a catalyser – family problems (8.5 per cent of all cases), job loss (14.9 per cent of all cases), prison

release (6.9 per cent of all cases), a previous landlord (8.3 per cent), breakdown of a relationship (14.3 per

cent of all cases), migration (14.3 per cent), deportation (6.1 per cent of all cases).

The table below provides a summary of the period for which the users have been made homeless

and/or have suffered from homelessness:

How long have you been homeless

Frequency Percent Valid Percent Cumulative Percent

Valid Less than a month 142 33.7 33.7 33.7

2-6 months 128 30.4 30.4 64.1

7-12 months 36 8.6 8.6 72.7

More than a year 91 21.6 21.6 94.3

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Missing data 24 5.7 5.7 100.0

Total 421 100.0 100.0

During the year 2006, 37.5 per cent of all the clients who have been made homeless were sleeping

rough at the time when their assessment at Hope Worldwide was made, followed by 28.7 per cent sleeping

another family member’s house or a close friend’s place. Less than a fifth of the clients (17.3 per cent) were

sleeping in a night shelter or a hostel and 14.5 per cent of the clients confessed to using several of the above

options. Data was missing for 1.9 per cent of the cases, where the clients did not disclose personal

information or they were considered as inappropriate for the programme.

Where have you been sleeping?


Valid Streets 158 37.5 37.5 37.5

Hostels or night shelters 73 17.3 17.3 54.9

Friends or family (or both) 121 28.7 28.7 83.6

A mixture 61 14.5 14.5 98.1

Missing data 8 1.9 1.9 100.0

Total 421 100.0 100.0

The table below contains a breakdown of the third parties, small companies, NGOs and other

homeless services which have made referrals to Hope Worldwide during the same year. The data provided is

simplified in order to make a cross-comparison available and assist in identifying how the Two Step

programme has changed in the following years:

Referral

Frequency Percent

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At the time when the interviews were conducted, only 8.6 per cent stated they were in some form of

employment. Although the clients came from different parts of the city, with some migrating to London in

the past six months of the year, it was possible to perform an analysis of data and though here only the

highlights of the data are summarized, the full breakdown is enclosed in the appendix - 10.9 per cent of the

sample had resided in the London Borough of Hackney, 9.0 per cent in the London Borough of

Hammersmith and Fulham, 10.9 per cent stated they lived in or around London Borough of Haringey, 16.9

per cent had previously lived in the London Borough of Westminster, 3.1 per cent had previously resided in

Big Issue 10 2.4

Broadway centre 36 8.3

Connection’s @ St Martins 22 4.4

Crisis 7 1.6

Gt Chapel St 7 1.6

Hackney Housing 16 3.9

Manna centre 13 2.6

Passage 16 3.8

Prisoners Abroad 42 9.1

Sheperd's Bush Day centre 7 1.6

St Mungo's 13 3.0

West London Day centre 10 2.4

Word of mouth 23 5.4

Others 199 49.9

Total 421 100.0

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London Borough of Islington, 3.1 per cent in the London Borough of Tower Hamlets, 2.9 per cent came

from London Borough of Camden.

More than a fifth of clients (21.4 per cent) disclosed as having some kind of a physical problem, and

nearly a fifth suffered from mental health issues (19.5 per cent). However, at the time of the interviews, only

11.4 per cent were receiving some form of medication for their physical or mental health problems, a fact

which could have had a huge negative impact and severe consequences for the clients in the future unless

their lifestyle and situation were stabilized. Moreover, nearly a third (31.4) of the sample confessed to using

some sort of drugs (including alcohol) in order to overcome their problems and the stigma attached to their

homelessness. 6.9 per cent disclosed that they had overdosed on drugs in the past, and 8.3 per cent stated

they had previously made attempts to commit suicide.

Of all the clients, nearly a fifth (18.8 per cent) had previously resided in a hostel and 6.4 per cent had

attended some kind of a rehabilitation programme in order to overcome their addiction problems. At the

time of the interviews, more than a fifth of the clients were in debt (21.6 per cent) and less than a third (29.9

per cent) had been convicted of a crime, with a fifth of all clients serving a custodial sentence.

2007-2008 Data

For the years 2007 and 2008 a total of 689 cases were analysed and the findings were as follows:


of 573, accounting for 83.2 per cent of all cases. The female service users numbered 116, accounting for

16.8 per cent of all cases.

The age distribution of the clients was as follows: 17 and under – 3 cases, accounting for 0.4 per cent

of all cases; 18-25 age group – 48 cases, accounting for 7.0 per cent of all cases; 26-35 year-olds – 209

cases, accounting for 30.3 per cent of all cases; 36-45 – 238 cases, accounting for 34.5 per cent of all cases;

46+ year olds – 191 cases, accounting for 27.7 per cent of all cases. When compared to data from the 2006,

it is noticeable that there has been an increase in the number of clients from the 46+ year olds, but overall

this has not affected to a significant extent the number of clients which Two Step has dealt with in the other

age groups.

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Age


Valid 17 and under 3 .4 .4 .4

18-25 48 7.0 7.0 7.4

26-35 209 30.3 30.3 37.7

36-45 238 34.5 34.5 72.3

46+ 191 27.7 27.7 100.0

Total 689 100.0 100.0

Similar to the data from 2006, the Two Step service users exhibited similar housing problems, as

their predecessors – 9.4 per cent suffered from family breakdown which led to their homelessness, 12.3 per

cent were made homeless due to their loss of employment, 11.4 per cent had problems with a previous

landlord, 16.4 per cent suffered from a breakdown of their relationship, 6.9 per cent were made homeless

after being released from prison, 21 per cent were unable to find their own place due to migration. The

compared to data from the previous year, it becomes noticeable that there has been a statistically significant

increase of the number of people who had been made homeless due to their migration, but the number of

people who have been referred after being deported from a country other than the United Kingdom has

diminished significantly, accounting for only 1.3 per cent of all the referrals made for the period under

investigation. In addition, a slight increase in the number of people who had been made homeless due to

addiction problems was noted (from 1.0 per cent in 2006 up to 2.3 per cent in the following period.)

The table below provides a summary of the period for which the users have been made homeless

and/or have suffered from homelessness:

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2-6 months 241 35.0 35.0 61.7

7-12 months 86 12.5 12.5 74.2

More than a year 124 18.0 18.0 92.2

Missing data 54 7.8 7.8 100.0

Total 689 100.0 100.0

More than a fourth of the sample had been homeless for less than a month, more than a third had

been homeless up to half a year, 12.5 per cent had been homeless for a period between 7 months and a year

and nearly a fifth had suffered from long-term homeless (over a year). In 54 of the cases, no data was

available in order to determine the duration of homelessness to which the clients of the Two Step service had

been exposed. When compared to the profile from extracted from 2006, it can be noticed that there has been

a slight decline in the number of clients who have been homeless for a 7-12 months period, but in the other

categories the patterns produced have by and large been preserved.

During the period of 2007-2008, 33.5 per cent of all the clients who had suffered from homelessness

were rough sleeping at the time of the interview. 27.3 per cent were sleeping in another family member’s

house or a close friend’s place, nearly a fifth (19.0 per cent) were sleeping in a night shelter or a hostel, and

16 per cent of all clients stated they were several of these options, relying both on friends, street homeless

services and rough sleeping or squatting when no other opportunities were available to them. Data was

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missing for 4.2 per cent of the cases, where the clients did not disclose personal information or they were

considered as inappropriate for the programme. When compared to data from 2006, a slight decrease in the

number of street homeless people can be noticed and the same applies for the people relying on their

personal connections, but a slight increase can be noted in the number of people sleeping in night shelters or

hostels.



Valid Streets 231 33.5 33.5 33.5



A mixture 110 16.0 16.0 95.8

Missing data 29 4.2 4.2 100.0

Total 689 100.0 100.0


homeless services which have made referrals to Hope Worldwide during the period 2007-2008.

Referral

Frequency Percent

Valid Missing data 6 .9

Borderline 10 1.5

Broadway day centre 33 4.6

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Camden CWS 6 .8

Connections @ St. Martin's 67 9.3

Crisis 20 2.7

CWS Islington 13 1.7

Dellow centre 28 3.9

Enfield Probation 10 1.3

Greenhouse 48 6.8

Hackney 180 9 1.3

Manna centre 20 2.7

Passage 28 4.0

Red Cross

Rest

13

221

1.8

33.9

Self 15 2.0

Shelter 17 2.6

Spires 17 2.6

St. Mungo's 13 1.9

Veterans Aid 14 2.0

WLDC 29 4.2

word of mouth 52 7.5

Total 689 100.0

As with the data from 2006, the following information has been simplified in order to highlight only

the statistically significant organisations and services which have made referrals to the Two Step programme

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over the period of 2007-2008. It can be noted that Big Issue is one of the organisations which have made

less referrals to the programme, along with Prisoners Abroad, Great Chapel Street and the Shepherd’s Bush

day centre. Taking into account the number of new organisations present in the table, clearly the work of

Hope Worldwide and that of the Two Step programme have expanded and this has attracted greater attention

towards their housing strategy and the overall service which is on offer. The number of referrals which have

been made by one of the biggest homeless service providers (Saint Martin’s) has more than doubled over the

period, reaching 9.3 per cent of all the referrals made and the referrals made by the West London Day

Centre nearly doubling over the same period. Another point of interest, which should not be undermined, is

the number of people who have been referred to the Two Step programme via their personal connections

without the help of any other established service providers – it rose from 23 to 52, reaching 7.5 per cent of

all referrals made, more than doubling and indicating the interest not only of the homeless services sector,

but the homeless population itself.


employment. At the time 6.1 of the clients were receiving Incapacity Benefits, 13.9 were claiming Income

Support, 66.7 per cent were claiming JSA and 3.8 per cent were not claiming any benefits (the remaining

percentage of other users were claiming a combination of the above mentioned benefits). The profile of the

users in terms of their origin slightly shifted when compared to the data extracted from 2006. 6.1 per cent of

all the clients originally resided in the London Borough of Camden, 11.7 per cent came from London

Borough of Hackney, 5.7 per cent were originally from the London Borough of Haringey, 5.1 per cent from

London Borough of Lambeth, 3.9 and 3.2 came Southwark and Tower Hamlets, respectively, and 19.4 per

cent came from the London Borough of Westminster. Overall, there has been a statistically significant

increase in the number of people coming from Camden and Westminster, whereas the number of people

coming from Haringey has significantly declined when compared to the previous year.

More than a fifth of clients (22.6 per cent) disclosed as having some kind of a physical problem, and

nearly a fifth suffered from mental health issues, among which depression, PSTD, sleep deprivation and

schizophrenia (19.0 per cent). These values hardly changed when compared to the previous data obtained

from 2006. In line with the previous findings, at the time of the interviews, only a tenth of all the clients

(10.4 per cent) were receiving some form of medication for their physical or mental health problems, a fact

which could have had a huge negative impact and severe consequences for the clients in the future unless

their lifestyle and situation were stabilized. In addition, the number of people who reported some drugs

abuse problems increased to more than a third (36.0, a rise of nearly five per cent) . The number of clients

who had overdosed on drugs decreased to 3.9 per cent, and a similar tendency was observed for the number

of people who had attempted to commit suicide in the past – the figures declined to 6.7 per cent.

Page | 18

Of all the clients, more than a third (36.1 per cent) had previously resided in a hostel - a near

doubling of the previous values, and 5.8 per cent had attended some kind of a rehabilitation programme in

order to overcome their addiction problems. At the time of the interviews, a fourth of the clients were in debt

(25.0 per cent; a slight increase when compared to the previous year) and less than a fourth (24.1 per cent)

had been convicted of a crime, with less than a fifth of all clients serving a custodial sentence. These figures

also represented a slight decline from the pattern observed in the previous year, with 7 per cent of all the

conviction being of violent crimes, and 6.7 per cent of all the convictions being for drug offences.

2009 Data

For the year 2009 a total of 833 cases were analysed and the findings were as follows:



21.1 per cent of all cases, thus contributing to a slight shift in the gender profile of the clients.

The age distribution of the clients was as follows: 18-25 age group – 76 cases, accounting for 9.1 per

cent of all cases; 26-35 year-olds – 289 cases, accounting for 34.7 per cent of all cases; 36-45 – 238 cases,

accounting for 28.6 per cent of all cases; 46+ year olds – 230 cases, accounting for 27.6 per cent of all cases.

When compared to data collected for the previous years, it is noticeable that there has been an increase in the

number of clients from the 26-35 and 18-25 year olds group, thus resulting in a slight shift in the

demographic profile of the Two Step service clients.

