This article first appeared in CIH's Housing magazine October 2008

Emma Hawkey discovers that with the right housing and support young people can achieve true independence.

In Hertfordshire, Samantha Jackson spent her childhood in care, and was homeless aged 16. Becky Musa* is 24, full-time manager of a private nursery in London, and living in her parent’s council flat because she can’t afford a home of her own. Ruth and Mark Parkinson* are newly-weds, struggling to pay the mortgage and rent on their share of a one bedroom flat on the outskirts of Cardiff. Chantal Ramsay* has been offered a paid apprenticeship which could offer her the chance to put debt and a difficult childhood behind her. But she fears that if anything goes wrong, without the safety net of benefits or a family to support her, she risks losing her housing association home.

At first glance, Sam, Becky, Ruth, Mark and Chantal don’t have much in common. But for all of them, the struggle to make the transition to adulthood and independence is being dominated by the issue of housing.

Even for young people with education, work and family support, there are housing pressures. Almost half now rely on the 'Bank of Mum and Dad' to help them onto the housing ladder. And only 20 per cent of under-25s are buying their own home, compared to 35 per cent in 1984.

While home ownership may be the government’s preferred option - and the natural aspiration for successful graduates - it’s not an easy option, even for a 21 year-old with all the qualifications required for a well-paid job. As one ex-student puts it: "I owe £16,000 for my student loan, not including interest and overdrafts. So the concept of buying a house is completely unrealistic to me".

At the other end of the spectrum, children brought up in care can face a ‘cliff edge’ when the financial support they receive from social services ends at 18. If they intend to go to university, the fact that they are already ‘in the system’ can be a barrier. Young people can’t remain in supported accommodation while studying full-time because of higher rents and no access to housing benefit. Not only that, but student accommodation (where it exists) is not usually available all year round, a big problem for 18 year-olds without a family home to return to.

At the moment, more than half of under-25s living independently rent in private accommodation where, according to advice agencies, their youth and inexperience means problems with budgeting, and landlords. Glen Lashley, 20, who has been homeless himself, is a member of the National Youth Reference Group, an initiative funded by Communities and Local Government and led by the charity St Basils. The group, made up of young people from around the country, advises local and central government on how best to engage and involve young people. Glen says: "A lot of [young people] are not ready to have their own accommodation, but they have no choice. Because of that, a lot of them lose their tenancies. A better support structure would be great."

Research this year from the Joseph Rowntree Foundation, entitled Youth Homelessness in the UK, found that the number of young people accepted as homeless has fallen in England and