Age


Valid 18-25 76 9.1 9.1 9.1

26-35 289 34.7 34.7 43.8

36-45 238 28.6 28.6 72.4

46+ 230 27.6 27.6 100.0

Total 833 100.0 100.0

Page | 19

In line with the data collected in the previous three-year period, the Two Step service users exhibited

similar housing problems, as their predecessors – 8.8 per cent suffered from family breakdown which led to

their homelessness, 17.6 per cent were made homeless due to their loss of employment, 8.6 per cent had

problems with a previous landlord, 14.7 per cent suffered from a breakdown of their relationship, 3.1 per

cent were made homeless after being released from prison, 23 per cent were unable to find their own place

due to migration. The compared to data from the previous year, it becomes noticeable that there has been a

statistically significant increase of the number of people who had been made homeless due to their

migration, but the number of people who have been referred after being deported from a country other than

the United Kingdom declined slightly, accounting for only 1.0 per cent of all the referrals made for the

period under investigation. The number of people who had been made homeless due to addiction problems

remained stable, as did the number of those who have had financial problems and rent arrears. The number

of people who had been made homeless after their release from prison declined more than half, but of those

who had been made homeless due to redundancy at work or unemployment increased significantly over the

one-year period. The percentage of clients who had been made homeless due to their addiction problems

remained stable over the same period.

Brief explanation of housing problem

Frequency Percent

Valid addiction 19 2.3

ASB 16 1.9

deportation 8 1.0

DV 15 1.8

evicted by council 1 .1

evicted from hostel 11 1.3

family breakdown 73 8.8

financial problems 39 4.6

Page | 20

flat was repossessed 7 .8

hospital release 2 .2

house caught fire 1 .1

house was repossessed 1 .1

job loss 147 17.6

landlord didn't accept HB 1 .1

landlord requires property back 72 8.6

migration 192 23.0

overcrowding 12 1.4

prison release 26 3.1

problems with HB 4 .5

property was repossessed 3 .3

relationship breakdown 123 14.7

rent arrears 28 3.4

threatened with homelessness 4 .5

unsettled 11 1.3

unsuitable accommodation 1 .1

would like to move on 17 2.0

Total 833 100.0

The table below provides a summary of the period for which the users have been made homeless and/or

have suffered from homelessness:

Page | 21




2-6 months 252 30.3 30.3 54.7

7-12 months 121 14.5 14.5 69.3

More than a year 195 23.4 23.4 92.7

Missing data 61 7.3 7.3 100.0

Total 833 100.0 100.0

Nearly a fourth of the sample had been homeless for less than a month, less than a third had been

homeless up to half a year, 14.5 per cent had been homeless for a period between 7 months and a year and

nearly a fourth had suffered from long-term homeless (over a year). In 61 of the cases, no data was available

in order to determine the duration of homelessness to which the clients of the Two Step service had been

exposed. When compared to the profile from extracted from the previous three years, it can be noticed that

there has been a slight decline in the number of clients who have been homeless for a 7-12 months period,

but in the other categories the patterns produced have by and large been preserved, with only a slight rise in

the number of clients who had been exposed to long-term homelessness.

During the period of 2009, 32.3 per cent of all the clients who had suffered from homelessness were

rough sleeping at the time of the interview. 32.7 per cent were sleeping in another family member’s house or

a close friend’s place, a fifth (20.9 per cent) were sleeping in a night shelter or a hostel, and 7.9 per cent of

all clients stated they were several of these options, relying both on friends, street homeless services and

rough sleeping or squatting when no other opportunities were available to them. Data was missing for 6.2

per cent of the cases, where the clients did not disclose personal information or they were considered as

inappropriate for the programme. When compared to data collected for the previous years, a slight decrease

in the number of street homeless people can be noticed, but the number of those relying on their personal

connections has increased significantly, but a slight increase can be noted in the number of people sleeping

in night shelters or hostels. Thus, it can be argued that over the period of concern, the number of ‘invisible

homeless people’ with whom Two Step dealt resulted in a noticeable change in the overall demographic

profile of their clients, when compared to the previous three-year period.

Page | 22



Valid Streets 269 32.3 32.3 32.3



A mixture 66 7.9 7.9 93.8

Missing data 52 6.2 6.2 100.0

Total 833 100.0 100.0

The table below contains a breakdown of the third parties, small companies, NGOs and other homeless

services which have made referrals to Hope Worldwide during the year 2009:

Referral

Frequency Percent


Anthea Lettings 18 2.1


Greenhouse 47 5.6

Manna centre 28 3.3

Passage 72 8.6

Red Cross 18 2.1

Page | 23

Refugee Councils and Projects

Rest

17

264

2.0

32

Self 18 2.2

Shelter 31 3.6

Spectrum 13 1.6

St. Martin's 95 11.3

St. Mungo's 19 2.3

Veterans Aid 18 2.2

Westminster Housing Options 11 1.3

WLDC 24 2.9


Total 833 100.0

As with the data from the previous periods, the following information has been simplified in order to

highlight only the statistically significant organisations and services which have made referrals to the Two

Step programme over 2009. Among the new referees are Anthea Lettings, which also served as a housing

provider for the Two Step programme. In line with the previous upward trends, the work of Hope

Worldwide and that of the Two Step programme expanded in a positive trend and this continued to attract

greater attention towards their housing strategy and the overall service which is on offer. The number of

referrals which have been made by one of the biggest homeless service providers (Saint Martin’s) continued

its rising trend, reaching 11.3 per cent of all the referrals made. Along with the previous trends observed, the

number of people who have been referred to the Two Step programme via their personal connections

without the help of any other established service providers continued to increase– it rose up to 113 (more

than doubled when compared to previous values), reaching 13.5 per cent of all referrals made, more than

doubling and indicating the interest not only of the homeless services sector, but the homeless population

itself.


employment. At the time 7.7 of the clients were receiving Income Support, 7.0 were claiming ESA, 72.5 per

Page | 24

cent were claiming JSA and 4.0 per cent were not claiming any benefits (the remaining percentage of the

other clients was claiming a combination of the above mentioned benefits). The profile of the users in terms

of their origin slightly shifted when compared to the data extracted from the previous three years. 3.6 per

cent of all the clients originally resided in the London Borough of Camden, 9.2 per cent came from London

Borough of Hackney, 5.5 per cent were originally from the London Borough of Haringey, 9.0 per cent came

from Islington, 4.8 per cent from London Borough of Lambeth, 5.0 and 3.4 came Southwark and Tower

Hamlets, respectively, and 22.9 per cent came from the London Borough of Westminster. Overall, there has

been a statistically significant increase in the number of people coming Westminster, whereas the number of

people coming from Haringey, Camden and Hackney has significantly declined when compared to the

previous year.

Nearly a third of the clients (31.8 per cent) disclosed as having some kind of a physical problem, and

more than a fourth (25.6 per cent) suffered from mental health issues, among which depression, PSTD, sleep

deprivation and schizophrenia. Both figures have increased significantly when compared to the profile

which was extracted for the previous three-years, leading to the conclusion that the vulnerability of the

clients has also increased and Hope Worldwide was increasingly dealing with more fragile and unstable

homeless people, whose condition might become worse in the future unless steps towards prevention and

housing were taken. In line with the previous findings, at the time of the interviews, less than a fifth of all

the clients (16.0 per cent) were receiving some form of medication for their physical or mental health

problems, a fact which could have had a huge negative impact and severe consequences for the clients in the

future unless their lifestyle and situation were stabilized. The number of people who reported some drug

abuse problems declined significantly (down to 23.9 per cent from 36.0 in the previous year). However, the

number of clients who had overdosed on drugs increased to 5.9 per cent, and a similar tendency was

observed for the number of people who had attempted to commit suicide in the past – the figures increased

to 8.0 per cent.

Of all the clients, more than a third (36.0 per cent) had previously resided in a hostel and 5.6 per cent

had attended some kind of a rehabilitation programme in order to overcome their addiction problems – no

significant changes were observed when compared to previous data. At the time of the interviews, half of the

clients were in debt (51.7 per cent; a massive and doubling when compared to the previous year) and less

than a fifth (19.0 per cent) had been convicted of a crime, with 12.8 per cent of all clients serving a custodial

sentence. These figures also represented a slight decline from the pattern observed in the previous year, with

6.8 per cent of all the conviction being of violent crimes, and 4.6 per cent of all the convictions being for

drug offences.

To summarise, for the period encompassing the 2009, the Two Step programme continued to deal

with vulnerable clients who had been unable to find a resolution to their problems elsewhere. The general

Page | 25

trend was towards working with less ‘dangerous populations’, preferably no convictions or served prison

sentences, as these would be considered as high-risk clients requiring a high level of housing support,

services which the Two Step programme was unable to provide at the time.

2010 Data




20.0 per cent of all cases, a slight decrease when compared to the data extracted from 2009.





number of clients from the 36-41 and 46+ year olds group, thus resulting in a slight shift in the demographic

profile towards middle-aged men.

Age


Valid 18-25 59 7.0 7.0 7.0

26-35 283 33.4 33.4 40.4

36-45 267 31.5 31.5 71.9

46+ 238 28.1 28.1 100.0

Total 847 100.0 100.0

In line with the data collected in the previous three-year period, the Two Step service users exhibited


their homelessness, 15.6 (a slight decrease from the previous year) per cent were made homeless due to their

loss of employment, 6.3 (a slight decline from the previous year) per cent had problems with a previous

landlord, 15.4 (a slight increase from the previous year) per cent suffered from a breakdown of their

Page | 26

relationship, 2.0 per cent were made homeless after being released from prison, 29.3 per cent were unable to

find their own place due to migration. The compared to data from the previous year, it becomes noticeable

that there has been a statistically significant increase of the number of people who had been made homeless

due to their migration, but the number of people who have been referred after being deported from a country

other than the United Kingdom declined significantly, accounting for only 0.1 per cent of all the referrals

made for the period under investigation. The number of people who had been made homeless after their

release from prison declined down from 3.1 to 2.0 per cent. The percentage of clients who had been made

homeless due to their addiction problems declined down to 1.5 per cent over the same period.


Frequency Percent

Valid addiction 13 1.5

ASB 20 2.3

awaiting council housing 1 .1

deportation 1 .1

DV 9 1.1

evicted from hostel 7 .8

facing eviction 1 .1




hostel closed down 1 .1

job loss 132 15.6


migration 248 29.3

Page | 27

overcrowding 9 1.1



property burned down 1 .1

property was repossessed 1 .1


rent arrears 19 2.2

tenancy expired 1 .1

threatened with homelessness 18 2.1

unsettled 10 1.2



Total 847 100.0






2-6 months 305 36.0 36.0 52.7

7-12 months 127 15.0 15.0 67.7

Page | 28

More than a year 228 26.9 26.9 94.6

Missing data 46 5.4 5.4 100.0

Total 847 100.0 100.0

Less than a fifth of the sample had been homeless for less than a month, more than a third had been


more than a fourth had suffered from long-term homeless (over a year). In 46 of the cases, no data was

available in order to determine the duration of homelessness to which the clients of the Two Step service had

been exposed. When compared to the profile from extracted from the previous four years, it can be noticed

that though there are small variations in the percentage distribution, the general pattern has been preserved.



a close friend’s place, nearly a fourth (23.7 per cent) were sleeping in a night shelter or a hostel, and only 1.5

per cent of all clients stated they were several of these options, relying both on friends, street homeless



considered as inappropriate for the programme. When compared to data collected for the previous years, a

slight decrease in the number of street homeless people can be noticed, but the number of those relying on

their personal connections has increased significantly, reached thus far its climax. Thus, it can be argued that

over the period of concern, the number of ‘invisible homeless people’ with whom Two Step dealt resulted in

a noticeable change in the overall demographic profile of their clients, when compared to the period

comprising 2006, 2007 and 2008, but is a part of a tendency which started in the 2009.



Valid Streets 227 26.8 26.8 26.8


Page | 29


A mixture 13 1.5 1.5 94.3

Missing data 48 5.7 5.7 100.0

Total 847 100.0 100.0

The table below contains a breakdown of the third parties, small companies, NGOs and other homeless

services which have made referrals to Hope Worldwide during the year 2010:

Referral

Frequency Percent


Anthea Lettings 10 1.1

Big Issue 11 1.3

Broadway Day centre 15 1.7


Greenhouse 86 10.1

Internet 21 2.5

Islington Council 12 1.3

Manna centre 20 2.3

NSNO 13 1.5

Passage 60 7.1

Red Cross 47 5.5

Page | 30

Refugee Councils

Rest

33

224

3.8

26.9

Shelter 20 2.4

St. Martin's 74 8.8

St. Mungo's 15 1.8

Veterans Aid 10 1.1


Whitechapel Mission 7 .8

WLDC 38 4.5


Total 847 100.0



Step programme over 2009. Among the new referees is No Second Night Out, responsible for 1.5 per cent of

all the referrals. Interestingly, the clients who were assessed at Hope Worldwide premises also exhibited

own initiative and proactivity, with 2.5 per cent getting in touch with the Two Step programme via Internet.

In line with the previous upward trends, the work of Hope Worldwide and that of the Two Step programme

expanded in a positive trend and this continued to attract greater attention towards their housing strategy and

the overall service which is on offer. The number of referrals which have been by other major homeless

organisations and services slightly declined when compared to the previous year. Similar to this trend, the

number of people who had been referred to the Two Step programme via their personal connections without

the help of any other established service providers also declined, accounting for nearly a tenth of all the

referrals made. However, when compared to previous data, the number of referrals which have been made

by Refugee Councils and organisations nearly doubled over the one-year period from 2009 to 2010, a

tendency that was also reflected in the previous section which examined the major reasons behind the

clients’ homelessness.

Page | 31


employment, a slight decrease when compared to the previous year. At the time 5.4 of the clients were

receiving Income Support, 11.9 were claiming ESA, 73.0 per cent were claiming JSA and 1.6 per cent were

not claiming any benefits (the remaining percentage of the other clients was claiming a combination of the

above mentioned benefits). The profile of the users in terms of their origin slightly shifted when compared to

the data extracted from the previous four years. 3.4 per cent of all the clients originally resided in the

London Borough of Camden, 9.8 per cent came from London Borough of Hackney, 5.2 per cent were

originally from the London Borough of Haringey, 6.8 per cent came from Islington, 3.7 per cent from

London Borough of Lambeth, 4.6 and 1.7 came Southwark and Tower Hamlets, respectively, and 21.0 per

cent came from the London Borough of Westminster. Overall, there has been a statistically significant

decrease in the number of people coming Tower Hamlets, whereas the number of people coming from

Westminster, Haringey, Camden and Hackney has slightly declined when compared to the previous year.

More than a third of the clients (35.9 per cent) disclosed as having some kind of a physical problem,

and more than a fourth (26.1 per cent) suffered from mental health issues, among which depression, PSTD,

sleep deprivation and schizophrenia. Both figures have increased significantly when compared to the profile

which was extracted for period 2006-2008, but the percentages have changed only slightly, when compared

to the profile constructed for 2009, re-affirming the previous the conclusion that the vulnerability of the

clients has also increased and Hope Worldwide is increasingly dealing with more fragile and unstable


housing were taken. Departing from previous findings, at the time of the interviews, more than a fourth of

all the clients stated they were receiving medical treatment or medication for their problems (26.2 per cent;

an increase of 10.0 per cent when compared to values from the year 2009). The number of people who

reported some drug abuse problems continued its declining trend (down to 20.3 per cent). The number of

clients who had overdosed on drugs decreased to 4.8 per cent, and a similar tendency was observed for the

number of people who had attempted to commit suicide in the past – the figures decreased to 7.0 per cent.

Of all the clients, more than a fourth (27.9. per cent) had previously resided in a hostel, a significant

decrease of nearly 10.0 per cent when compared to the previous year. 6.7 per cent had attended some kind of

a rehabilitation programme in order to overcome their addiction problems – a slight increase when compared

to previous data. At the time of the interviews, half of the clients were in debt (52.8 per cent; a massive and

doubling when compared to the period 2006-2008, but in line with the findings for 2009) and less than a

fifth (15.6 per cent) had been convicted of a crime, with 11.3 per cent of all clients serving a custodial

sentence – a general tendency towards decline over the years analysed thus far. These figures also

represented a slight decline from the pattern observed in the previous year, with 6.3 per cent of all the

conviction being of violent crimes, and 3.2 per cent of all the convictions being for drug offences.

Page | 32

To summarise, for the period encompassing the 2010, the Two Step programme continued to deal

with vulnerable clients who had been unable to find a resolution to their problems elsewhere. The general

trend was towards working with less ‘dangerous populations’, a tendency that was also observed in the

previous year.

2011 Data




21.1 per cent of all cases, a slight increase when compared to the data extracted from 2010.






profile towards middle-aged men.

Age


Valid 18-25 56 6.1 6.1 6.1

26-35 289 31.6 31.6 37.7

36-45 299 32.7 32.7 70.4

46+ 271 29.6 29.6 100.0

Total 915 100.0 100.0

In line with the data collected in the previous five-year period, the Two Step service users exhibited


their homelessness (a slight decrease from the previous year), 14.0 (a slight decrease from the previous year)

per cent were made homeless due to their loss of employment, 16.9 (which more than doubled when

compared to the 2010 data) per cent had problems with a previous landlord, 15.2 (a slight decrease from the

Page | 33

previous year) per cent suffered from a breakdown of their relationship, 3.4 per cent were made homeless

after being released from prison (increased by 1.4 per cent), 26.0 per cent were unable to find their own

place due to migration. The compared to data from the previous year, it becomes noticeable that there has

been a slight decrease of the number of people who had been made homeless due to their migration, with no

people being referred after they have been deported from a country other than the United Kingdom. The

number of people who had been made homeless after their release from prison increased from 2.0 to 3.4 per

cent. The percentage of clients who had been made homeless due to their addiction problems declined down

to 1.1 per cent over the same period. The number of people who had been made homeless due to financial

problems decreased from 7.3 to 6.0 per cent, whereas the number of those with rent arrears slightly

increased to 2.4 per cent in comparison to the previous year.


Frequency Percent

Valid 99 2 .2

addiction 10 1.1

ASB 16 1.7

DV 10 1.1

evicted from hostel 4 .4




job loss 128 14.0

landlord didn't accept HB 1 .1


migration 238 26

overcrowding 5 .5

Page | 34




rent arrears 22 2.4

threatened with homelessness 18 2.0


would like to move on 3 .3

Total 915 100.0






2-6 months 365 39.9 39.9 60.9

7-12 months 118 12.9 12.9 73.8

More than a year 218 23.8 23.8 97.6

Missing data 22 2.4 2.4 100.0

Total 915 100.0 100.0

Around a fifth of the sample had been homeless for less than a month, 39.9 per cent had been


less than a fourth ( 23.8 per cent) had suffered from long-term homeless (over a year). In 22 of the cases, no

data was available in order to determine the duration of homelessness to which the clients of the Two Step

Page | 35

service had been exposed. When compared to the profile from extracted from the previous year, it can be

noticed that the profile of the Two Step users shifted towards short-term homelessness – up to 6 months,

rather than long-term homelessness – 6 months and beyond.



Valid Streets 258 28.2 28.2 28.2



A mixture 1 .1 .1 95.7

Missing data 39 4.3 4.3 100.0

Total 915 100.0 100.0



a close friend’s place, more than a fourth (28.6 per cent) were sleeping in a night shelter or a hostel, and only

0.1 per cent of all clients stated they were several of these options, relying both on friends, street homeless



considered as inappropriate for the programme. When compared to data collected for the previous year, a

slight increase in the number of street homeless people can be noticed, with the number of those relying on

their personal connections has slightly decreasing. The percentage of clients that resided in a night shelter or

a hostel at the time of the interview reached its highest point of all the five years.


homeless services which have made referrals to Hope Worldwide during the year 2011:

Referral

Page | 36

Frequency Percent




Greenhouse 123 13.4

Manna centre 39 4.2

NSNO 51 5.6

Passage 19 2.1

Red Cross 27 3.0

Refugee Centre King's Cross 1 .1

Refugee Councils

Rest

11

273

1.2

29.8

Shelter 24 2.8

St. Martin's 69 7.5

St. Mungo's 15 1.6


Whitechapel Mission 14 1.5

WLDC 53 5.8


Total 915 100.0



Page | 37

Step programme over 2011.During this period, NSNO referral increased nearly four times when compared

to the previous year, from 1.5 per cent to 5.6 per cent. The Greenhouse continued referring clients to the

Two Step programme, and was responsible for 13.4 per cent of all the referral, the highest percentage of

referral it had achieved over the five-year period. In line with the previous upward trends, the work of Hope

Worldwide and that of the Two Step programme expanded in a positive trend and this continued to attract

greater attention towards their housing strategy and the overall service which is on offer. In contrast to the

previous year, the number of people who had been referred to the Two Step programme via their personal

connections without the help of any other established service providers increased significantly and reached

its highest point – 118 or 12.9 per cent. When compared to previous data, the number of referrals which

have been made by Refugee Councils and organisations nearly doubled over the one-year period from 2009

to 2010, but significantly decreased in 2011. Westminster Housing Options was responsible for 4.9 per cent

of all the referrals made and nearly doubled its previous number of referrals made. The number of referrals

made on behalf of the WLDC also increased when compared to the previous year, but the number of

referrals made by St. Martin’s marked a slight decline, though it retained its significance in the referral

process.

At the time when the interviews were conducted, 4.2 per cent stated they were in some form of

employment, a slight increase when compared to the previous year. At the time, 4.0 of the clients were




the data extracted from the previous four years. 2.1 per cent of all the clients originally resided in the

London Borough of Camden, 13.5 per cent came from London Borough of Hackney (a marked increase

since the previous year), 5.8 per cent were originally from the London Borough of Haringey (a slight

increase since the previous year), 5.7 per cent came from Islington, 3.0 per cent from London Borough of

Lambeth, 5.3 and 2.6 came Southwark and Tower Hamlets, respectively, and 18.9 per cent came from the

London Borough of Westminster. Overall, there has been a statistically significant decrease in the number of

people coming from Islington, Camden, Lambeth and Westminster.

Borough of origin

Frequency Percent

Valid

Missing data 146 16.0

Acton 1 .1

Page | 38

Barking 1 .1

Barking and Dagenham 1 .1

Barnet 9 1.0

Brent 12 1.3

Bristol 1 .1

Brixton 2 .2

Bromley 2 .2

Camberwell 1 .1

Camden 19 2.1

Croydon 4 .4

Deptford 1 .1

Ealing 5 .5

Edgware 1 .1

Enfield 10 1.1

Epson 1 .1

Essex 1 .1

Finchley 1 .1

Greenwich 3 .3

Hackney 124 13.5

Hammersmith and Fulham 38 4.2

Haringey 53 5.8

Herts 2 .2

Page | 39

Highgate 1 .1

Hillingdon 2 .2

Hounslow 3 .3

Hoxton 15 1.6

Ilford 1 .1

Islington 52 5.7

Kennington 3 .3

Kensington and Chelsea 15 1.6

Kent 1 .1

Kilburn 1 .1

Kingston 2 .2

Lambeth 27 3.0

Lewisham 15 1.6

Manchester 1 .1

Middlesex 1 .1

Morden 1 .1

N/A 24 2.6

Neasden 1 .1

Newham 25 2.7

North Finchley 1 .1

Northampton 1 .1

Peckham 2 .2

Page | 40

Redbridge 1 .1

Richmond 2 .2

Seven Kings 1 .1

Shoreditch 1 .1

Southall 1 .1

Southwark 49 5.3

Stockwell 1 .1

Streatham 2 .2

Surrey 3 .3

Tower Hamlets 24 2.6

Uxbridge 2 .2

Waltham Forest 12 1.3

Wandsworth 7 .8

Westminster 173 18.9

Total 915 100.0

Around a third of the clients (33.6 per cent) disclosed as having some kind of a physical problem,

and around a fourth (25.4 per cent) suffered from mental health issues, among which depression, PSTD,



to the profile constructed for 2009 and 2010, re-affirming the previous the conclusion that the vulnerability

of the clients has also increased and Hope Worldwide is increasingly dealing with more fragile and unstable


housing were taken. More than a fifth (22.1 per cent) of all the clients stated they were receiving medical

treatment or medication for their problems. The number of people who reported some drug abuse problems

Page | 41

continued its declining trend (down to 17.8 per cent). The number of clients who had overdosed on drugs

increased slightly to 5.0 per cent, and a similar tendency was observed for the number of people who had

attempted to commit suicide in the past – the figures increased to 8.1 per cent.

Of all the clients, more than a fourth (27.2 per cent) had previously resided in a hostel, a significant

decrease of nearly 10.0 per cent when compared to the 2009, but slightly less that the numbers reported in

2010. 4.6 per cent had attended some kind of a rehabilitation programme in order to overcome their

addiction problems – a slight decrease when compared to previous data. At the time of the interviews, half

of the clients were in debt (53.3 per cent; a massive and doubling when compared to the period 2006-2008,

but in line with the findings for 2009 and 2010) and less than a fifth (16.1 per cent, a statistically

insignificant rise when compared to data from the previous year) had been convicted of a crime, with 10.6

per cent of all clients serving a custodial sentence – a general tendency towards decline over the years

analysed thus far. These figures also represented a slight decline from the pattern observed in the previous

year, with 6.1 per cent of all the conviction being of violent crimes, and 5.4 per cent of all the convictions

being for drug offences – a slight increase in the reporting of drug-related offences since the previous year.

2012 Data




16.8 per cent of all cases, a statistically significant decrease when compared to the data extracted from 2011.






profile towards middle-aged men, a pattern that was also observed in the previous year.

Age


Valid 18-25 70 6.3 6.3 6.3

26-35 305 27.5 27.5 33.8

Page | 42

36-45 366 33.0 33.0 66.8

46+ 368 33.2 33.2 100.0

Total 1109 100.0 100.0

In line with the data collected in the previous five-year period, the Two Step service users exhibited


their homelessness (a slight decrease from the previous year), 22.0 (a significant 8.0 per cent increase from

the previous year) per cent were made homeless due to their loss of employment, 16.1 (which more than

doubled when compared to the 2010 data and slightly decreased since 2011) per cent had problems with a

previous landlord, 12.6 (a slight decrease from the previous year) per cent suffered from a breakdown of

their relationship, 3.5 per cent were made homeless after being released from prison, 16.9 per cent were

unable to find their own place due to migration (a significant decrease of nearly 10.0 per cent since 2011).

The compared to data from the previous year, it becomes noticeable that there has been a significant

decrease of the number of people who had been made homeless due to their migration, with almost no

people being referred after they have been deported from a country other than the United Kingdom. The

number of people who had been made homeless after their release from prison increased from 2.0 to 3.4 per

cent since 2010 and has remained stable since 2011. The percentage of clients who had been made homeless

due to their addiction problems declined down to 1.1 per cent over the same period and has remained stable

since 2011. The number of people who had been made homeless due to financial problems increased from

6.0 to 8.8 per cent since 2011, whereas the number of those with rent arrears slightly increased to 2.8 per

cent in comparison to the previous year.


Frequency Percent

Missing data 1 .1

addiction 12 1.1

ASB 22 2.0

contract expired 1 .1

Page | 43

deportation 1 .1

DV 20 1.8

evicted by council 1 .1



flat repossessed 1 .1

hospital release 1 .1

hostel closing down 15 1.4

job loss 244 22.0


left PR 1 .1

migration 187 16.9

mobility problems 1 .1

overcrowding 10 .9



rent arrears 31 2.8

threatened with homelessness 2 .2

unsettled 2 .2


would like to have own place 1 .1


Page | 44

Total 1109 100.0






2-6 months 390 35.2 35.2 65.0

7-12 months 124 11.2 11.2 76.2

More than a year 256 23.1 23.1 99.3

Missing data 8 .7 .7 100.0

Total 1109 100.0 100.0

More than a fourth of the sample had been homeless for less than a month, 35.5 per cent had been


less than a fourth ( 23.1 per cent) had suffered from long-term homeless (over a year). In 8 of the cases, no

data was available in order to determine the duration of homelessness to which the clients of the Two Step

service had been exposed. When compared to the profile from extracted from the previous year, it can be

noticed that the tendency towards working with clients suffering from short-term homelessness has been

preserved.



Valid Streets 316 28.5 28.5 28.5


Page | 45


A mixture 4 .4 .4 93.5

Missing data 72 6.5 6.5 100.0

Total 1109 100.0 100.0



a close friend’s place, more than a third (35.1 per cent) were sleeping in a night shelter or a hostel, and only

0.4 per cent of all clients stated they were several of these options, relying both on friends, street homeless



considered as inappropriate for the programme. When compared to data collected for the previous year, a

slight increase in the number of street homeless people can be noticed, with the number of those relying on

their personal connections has slightly decreasing. The percentage of clients that resided in a night shelter or

a hostel at the time of the interview reached its highest point of all the six years.


homeless services which have made referrals to Hope Worldwide during the year 2012:

Referral

Frequency Percent


Crisis 10 .9


Edward Alsop Court 10 .9

Page | 46

Greenhouse 77 7.0

Internet 19 1.7

Islington Council 10 .9

Islington Housing Aid 32 2.9

Islington Housing Options 33 3.0

Look Ahead 17 1.6

Manna centre 38 3.5

NSNO 130 11.7

Passage

Rest

23

316

2.1

28

Shelter 21 1.9

St. Martin's 52 4.8

St. Mungo's 20 1.8

Street Rescue 19 1.7


Whitechapel Mission 13 1.2

WLDC 90 8.1


Total 1109 100.0



Step programme over 2012.During this period, NSNO referrals more than doubled, rising from 5.6 per cent

to 11.7 per cent. When compared to previous data, the referrals made by Westminster Housing Options

Page | 47

decreased down to 3.5 per cent. The number of referrals made on behalf of the WLDC also increased when

compared to the previous year, reaching its highest point, but the number of referrals made by St. Martin’s

marked a significant decline.

At the time when the interviews were conducted, 3.3 per cent stated they were in some form of

employment, a slight decrease when compared to the previous year. At the time, 2.7 of the clients were




the data extracted from the previous year. 3.1 per cent of all the clients originally resided in the London

Borough of Camden, 11.0 per cent came from London Borough of Hackney (a marked increase since the

previous year), 6.4 per cent were originally from the London Borough of Haringey (a slight increase since

the previous year), 13.1 per cent came from Islington, 2.3 per cent from London Borough of Lambeth, 5.1

and 4.2 came Southwark and Tower Hamlets, respectively, and 22.7 per cent came from the London

Borough of Westminster. Overall, there has been a statistically significant decrease in the number of people

coming from Hackney and Lambeth. The percentages for Westminster, Camden, Haringey, Kensington and

Chelsea increased slightly, whereas those made from Islington more than doubled.

Borough of origin

Frequency Percent

Valid Missing data 66 6.0

Acton 1 .1

Aldgate 1 .1

Barking 1 .1

Barking and Dagenham 1 .1

Barnet 8 .7

Belfast 1 .1

Bexley 1 .1

Bexleyheath 2 .2

Page | 48

Brixton 1 .1

Bromley 4 .4

Camden 34 3.1

Clapham 3 .3

Croydon 12 1.1

Ealing 3 .3

Enfield 18 1.6

Essex 4 .4

Forest Hill 1 .1

Fulham 1 .1

Glasgow 2 .2

Greenwich 9 .8

Guildford 1 .1

Hackney 122 11.

Hammersmith and Fulham 55 4.9

Hampstead Heath 1 .1

Haringey 71 6.4

Harrow 1 .1

Hendon 1 .1

Horn Church 1 .1

Hounslow 2 .2

Ilford 3 .3

Page | 49

Islington 145 13.1

Kennington 1 .1

Kensington and Chelsea 14 1.3

Kent 2 .2

Kingston 3 .3

Lambeth 25 2.3

Leicester 1 .1

Lewisham 14 1.3

Middlesbrough 1 .1

Middlesex 2 .2

Mitcham 1 .1

N/A 16 1.4

Newcastle 1 .1

Newham 31 2.8

Peckham 2 .2

Plaistow 1 .1

Poplar 4 .4

Redbridge 1 .1

Romford 1 .1

Seven Kings 1 .1

Sheffield 1 .1

Southall 1 .1

Page | 50

Southampton 1 .1

Southwark 57 5.1

Stockwell 2 .2

Stoke 1 .1

Streatham 3 .3

Surrey 1 .1

Tower Hamlets 47 4.2

Waltham Forest 30 2.7

Wandsworth 11 1.0

Wembley 2 .2

Westminster 251 22.7

Willesden 1 .1

Wilshire 1 .1

Total 1109 100.0

Around a third of the clients (31.8 per cent) disclosed as having some kind of a physical problem,

and around a fourth (26.7 per cent) suffered from mental health issues, among which depression, PSTD,



to the profile constructed for 2009, 2010 and 2011, re-affirming the previous the conclusion that the

vulnerability of the clients has also increased and Hope Worldwide is increasingly dealing with more fragile

and unstable homeless people, whose condition might become worse in the future unless steps towards

prevention and housing were taken. More than a fifth (21.6 per cent) of all the clients stated they were

receiving medical treatment or medication for their problems. The number of people who reported some

drug abuse problems increased to 21.9 per cent since 2011. The number of clients who had overdosed on

Page | 51

drugs decreased slightly to 4.6 per cent, and a similar tendency was observed for the number of people who

had attempted to commit suicide in the past – the figures decreased to 7.7 per cent.

Of all the clients, more than a fourth (28.5 per cent) had previously resided in a hostel, a significant

decrease of nearly 10.0 per cent when compared to the 2009, but slightly in line with the findings from 2010.

5.5 per cent had attended some kind of a rehabilitation programme in order to overcome their addiction

problems – a slight increase when compared to previous data. At the time of the interviews, half of the

clients were in debt (52.0 per cent; a massive and doubling when compared to the period 2006-2008, but in

line with the findings for 2009, 2010 and 2011) and less than a fifth (15.8 per cent, a statistically

insignificant decline when compared to data from the previous years) had been convicted of a crime, with

9.8 per cent of all clients serving a custodial sentence – a general tendency towards decline over the years

analysed thus far. These figures also represented a slight decline from the pattern observed in the previous

year, with 6.2 per cent of all the conviction being of violent crimes, and 4.2 per cent of all the convictions

being for drug offences – a slight decrease in the reporting of drug-related offences since the previous year.

Page | 52

The wider picture

The following section of this evaluation will present some data collected and analysed from other

homeless services providers. The majority of the services included in this section provide a wider range of

support services for the single homeless and also have an enormous financial turnover when compared to the

Two Step programme. Therefore, for the sake of simplicity, only statistics and data on housing will be

included. We acknowledge that in some instances data will be missing, partial or incomplete due to the

changes of recording practices in the different charities. With the best of intentions, we aimed to include

information for the period 2006-2012 so as to make the cross-comparison with Hope Worldwide more

comprehensive.

Crisis

Crisis is the UK national charity for single homeless people. The charity offers year-round education,

employment, housing and well-being services from centres in London, Newcastle, Oxford, Edinburgh and

Merseyside, called Crisis Skylight Centres.

As well as year-round services Crisis runs Crisis at Christmas, which since 1972 has been offering

food, warmth, companionship and vital services to homeless people over the Christmas period

Since its inception Crisis has been a campaigning organisation, lobbying government for political

change that prevents and mitigates homelessness based on research commissioned and undertaken by the

organisation.

Crisis was founded in 1967 in response to the Ken Loach film Cathy Come Home shown the

previous year, and a publicity campaign led by reforming Conservatives William Shearman and Ian

Macleod highlighting the plight of homeless people.

Since the sixties Crisis has evolved to meet the changing needs of single homeless people,

campaigning for change and delivering services to help people find a route out of their homelessness across

the UK.

Crisis Skylight Centres are accredited education, training and employment centres, offering practical

and creative workshops in supportive and inspiring environments, together with formal learning

opportunities that lead to qualifications and finding work.

Crisis Skylight London opened in 2002, with a Crisis Skylight Cafe social enterprise opening on the

same site on Commercial Street in East London in 2004. In 2007 Crisis Skylight Newcastle opened its

doors, followed by Crisis Skylight Birmingham and Crisis Skylight Edinburgh in 2010 and Crisis Skylight

Oxford and Crisis Skylight Merseyside in 2011.

Page | 53

Since 1972 Crisis at Christmas has been offering food, warmth, companionship and services to

homeless people in London over the Christmas period. The project is run almost entirely by around 8,000

volunteers, making it the largest volunteer-led event in the UK. In 2010 saw about 3,000 homeless people

come through the doors. All buildings used as Crisis at Christmas Centres are temporarily donated.

Services offered to homeless people at Christmas include healthcare, opticians, podiatry, dentistry,

natural healing and hairdressing.

With its comprehensive set of services, Crisis has grown out to be the leading voice of the single

homeless people in the United Kingdom.

Impact for the period of 2006-2012

For the year 2006-2007, 6,839 people received comprehensive housing advice and 1,127 of these

people accessed a home of their own. 102 people participated in SmartSkills, engaging in a variety of

learning activities including literacy, numeracy and IT 18 moved on to further education and training, with

13 moving on to voluntary or paid employment.

In 2007-2008, 6,784 people received advice and assistance through SmartMove; 1,139 of those

people were assisted into accommodation; 259 people or organisations received information about

delivering a private sector scheme; 138 participated in SmartSkills – 49 people completed learning

programme, 72 moved into further education, 25 into work

In 2008-2009, Crisis provided housing advice to 7171 people and helped 1436 people into private

rented accommodation.

In 2009-2010 local SmartMoves provided housing advice to 6,050 people and helped 1,426 people

into accommodation. Over the year Crisis worked intensively with 36 local authorities across England and

Scotland and trained over 150 different agencies on improving access to the PRS for single homeless people.

This was in addition to responding to requests for advice from over 200 agencies and 300 individuals. In

addition, 138 clients of Crisis Skylight were helped to achieve stability in their housing situation

In 2010-2011, 53 local authorities assisted and advised to develop/expand PRS services. 47

individuals were directly assisted into PRS accommodation.

Page | 54

In 2011-2012, Crisis funded 81 local organisations to establish new services enabling 418 single

homeless people to establish tenancies in the private rented sector. 48 existing schemes were supported that

helped 1,543 people establish new tenancies in the PR sector. 40 people were directly assisted by Crisis to

find and move into a place to live in the PR sector. 207 people were supported by a progression co-ordinator

to improve their housing situation.

The Connection at St. Martin-in-the-Fields

Work with homeless people has been going on at St Martin-in-the-Fields since at least 1948, when

the first formal organisation was set up by the Church. The Social Care Unit, based on the site, helped

homeless people over the age of 26, by providing practical support, advice and daily activities.

In 1988, St Martin’s identified the old school building as being a suitable site for a new day centre

for young people. The building was converted and three existing organisations merged to form the London

Connection, which helped young people aged 16-25.

In 2003, the London Connection and the Social Care Unit merged to create The Connection at St

Martin-in-the-Fields.

As with any other charitable organisation within the sector, the vision of St. Martin’s is to end street

homelessness through programmes of prevention, intervention and reintegration, giving all vulnerable

people in crisis the opportunity to access help. This ought to be achieved by providing an effective and

relevant range of services to homeless people and those who are at risk in central London. Its mission is to

promote engagement and change and meet physical, personal and emotional needs.

Review of 2006

Housing and Resettlement programme – St. Martin’s House in an intermediate stage 15 bed hostel

for former rough sleepers, providing a step between short-stay hostels and permanent accommodation. 15

tenants moved during the year, of which 14 moved into permanent accommodation. The average length of

stay was well within their target of two years

Review of 2007

Housing and Resettlement – increased capacity plus 1, 14 tenants left during the year, of whom 11

moved in permanent education.

Page | 55

Review of 2008 – 900 clients reconnected to home area or referred to other appropriate services and

460 hostel referrals

Review of 2009 – 9 tenants left during the year, of whom 8 moved into permanent accommodation.

Four former residents also gained employment; 1,100 clients were reconnected to home area or referred to

other appropriate services; 600 hostel referrals;

Review of 2010 – 650 clients were supported to move into accommodation

Review of 2011 – seven tenants left during the year, of whom six moved into permanent

accommodation. Two former residents also gained employment.

Over the period of 2011-2012 411 people were referred to accommodation and 512 were reconnected

to home area.

The outreach service saw important changes to service delivery over the year with the introduction of

Westminster wide and pan-London NSNO Pilots. Having shifted focus the previous year onto ‘Westminster

168’ (homeless people who had experienced significant periods of rough sleeping for over 5 years), the

Westminster partnership now wanted people new to the streets specifically targeted to ensure they didn’t

have to spend another single night out. The Westminster NSNO pilot started at the beginning of 2011; by

monitoring new rough sleepers arriving on the streets of Westminster the Outreach Team were able to offer

them a time limited stay in our Night Centre whilst a period of assessment was carried out by the Advice and

Housing Team and a subsequent suitable offer of housing or support was given to them to ensure a return to

the streets was avoided.

In 2011-2012 there was less move-on due to a combination of lack of appropriate housing and

complex support needs of the tenants at the time. Five tenants left during the year, of whom 2 moved into

Housing association flats with floating support, 1 moved into local authority Older Persons (Sheltered)

Housing, 1 moved out of London after getting employment elsewhere and 1 moved back into the family

home. 1 tenant gained employment and a quarter of the tenants were involved in voluntary work.

St. Mungo’s

Page | 56

St Mungo's opens doors in 1969 and begins with a house run by volunteers in Battersea. This was

open to rough sleepers, with a soup run operating from the kitchen. In the 1970s St Mungo's gradually

expands, opening large hostels in disused buildings in London and smaller supported houses. By the 1980s it

becomes the first organisation to introduce planned resettlement by setting up a dedicated team and opened

the first residential care home for frail elderly men, and opened their first winter shelter, pre-dating

government action in this area by two years.

In the 1990s St. Mungo’s launch the first Clubhouse in Britain, a work-based project for people with

mental health problems; there are now over 30 in the country. For rough sleepers, St. Mungo’s opened

during the 90s the:

The first specialist project solely for mentally ill rough sleepers, funded by the Government

The first specialist project solely for rough sleepers who drink heavily, one of only two in

London

The first asylum-seekers hostel in Britain

The only specialist project solely for elderly rough sleepers

In the beginning of the millennium St. Mungo’s also opened the first dedicated move-on unit in London to

help crack-using sex workers to move away from the streets, for which we win an Andy Ludlow award for

innovation in housing. Several other achievements should be highlighted:

Began running a client involvement group - Outside In -

Took on 11 new hostels and housing projects from Novas while upgrading many of their old

hostels through the Hostel Capital Improvement Programme

Began working in HMP Holloway to deliver a nine month pilot scheme to provide

community based support to black and minority ethnic women leaving the prison. This offender

services work is still operational.

Adopts the Recovery Approach as a new way of working with their clients, which focuses

on clients' goals and aspirations, rather than their needs.

In the beginning of 2010s and continuing in present, St. Mungo’s started to grow beyond London and open

new projects in Bath, Bristol, Reading, Hertfordshire, and Oxfordshire.

The service

In the period of 2006/2007 St. Mungo’s street outreach team helped 1,283 people off the streets and

into appropriate accommodation.

http://www.mungos.org/about/clients/outside_in

http://www.mungos.org/press_office/278_minister-attends-official-opening-of-state-of-the-art-hostel

http://www.mungos.org/services/preventing_homelessness/offender_services

http://www.mungos.org/services/preventing_homelessness/offender_services

http://www.mungos.org/happiness_matters/what_recovery_approach

http://www.mungos.org/services/where_we_work

Page | 57

The two emergency shelters helped a total of 365 people find longer-term solutions to their housing

needs. St. Mungo’s ran 32 semi-independent housing projects, with accommodation for over 689 men and

women. The prison service teams, working across four prisons, helped 852 ex-offenders find

accommodation on leaving prison

2007/2008

Outreach teams helped 700 people of the streets and helped house 7 out of ten clients move on into

appropriate accommodation. Over 470 after-prison tenancies and 300 from emergency shelters were moved

onto more appropriate housing.

In the year 2008/09 St. Mungo’s managed to place 450 rough sleepers into accommodation.

A statistical profile was also available for the same year: and it included gender, background and

needs:

Age of clients on Admission

5% were in the 18-24 age group



6% were in the 65+ age group

Gender breakdown:

75.9% Male; 23.9% Female, 0.3% transgender

Needs

68% have substance abuse problems – alcohol, drugs

66% have physical needs

69% have mental health problems

62% have behavioural problems – challenging behaviour, socially vulnerable, gambling problems

52% Educational problems – learning disabilities, difficulty reading, difficulty with numeracy,

managing money and paying bills

Page | 58

2009/2010

21% street activities – street drinking, begging sex working, 11% ex-care

4% - Ex-forces

48% Ex-offender/served a custodial in prison

Background

45% are White British, 8% White Irish, 9% White Other

5% Mixed White

1% Asian or Asian British Indian

1% Asian or Asian British Other

11% Black or Black British Caribbean

10% Black or black British African

5% Black or Black British Other

3% Other ethnic group

2% Refused

Multiple needs

6% with mental health problems

3% with physical health problems

10% with substance abuse problems

17% with mental and physical health problems

12% mental health and substance abuse

12% physical health and substance

34% mental health, physical health and substance use

Page | 59

Outreach teams helped 526 people off the streets and 703 residents of St. Mungo’s made positive

accommodation moves.

Interestingly, St. Mungo’s also discloses that 3,673 people had slept rough on the streets of London

in 2009/2010 – up 6% on the previous 12 months. 60% of these were people seen sleeping rough for the first

time and an increasing proportion of new arrivals on the street had no access to many publicly funded

services because of their country of origin.

Gender:

76% are male, 24 % are female

6% under 25

22% 25-34

29% - 35-44

25% - 45-54

12% - 55-64

5% - 65-74

1% - 75+

Needs




58% have behavioural problems – challenging behaviour, socially vulnerable, gambling

problems

54% Educational problems – learning disabilities, difficulty reading, difficulty with numeracy,

managing money and paying bills


4% - Ex-forces


Page | 60

8% Ex-care problems

Background


7% Mixed White

1% Asian or Asian British and 2% Asian British Other





Multiple needs








2010-2011

Street teams helped 370 people off the streets and into accommodation

1,194 people successfully move on from St. Mungo’s accommodation and a further 383 made a positive

move on within their own accommodation services. Prison based teams saved over 1,250 tenancies. The

profile of their clients was as follows:

Page | 61

Gender

77% were male, 23 % were female

Age

7% under 25

22% 25-34

30% - 35-44

24% - 45-54

12% - 55-64

4% - 65-74

1% - 75+

Needs





problems

62% Educational problems – learning disabilities, difficulty reading, difficulty with

numeracy, managing money and paying bills


3% - Ex-forces


9% Ex-care problems

Background


Page | 62

6% Mixed White

2% Asian or Asian British and 3% Asian British Other





Multiple needs








In the year 2011-2012 the street outreach helped 430 people off the streets and into accommodation.

1,176 people successfully moved on from St. Mungo’s accommodation and the Offender Management

Services saved over 1,000 tenancies. The Profile of their clients was as follows:

Gender:

76% are male, 24 % are female

Page | 63

Age:

9% under 25

21% 25-34

28% - 35-44

24% - 45-54

12% - 55-64

5% - 65-74

1% - 75+

Needs





problems

63% Educational problems – learning disabilities, difficulty reading, difficulty with

numeracy, managing money and paying bills


4% - Ex-forces


32% Mobility problems

8% Ex-care problems

Background


6% Mixed White

4% Asian or Asian British

Page | 64





2% Refused

Multiple needs








Thames Reach

Thames Reach is a London-based charity working with homeless men and women. It’s mission is to

ensure that the users of its services find and sustain a decent home, develop supportive relationships and lead

fulfilling lives. Thames Reach’s vision is of a society where street homelessness is ended and nobody need

sleep rough on the streets. Thames Reach provides a range of services to vulnerable and socially excluded

people, many of whom have suffered homelessness. The organisation’s roots lie in working with rough

sleepers in London and it has, since inception in 1984, considerably diversified its services and increased the

number of people it supports and the range of need it actively addresses.

Thames Reach provides:

Street outreach services including the London Street Rescue Service

International reconnection services

Hostels

Page | 65

Specialist accommodation for people with substance misuse and mental health

problems

Tenancy support services

Learning and employment programmes

An Employment Academy offering a range of services to help people to find and

sustain employment

Day services offering a range of advice and assistance

Specialist health programmes

Services for women fleeing domestic violence.

Of all the services reviewed thus far, only Thames Reach had published a yearly profile of its service users

over the 2006-2010 year period. The following table contains a breakdown the statistical profile of the

clients:

Annual Review 2006

Gender ratio

Female – 18 %

Male – 82 %

Age

18-24 – 4%

25-35 – 27%

36-60 – 60%

60+ - 9%

Time sleeping rough

0-3mths – 17 %

4-6mths – 10 %

Annual review 2007

Gender ratio

Female – 26 %

Male – 74 %

Age

18-24 – 5%

25-35 – 24%

36-60 – 61%

60+ - 10%

Time sleeping rough

0-3mths – 9 %

4-6mths – 5 %

Annual Review 2008

Gender ratio

Female – 30 %

Male – 70 %

Age

18-24 – 6%

25-35 – 24%

36-60 – 61%

60+ - 9%

Time sleeping rough

0-3mths – 17 %

4-6mths – 9 %

Page | 66

7-11mths – 8%

1-3yrs – 20%

4-10yrs – 15%

11yrs+ - 10%

None – 20%

Support needs

Mental Health – 38%

Alcohol – 35%

Drugs – 25%

Multiple Support Needs

Alcohol/Drugs – 10%

Drugs/MH – 10%

Alcohol/MH – 14%

Drugs/Alcohol/MH – 5%

Ethnicity

British – 48%

Irish – 8%

Caribbean – 9%

African – 7%

Other – 18%

Refused – 10%

Disability

7-11mths – 3%

1-3yrs – 10%

4-10yrs – 6%

11yrs+ - 3%

None – 10%

Support needs


Alcohol – 39%

Drugs – 27%



Drugs/MH – 13%

Alcohol/MH – 18%


Ethnicity

British – 40%

Irish – 7%

Asian – 2%

Caribbean – 10%

African – 10%

Other – 19%

Refused – 9%

7-11mths – 7%

1-3yrs – 18%

4-10yrs – 9%

11yrs+ - 5%

None – 37%

Support needs


Alcohol – 35%

Drugs – 26%



Drugs/MH – 12%

Alcohol/MH – 16%


Ethnicity

British – 39%

Irish – 6%

Asian – 3%

Caribbean – 10%

African – 11%

Other – 20%

Refused – 9%

Page | 67

Yes – 15%

No- 85%

Ex-armed forces

Yes – 6%

No - 94%

Prison

Yes – 32%

No – 68%

Employment status

Unable to work – 55%

Pensioner – 6%

Employed – 6%

Can’t work/claim – 5%

Seeking work – 18%

Not known – 10 %

Disability

Yes – 21%

No- 79%

Ex-armed forces

Yes – 5%

No - 95%

Prison

Yes – 27%

No – 73%

Employment status


Pensioner – 7%

Employed – 7%



Not known – 8 %

Disability

Yes – 23%

No- 64%

Ex-armed forces

Yes – 4%

No - 83%

Prison

Yes – 20%

No – 63%

Employment status


Pensioner – 6%

Employed – 8%



Not known – 6 %

Annual Review 2009

Gender ratio

Female – 26 %

Male – 74 %

Annual Review 2010

Gender ratio

Female – 24 %

Male – 76 %

Page | 68

Age

18-24 – 5%

25-35 – 24%

36-60 – 62%

60+ - 9%

Time sleeping rough

0-3mths – 17 %

4-6mths – 8 %

7-11mths – 5 %

1-3yrs – 17 %

4-10yrs – 8 %

11yrs+ - 5%

None – 40%

Support needs


Alcohol – 41%

Drugs – 32%



Drugs/MH – 14%

Alcohol/MH – 18%


Age

18-24 – 6%

25-35 – 24%

36-60 – 61%

60+ - 9%

Time sleeping rough

0-3mths – 16 %

4-6mths – 8 %

7-11mths – 6 %

1-3yrs – 15 %

4-10yrs – 8 %

11yrs+ - 4%

None – 43%

Support needs


Alcohol – 40%

Drugs – 32%



Drugs/MH – 14%

Alcohol/MH – 18%


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Ethnicity

British – 45%

Irish – 6%

Asian – 2%

Caribbean – 9%

African – 8%

Other – 5%

Refused – 5%

Disability

Yes – 29%

No- 71%

Ex-armed forces

Yes – 5%

No - 95%

Prison

Yes – 27%

No – 73%

Employment status

Pensioner – 6%

Training and Volunteering – 28%

Employed – 8%


Ethnicity

British – 43%

Irish – 5%

Asian – 3%

Caribbean – 10%

African – 9%

Other – 5%

Refused – 3%

Disability

Yes – 28%

No- 71%

Ex-armed forces

Yes – 4%

No - 96%

Prison

Yes – 27%

No – 73%

Employment status


Pensioner – 6%

Employed – 6%


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Discussion

With the best of intentions, any cross-comparison between the Two Step programme and similar

services in other charitable organisations is quite limited, due to the lack of publicly available data. Without

a doubt, the scale of which the above mentioned NGOs work is hardly comparable, but even in the case of

Two Step, it is actually possible to achieve better results – for example, whereas the West London Mission,

based in West London, and its Day Centre service managed to refer 378 users to accommodation or other

accommodation schemes in the financial year 2011/2012, the Two Step project achieved better results with

housing about 429 (this is an estimated for the financial year 2011/2012).

When the statistical profile of the Two Step clients is compared to other service users from other

charities, the general background in terms of age, gender exhibits only minor differences. However, when

compared to the statistics produced by St. Mungo’s, it appears that on average the latter deals the triple

number of vulnerable clients who disclose substance abuse problems, physical and mental health needs. In

addition, it appears that Thames Reach is used to dealing with a large amount of rough sleepers who have

had previously been convicted of an offence. Again, such patterns should be interpreted with caution due to

difference in terms of recording practices and the manner in which client assessment are conducted. It

certainly might be the case that the Two Step problems is dealing with clients whose housing support needs

are lower when compared to other services in the sector, but again, due to the limited resources of the

charity, a potential outreach towards clients with high-support needs might be counterproductive.

Unfortunately it was not possible to conduct a cross-comparison in terms of ethnicity, as the figures

generated from the statistical analysis over the 7-year period were incomplete. On the other hand, though our

analysis generated a good breakdown in terms of nationality, no such figures were available from any of the

other service providers.

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Emerging themes from Two Step

The Two Step process

An age of austerity and cutbacks has also had an impact on the way in which Two Step has to sustain

itself; this is principally through various small grants and Westminster council. However, given that those

small grants have started to diminish it means that Two Step, as well as other branches of Hope Worldwide

such as ODAAT, become reliant on local authorities which have quite specific conditions attached to who

they will support. The current situation of the housing market is characterised by diminished opportunities

for getting access to council accommodation along with more stringent qualification progresses, while on

the other hand the shrinking private accommodation market limits the number of private landlords who can

participate in the contracts. Because these landlords often want to know they will get their money, they are

often quite selective about clients meaning mostly low-to-medium level need clients are often placed into

accommodation. The dependency on local authority funding and external grants has resulted in more clients

being referred from Westminster whilst few referrals are made by other boroughs – conditions are to refer

from Westminster and are more likely to have a high-level of need. This means that high-level need clients

are prioritised and the low-level, which could develop into high-need, are often left on the waiting lists.

In the process of this evaluation, it seems that Westminster council as well as other charities such as

St Mungo’s, Crisis and Connexions in the borough, are applying increasing pressure to house many of their

homeless groups, some of whom are the street populations with the most problematic issues. From our

observations, Two Step seem to be managing this process well, and despite the fact they only accommodate

clients who are in receipt of JSA and who have ID, it seems that other services involved in assisting with

those processes are playing their role in this respect. We have found it rare that a client is referred and then

denied assistance because they don’t have these documents. However, the reverse of this could be that the

most problematic groups are simply not accessing the day centres or the frontline services.

The following graph indicates the number of single homeless persons housed by the Two Step

project over the period of 1993 to 2012 inclusive:

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Although the number of people housed in 2005 decreased, this has not had any significant impact on

the overall trend, which points towards a stable increase in the amount of single homeless people housed in

long-term accommodation. From our observations, Two Step seem to be managing the process of referrals

well, and despite the profile of their clients (adults, who are receiving benefits and who can provide

identification), the well-established reputation of Hope Worldwide among other non-governmental homeless

service providers, enables the charitable organisation to find a niche where its services are regarded as value

for money and effective at the same time. In addition, we have found it rare that a client is referred and then

denied assistance because they don’t have the documentation required by Two Step staff. However, the

reverse of this could be that the most problematic groups are simply not accessing the day centres or

frontline services and therefore are not coming to the attention of Two Step. Having performed a statistical

analysis on the hard-copies of client assessments forms (such a method has its limitations, as some files

might have been lost over the years), for the period 2006-2012 the Two Step programme secured

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accommodation for 2,250 users, of which 647, or less than a third had previously used a hostel or similar

accommodation services. The yearly breakdown is as follows:

Number of people who had used a hostel or other

homeless accommodation services

Valid percentage

34 (2006)

77 (2007)

86 (2008)

112 (2009)

108 (2010)

108 (2011)

122 (2012)

Overall = 647

18.8%

36.1%

36%

36%

27.9%

27.2%

28.5%

In the event of a client needing emergency accommodation, they are housed within an emergency

nightshelter, or alternatively, a sheltered accommodation with YMCA and Lea Bridge House (LBH). A third

option is the Hope Worldwide volunteers who support clients for a few days by providing them with a

temporary shelter – the StopOver service. The problem with LBH-based accommodation is that after a

specified period of time, clients using this service have to move on and it has not been uncommon for them

to be referred back to the Two Step programme. In terms of policy of operation, LBH and YMCA can also

be quire restrictive and exclusionary, especially to clients who have suffered from long-term homelessness

and have notable drugs and substance-use problems.

Once clients have been referred to the Two Step programme, an initial assessment is undertaken, in

order to determine individual needs and vulnerability. Clients are then matched with suitable private

accommodation through various landlords. While the assessment is designed to determine suitability, we

suspect that more often than not, clients are referred on a first come, first served basis which automatically

reshuffles the waiting list. As the private accommodation market itself is quite unstable, a sieve-like

approach is adopted, whereby people enrolled in the programme are required to phone in within two weeks

and inquire about possible accommodation. Although members of the working team in Two Step do make

attempts to get in touch with clients about possible accommodation, it is also the responsibility of the latter

to be actively involved in the process itself. Once accommodation has been secured, the key link between

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the client and the Long-Term Accommodation (LTA) is the private landlord who might or might not accept

a certain client, a decision-making process characterized by a significant amount of discretion and upon

which the programme itself has little influence or impact, apart from recommending an alternative client for

the same property.

Once a client has been found suitable for a specific accommodation and the property has been

secured, the case is closed; though this does not necessarily mean that a successful placement into LTA has

been made. Each client receives mentoring for an initial period of 6 months, in which he is allocated a

personal mentor with whom any issues with regards to the tenancy and personal problems can be discussed.

This serves as an early-problem identifier. Precautions are taken in order to reduce any potential conflicts

which might ensue due to rent arrears or debts (as it was demonstrated in the previous section of the

evaluation, about half of the clients referred had a history of debt and financial problems). One way of

protecting this process is that the client’s housing benefit is paid directly into the landlord’s account thereby

ensuring the property is secured. Such a safety-net and the signing of a tenancy agreement between the

landlord and the client served as future safeguards. Beyond the point of LTA-resolved cases, however, it

becomes difficult to track the progress of the client unless an attempt to contact the private landlord has been

made. In the cases where potential problems might occur in the future, usually the private landlords are the

ones who provide feedback to Two Step staff, but a point of contact can also be made by the recently housed

clients either directly or on behalf of them by their mentor.

Due to the nature of the service, the properties in the majority of the cases are distributed on a first

come, first served basis. However, it is also possible for several clients to attend a viewing of a property and

only after the private landlord has chosen the most suitable candidate, a tenancy agreement is signed. One

drawback of this that in time it might accumulate a backlog of clients on waiting lists, especially in the

current housing climate where the single homeless are not on the priority agenda. In order to overcome this,

Two Step staff relies on their well-established relationship with other charities and services within the

housing sector. In addition, clients are also advised to keep a regular contact with the service – in the cases

where no contact has been made with any member of the Two Step programme within a 2 week period, it is

assumed that the client no longer requires their services. From what we have observed, the Two Step

workers are quite proactive in how they contact clients on the waiting list and this is assisted by a general

assumption that clients keep the same contact details. Beyond this, it is almost impossible to trace them.

Increasingly, clients who have contacted the service have also been provided with an advice of how to find

their own place in an area which their consider to be most suitable for them – such innovative techniques

should be more than welcomed, having in mind the changes in the benefits system and the restrictions

placed on the single homeless populations. Inquiries made in 2011 by Two Step staff to their landlords prior

to the changes in the benefits system indicated that 90% of all Hope Worldwide landlords would not house

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under 35s because of HB changes. And when compared to the data analysed from the previous years, it can

be argued that 1 in 4 (rising to nearly 1 in 3 in 2012) of all the homeless people housed by the programme

would have been made homeless again. Such policies are counter-productive in the both the short and long-

term periods, however it is yet to be seen what the full impact of these changes will be, as far as the Two

Step programme and its clients are concerned.

Communication

From our observations of the day-to-day functioning of TwoStep, we can conclude that the level of

intra-agency (internal) and inter-agency (external) seems quite organised. We put this down to the clear

division of labour by which the staff and the volunteers occupy. In addition, we would like to draw specific

attention to the debriefing sessions which take place every week. They serve to provide an overview of the

week and to discuss how many people have been houses, any potential problems which might have occurred

throughout the week and relations with landlords; the latter in particular seems important because they are

more or less dependent on them for the smooth running of the service. We conclude therefore that this

opportunity to discuss these issues and keep the staff included in latest developments is an important part of

ensuring that the process functions efficiently.

Issues of data management

We are aware that TwoStep are in the process of merging certain datasets because previous ones

overlapped. For example, the telephone enquiry sheet, which is the first point of contact, had a separate

database on a protected server to the referral forms which were completed on paper forms when clients

attended the service. This had lead to some volunteers entering the same data twice or even three times.

However, this has been resolved by deleting old files and matching the telephone enquiries with the

assessment number. To our knowledge, this is up to date. The difficulty is that because maintaining the

efficiency of this operation relies primarily on volunteers, when there is a shortage of volunteers, the data is

not entered and the workload increases. Similarly, when a case is closed, there are no resources to follow up

to a) ensure the client is still in accommodation and b) how they are coping with the transition. Although we

have had preliminary talks with private landlord, the analysis of the interviews is still in its initial state. We

acknowledge that this may be beyond the capacity of Two Step to undertake these additional duties.

Unique support

From the time spent in Two Step and from our informal discussions with by clients and staff, we can

conclude that the service provides invaluable support to those who are able to access it. We have already

discussed how the service might be limited but this is not the service’s fault per se but more how the

governance of funding contracts determines who gets what form of help. Despite the limited capacity to

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‘help every homeless person’, the staff know what they are doing, how processes work and are well aware of

policy changes which affect how they have to operate. To their commendation, it is the way in which they

have kept in touch with these issues which is a key feature of their survival where other services have run

aground. Client satisfaction seems generally high as, on a day-to-day level, we see little aggravation and

arguments between staff and clients.

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Profile of Clients

Following the statistical analysis and after generating a profile of the Two Step users, a random sample of a

100 housed clients was taken out in order to assess the success of the programme, evaluate its intervention

and identify potential areas for improvement. The participants of the sample were invited to participate in

the evaluation of the service by providing answers to a set of questions in a semi-structured interviews

scenario. Prior to the interviews taking place, all participants were advised that their identity and the data

collected were completely anonymous and the research team would try and prevent any disclose of that of

them unless this is found in obstruction to Hope Worldwide interests. The breakdown ratio in terms of

gender was as follows:

Gender

Frequency Percent Valid Percent

Cumulative

Percent

Valid Male 91 91.0 91.0 91.0

Female 9 9.0 9.0 100.0

Total 100 100.0 100.0

Of these, about 6% were in the 18-25 year-olds group, 18% were in the 26-35 year-olds group, 27%

in the 36-45 year-olds group, 36% in the 46-55 year-olds group and 12% in the 56-65 year-olds group.

Having in mind the recent changes in the LHA entitlements per individuals and raising the age for the single

homeless person’s entitlement to self-sufficient accommodation, it is clear from the data why nearly ¾ of the

sample is above the age of 35, a shift in the housing policy of the Two Step programme which corresponds

to the goals set by the current government.

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At the time prior to being housed with one of the landlord of the Two Step programme, more than a fourth

of the clients were living in hostels and nearly three-fifths were either sleeping in a night shelter, rough

sleeping on the streets or relying on their close friends. 80% of the sample considered themselves as being

homeless at the time, with nearly 40% being homeless for less than a month, 27% were homeless for a

period of between 1 to 6 months; 12% were homeless for a period of 7 months to 1 year; another 12% for a

period of 1 to 2 years; 9% were experiencing homelessness for a period of more than 2 years.

Current place of residence


Cumulative

Percent

Valid Missing data 1 1.0 1.0 1.0

cousin's home 1 1.0 1.0 2.0

friend's place 22 22.0 22.0 24.0

hostel 26 26.0 26.0 50.0

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By far, the most reason which led to homelessness was job loss (30%), followed by the breakdown of

relationships (15%) and financial difficulties (9%).

night shelter 19 19.0 19.0 69.0

PR 5 5.0 5.0 74.0

rough sleeping 22 22.0 22.0 96.0

sister's home 1 1.0 1.0 97.0

sofa surfing 2 2.0 2.0 99.0

supported housing 1 1.0 1.0 100.0

Total 100 100.0 100.0

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¼ of the sample had previously resided in the London Borough of Westminster, and nearly a fifth in the

London borough of Islington. Another 12% had previously resided in the London Borough of Hackney and

an additional 11% had previously resided in the London Borough of Haringey.

Borough of Origin


Cumulative

Percent


Aldgate 1 1.0 1.0 2.0

Barnet 2 2.0 2.0 4.0

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Brent 1 1.0 1.0 5.0

Bromley 2 2.0 2.0 7.0

Camden 2 2.0 2.0 9.0

Croydon 2 2.0 2.0 11.0

Enfield 2 2.0 2.0 13.0

Hackney 12 12.0 12.0 25.0

Hammersmith and Fulham 4 4.0 4.0 29.0

Haringey 11 11.0 11.0 40.0

Hounslow 1 1.0 1.0 41.0

Islington 18 18.0 18.0 59.0

Kensington and Chelsea 1 1.0 1.0 60.0

Kingston 1 1.0 1.0 61.0

Lambeth 2 2.0 2.0 63.0

Lewisham 2 2.0 2.0 65.0

Manchester 1 1.0 1.0 66.0

Newham 3 3.0 3.0 69.0

Southwark 2 2.0 2.0 71.0

Tower Hamlets 2 2.0 2.0 73.0

Waltham Forest 2 2.0 2.0 75.0

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Westminster 25 25.0 25.0 100.0

Total 100 100.0 100.0

In terms of ethnic background, at the time of the interviews, a third of the respondents defined themselves as

White British, nearly a fourth as Black African and about 15% as Black British.

Nearly a half of the respondents who had been housed with Two Step landlords were

by nationality British (46%)

Nationality


Cumulative

Percent


Algerian 4 4.0 4.0 6.0

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British 46 46.0 46.0 52.0

Chile 1 1.0 1.0 53.0

Chinese 1 1.0 1.0 54.0

Congolese 1 1.0 1.0 55.0

Czech 1 1.0 1.0 56.0

Eritrean 5 5.0 5.0 61.0

Estonian 1 1.0 1.0 62.0

Ethiopian 1 1.0 1.0 63.0

Filipino 2 2.0 2.0 65.0

French 1 1.0 1.0 66.0

Ghana 1 1.0 1.0 67.0

Hungarian 3 3.0 3.0 70.0

Irish 1 1.0 1.0 71.0

Italian 3 3.0 3.0 74.0

Kenyan 1 1.0 1.0 75.0

Kosovan 1 1.0 1.0 76.0

Latvian 2 2.0 2.0 78.0

Lithuanian 2 2.0 2.0 80.0

Nigerian 2 2.0 2.0 82.0

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Polish 5 5.0 5.0 87.0

Portuguese 1 1.0 1.0 88.0

Russian 1 1.0 1.0 89.0

Scottish 1 1.0 1.0 90.0

Senegal 1 1.0 1.0 91.0

Slovakian 1 1.0 1.0 92.0

Somalian 2 2.0 2.0 94.0

South African 1 1.0 1.0 95.0

Spanish 1 1.0 1.0 96.0

Sri Lanka 1 1.0 1.0 97.0

Swedish 1 1.0 1.0 98.0

Turkish 1 1.0 1.0 99.0

Uganda 1 1.0 1.0 100.0

Total 100 100.0 100.0

Less than a third (29%) of the participants disclosed to having any physical needs:

Physical needs


Cumulative

Percent

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Valid Arthritis, suffered a heart

attack 1 1.0 1.0 1.0

Asthma 2 2.0 2.0 3.0

Asthma, thyroid problems,

high blood pressure 1 1.0 1.0 4.0

Back problems 3 3.0 3.0 7.0

Back problems and high

blood pressure 1 1.0 1.0 8.0

Bladder problems 1 1.0 1.0 9.0

bowl syndrome, asthma 1 1.0 1.0 10.0

brain damage 1 1.0 1.0 11.0

Chest infection 1 1.0 1.0 12.0

Chest problems 1 1.0 1.0 13.0

Diabetic 1 1.0 1.0 14.0

Diabetic, High Blood

Pressure, Asthma 1 1.0 1.0 15.0

Epilepsy 4 4.0 4.0 19.0

High Blood Pressure 2 2.0 2.0 21.0

High Blood Pressure,

Kidney Problems 1 1.0 1.0 22.0

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Kidney and hearing

problems 1 1.0 1.0 23.0

Low blood count, suffered

two strokes 1 1.0 1.0 24.0

Lung and kidney problems 1 1.0 1.0 25.0

N/A 71 71.0 71.0 96.0

Pain in arm and leg joints 2 2.0 2.0 98.0

Skin allergy 1 1.0 1.0 99.0

Throat infection 1 1.0 1.0 100.0

Total 100 100.0 100.0

A fifth of the respondents ( 20%) confessed to having mental health problems, predominantly a form of

Depression (17%) or occurring in a complex with other mental health needs.

Mental Health Problems


Cumulative

Percent

Valid Depression 17 17.0 17.0 17.0

Depression and Anxiety 1 1.0 1.0 18.0

Depression, Anxiety, Panic

Attacks 1 1.0 1.0 19.0

N/A 80 80.0 80.0 99.0

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Stress Disorder 1 1.0 1.0 100.0

Total 100 100.0 100.0

About a fourth of all respondents (24%) acknowledged they had problems with the abuse of substances with

alcohol accounting for nearly half of the responses, occurring either as a single problem, or in conjugation

with Class A and B drugs.

Details of drug use


Cumulative

Percent

Valid Alcohol 7 7.0 7.0 7.0

Alcohol - been in rehab 1 1.0 1.0 8.0

Alcohol and Cannabis 1 1.0 1.0 9.0

Alcohol, Cannabis and

Cocaine 1 1.0 1.0 10.0

Alcohol, Cocaine and

Ecstasy 1 1.0 1.0 11.0

Cannabis 3 3.0 3.0 14.0

Cannabis and Alcohol 1 1.0 1.0 15.0

Cannabis and Crack Cocaine 1 1.0 1.0 16.0

Crack cocaine and alcohol in

the past 1 1.0 1.0 17.0

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Crack cocaine and cannabis

in the past 1 1.0 1.0 18.0

Crack Cocaine, Cannabis,

Alcohol 1 1.0 1.0 19.0

Heroin 2 2.0 2.0 21.0

N/A 77 77.0 77.0 98.0

Speed 1 1.0 1.0 99.0

used to smoke cannabis 1 1.0 1.0 100.0

Total 100 100.0 100.0

Although 26% of all the respondents were living in hostels prior to being housed by the Two Step

programme, the percentage of the hostels users increased significantly to 37% of the whole sample when

their life histories were examined. Only one person had previously used any rehab services and 58% of all

the housed individuals were having a form of personal debt. 10 of the respondents had previous convictions,

4 for possession of drugs and 6 for a form of violent crime. Of these, 5 had served a custodial sentence.

Prior to being housed with Two Step, half of the sample of respondents had not used any other

homelessness services, and of those who had been referred via another service, No Second Night Out

accounted for a fifth of all referrals.

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The overall majority of the respondents considered the services provided by the Two Step

programme as Good-to-Exceptional (about 88%), and considered the staff as extremely helpful, organised,

understanding and dedicated to their work, with 90% of all participants describing their treatment on behalf

of the staff as Good-to-Exceptional. In 90% of the cases, the programme managed to secure accommodation

for its clients in less than a month and 60 per cent of the respondents were happy with the accommodation

found at the time. 94 of the clients did not experience any form of homelessness after that, with 70 renewing

their tenancies with landlords and another 27 moving into another property which they considered more

suitable for them.

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Overall, nearly all clients who had used the housing services provided by the Two Step programme

have successfully resolved the housing problems. However, putting an end to homelessness should also be

combined with other client-orientated programs focusing of employability skills development, job market

awareness and effectively, securing the re-integration of the clients back into the labour market. A

cumulative 18% of the respondents acknowledged that the property they were currently housed in was too

expensive for them as they were unemployed. Although the LHA entitlements were sufficient to maintain

the tenancy in the long run, some of the properties also required an additional disposable income in order to

pay some of the bills which were not included in the initial tenancy agreement. As Kay, one of respondents,

shared: ‘Although I have preserved my tenancy here, I am not happy with the way the property itself is run,

as the other tenants are not paying any bills. Also, I am currently looking for work at the moment, but I

know that if I start working, that will cost me my accommodation as I will not be entitled to any benefits…

Like I am in a trap.’ Anthony, who had similar views, described his situation as ‘trapped in a vicious cycle

and can’t find a way out of it’.

Another problem which some of the clients, such as Andres, John and Ike had, was the location of

the properties. The majority of Two Step landlords have properties in the northern or eastern part of London

and despite that nearly a quarter of the clients were coming from the Hackney and Haringey boroughs, many

of the clients had to get accustomed to near neighbourhoods where they had not previously resided.

Unfortunately, the programme personnel at Two Step have little power over choosing where potential

properties are based.

But even in the cases where clients have been re-housed in their desired areas, co-habiting with other

service users can be problematic for them. One notable case is Sulejman, who was not getting on well with

other fellow tenants at the property he was housed in: ‘I think the Two Step service should be looking for

better properties and the landlords who are letting and managing these same properties should be taking

more responsibilities and try to maintain them. Although I am grateful what Two Step did for me, I was

homeless for a month after I lost my job, I consider my current property to be poor, as it is not maintained

and I also have problems with the other tenants – they are ex-convicts, drug addicts and I’m not used to

living with people like that. I tried to call Gavin about it over Christmas, but he never got back to me or

replied and the problems which I had have not been resolved since then.’

Another service user, Samuel, aged 56 also made several comments with regards to the state of his

accommodation: ‘Don’t get me wrong, I am more than pleased with the Two Step service and staff, but the

place they housed me in is unhealthy, I already made a formal complaint to the council but they haven’t

responded to me yet. The room they got me in is too small for me, I’ve got plenty of personal belongings and

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I have to keep it in the cupboard. The room would have been more suitable for a younger personal, you

know what I mean. As I said, it’s too small and though there was a room available on the upper floor, it was

given to a Eastern European guy who drinks, though moderately. He’s a nice chap, maintains the property

and all that, looks after it, even changed the mat in front of the door the other day … I started a job recently

as well, that’s another reason why I want to move out. My job is too far, I have to catch sometimes 3 or 4

buses to get to work, so I’m planning to move out by the end of the week.’ Joel, aged 28 who also had to

travel frequently due to his use of other services, also considered that his property was ‘too far’ and

therefore was looking for other properties.

Another of service users, Roberto, aged 36, disclosed that he was ‘extremely happy the

accommodation, it’s a really nice, quiet area, the neighbours are okay, they even invited me to a barbecue

the other weekend. But the neighbour next to our house – you simply can’t get on well with him. He wants us

out of the house and even had some of the people sign a petition to evict us all from the house. I know what

he’s trying to do – he wants us out of the house so it can be sold to some elderly couple…’

From the information disclosed by the sample of clients, several potential points of improvement

were identified. Firstly, though the Two Step is currently providing a first-class service in terms of housing

and moving on, a beneficial step forward would be to contact other charities or governmental bodies that

address the problems of unemployment so that the transition to job market could be more expedient and less

stressful. Also, the following evaluation would like to recommend the checking-up of already housed

individuals over certain periods of time so that any potential problems which might arise during a client’s

tenancy might be resolved. The following research evaluation acknowledges the scarcity of available

housing options within the wider market at the moment, a climate which unfortunately is counterproductive

to the efforts placed by Two Step to reintegrate the homeless straight back into the neighbourhoods which

they formerly inhabited. A potential solution would be to encourage the proactivity of the service users by

empowering them to identify potential landlords and accommodation in areas they are familiar with.

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Perspectives from Landlords

With the current crisis in council-provided accommodation, many of the non-governmental and non-

for-profit organisations tackling homelessness and the challenges it presents, have increasingly turned to

private landlords in order to secure accommodation for their service users. And the Two Step programme is

no exception. The restructuring of the housing market as well as the changes in LHA from April 2013 have

led to the private landlords being turned one of the key stakeholders and solution providers for both short-

and long-term homelessness. Therefore, their perspectives and points of view should be considered and

placed alongside the problems of the homeless, in order to secure equilibrium between the two. The

following section will consider several perspectives as provided by landlords, who have previously worked

with, or at the current time of writing, still work with the Two Step programme and provide accommodation

for its service users.

Overall, 23 landlords and letting agencies were approached on two separate occasions with open-

ended questionnaires, in order to provide the respondents with the flexibility to answer any of the questions

in the most comprehensive manner. However, the response rate for these was poor, with only three of the

landlords willing to participate in the evaluation. Interviews with Two Step staff releaved that many of the

landlords were extremely cautious in their selection of tenants who had prior history of homelessness,

previous convictions, a history of substance and drug abuse and were of certain ethnic background, all due

to their previous experience of working with people whom had been difficult to work it.

A background inquiry into the relationship between Two Step staff and their landlords revealed a

good and close relationship between them, in the some of the cases for periods of 5 to 10 years. These long-

term relations, the presence of mutual trust and understanding, but also the small number of landlords (when

compared to other homelessness NGOs) have all made a significant contribution towards the numbers of

homeless people to which Hope Worldwide has provided housing in the period 2006-2012.

Although Two Step personnel is quite proactive in their methods for seeking new potential landlords,

in some of the cases, the introduction of the Two Step programme is done on behalf of service users

themselves. This is what one of the landlords shared in his questionnaire: ‘I first learnt of Two Step from

one of my existing tenant who was referred to me by Green House’. Since his introduction to the programme

and its staff, he has continued to work solely with Hope Worldwide, without offering his services to any

other homelessness charities. ‘I have around 40 units which are solely occupied by referrals from Two Step.

I used to deal with Green House and one other organisation from west London but since coming in to

contact with Two Step. I have not dealt with anyone else except Two Step. All the staff from Two Step are

very polite, courteous, very, very helpful and are very friendly, especially Gavin and Tommy. I take on

mostly over 35s due to HB regulations not paying self-contained rates I have few single rooms but not many

Page | 96

so I am not able help under 35s as much as I would like to. I believe Two Step is doing a wonderful job.

Whenever I have a vacant unit I ring Gavin and he sends out tenants from his list within hours and not days

or weeks he is very thorough, communicates well and anything I need in writing he provides it without

delay. If I have ever problems with tenants he and Tommy are always there to sort out problems Tommy

even visits problematic tenants also liaises with Housing Benefit sections of local Borough if there are issues

with payments. Gavin is also very prompt with answering calls if he is busy attending to clients he will

always calls back often I note they work late in the evenings they are dedicated individuals. Once tenants

are housed they ring me regularly to find out how everyone is and is there anything they can do to help me

and tenants. I had few charities approach me to work with them to provide accommodation but as long Two

Step is there I would not work with any one.’

In other cases, landlords have come across the Two Step programme via local councils, such as

Islington Council. One of the newest landlords, which the programme has within the area, shared that she

considered Two Step ‘a safer option than direct with the council, with two step I would have do someone to

turn to if things got difficult’. She also had previous experience of working with other housing services who

deal with the homeless, but Hope Worldwide provided her with more security, due to the fact that ‘the staff

at Two Step Two step choose carefully who they suggest, also, they are very professional and friendly,

always there to help’. The one problem she encountered, though, was with regards to the clarity in which the

programme was presented to her at the beginning, making it difficult for her to comprehend the process in

its entirety.

In addition, the introduction of the Two Step programme was also achieved through its promotion by

other major homelessness NGOs, such as St. Mungo’s. This was the case when the third of the landlords

was introduced to the programme: ‘We came across Two Step through St. Mungo’s homeless charity back in

2009/ We have over 300 properties and we normally accept homeless people who are in urgent need of

accommodation. We decided to take up contracts from Two Step as they were extremely helpful and flexible

in how we wanted to house our residents, they provided us with the paperwork we required efficiently, so the

housing process ran smoothly. Although we have worked with other charities, Two Step were very flexible

and catered to our needs to ensure that both tenants and landlord are happy, something we didn’t always

get from the others (charities). We didn’t know the programme and its staff in their entirety and complexity,

as we mainly dealt with Tommy Cloherty and Gavin Bristow. They are both a great asset to Two Step, as

they were extremely knowledgeable about the homeless market and were efficient with all our requests’.

Although the findings of the open-ended questionnaires cannot be generalized to the other landlords,

who did not express willingness to be participants in the evaluation, nevertheless, they are quite informative.

As it is evident, one of the unique features about the Two Step programme and its staff members is the

feeling of security, which they provide to their landlords and the ongoing support which they offer after a

Page | 97

successful placement in accommodation has been made. This fact is of major importance as to the operation

of the service, as it guarantees that as soon as a new property has become available on the market, it will be

offered to service users who have been in contact with the programme and its personnel, thus the

organisation will be able to secure more funding for its future operation. The popularity of Hope Worldwide

both among other homelessness charities and governmental bodies also plays a significant role in the

decision-making process of potential landlords who are not acquainted with the process of providing

housing for the homeless. Thus, the positive image of the charity, its successes and value-for-money service

should continue to be promoted in order to attract future landlords. One possible of way of such promotion

could be by engaging current landlords in the process of promotion and seeking for new landlords,

particularly those with whom long-term relationships exist and where trust is not an issue at stake.

Page | 98

Conclusion and Future Recommendations

The aim of the following report was to present a thorough and comprehensive evaluation of the Two

Step housing programme at Hope Worldwide. Using mixed methods quantitative and qualitative research

tools, the following evaluation cross-compared the service against other similar services within the sector.

When the statistical profile for Two Step clients is compared to other service users from other charities, the

general background in terms of age, gender exhibits only minor differences. However, when compared to

the statistics produced by St. Mungo’s, it appears that on average the latter deals the triple number of

vulnerable clients who disclose substance abuse problems, physical and mental health needs. In addition, it

appears that Thames Reach is used to dealing with a large amount of rough sleepers who have had

previously been convicted of an offence. Such patterns should be interpreted with caution due to difference

in terms of recording practices and the manner in which client assessment are conducted. It certainly might

be the case that the Two Step problems is dealing with clients whose housing support needs are lower when

compared to other services in the sector, but again, due to the limited resources of the charity, a potential

outreach towards clients with high-support needs might be counterproductive. Unfortunately it was not

possible to conduct a cross-comparison in terms of ethnicity, as the figures generated from the statistical

analysis over the 7-year period were incomplete. On the other hand, though our analysis generated a good

breakdown in terms of nationality, no such figures were available from any of the other service providers.

During our visits at the Two Step facilities, we noted some problems with the data management. In

the late 2012 the staff at Two Step was in the process of merging certain datasets because previous ones

overlapped. For example, the telephone enquiry sheet, which is the first point of contact, had a separate

database on a protected server to the referral forms which were completed on paper forms when clients

attended the service. This had led to some volunteers entering the same data twice or even three times.

However, this has been resolved by deleting old files and matching the telephone enquiries with the

assessment number. To our knowledge, this is up to date. The difficulty is that because maintaining the

efficiency of this operation relies primarily on volunteers, when there is a shortage of volunteers, the data is

not entered and the workload increases. Similarly, when a case is closed, there are no resources to follow up

to a) ensure the client is still in accommodation and b) how they are coping with the transition.

From the time spent in Two Step and from our informal discussions with by clients and staff, we can

conclude that the service provides invaluable support to those who are able to access it. We have already

discussed how the service might be limited but this is not the service’s fault per se but more how the

governance of funding contracts determines who gets what form of help. Despite the limited capacity to

‘help every homeless person’, the staff know what they are doing, how processes work and are well aware of

policy changes which affect how they have to operate. To their commendation, it is the way in which they

Page | 99

have kept in touch with these issues which is a key feature of their survival where other services have run

aground. Client satisfaction seems generally high as, on a day-to-day level, we see little aggravation and

arguments between staff and clients.

From the information disclosed by the sample of clients, several potential points of improvement

were identified. Firstly, though the Two Step is currently providing a first-class service in terms of housing

and moving on, a beneficial step forward would be to contact other charities or governmental bodies that

address the problems of unemployment so that the transition to job market could be more expedient and less

stressful. Also, the following evaluation would like to recommend the checking-up of already housed

individuals over certain periods of time so that any potential problems which might arise during a client’s

tenancy might be resolved. The following research evaluation acknowledges the scarcity of available

housing options within the wider market at the moment, a climate which unfortunately is counterproductive

to the efforts placed by Two Step to reintegrate the homeless straight back into the neighbourhoods which

they formerly inhabited. A potential solution would be to encourage the proactivity of the service users by

empowering them to identify potential landlords and accommodation in areas they are familiar with.

As it is evident, one of the unique features about the Two Step programme and its staff members is

the feeling of security, which they provide to their landlords and the ongoing support which they offer after

a successful placement in accommodation has been made. This fact is of major importance as to the

operation of the service, as it guarantees that as soon as a new property has become available on the market,

it will be offered to service users who have been in contact with the programme and its personnel, thus the

organisation will be able to secure more funding for its future operation. The popularity of Hope Worldwide

both among other homelessness charities and governmental bodies also plays a significant role in the

decision-making process of potential landlords who are not acquainted with the process of providing

housing for the homeless. Thus, the positive image of the charity, its successes and value-for-money service

should continue to be promoted in order to attract future landlords. One possible of way of such promotion

could be by engaging current landlords in the process of promotion and seeking for new landlords,

particularly those with whom long-term relationships exist and where trust is not an issue at stake.

Page | 100

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Two Step Evaluation Report

Documents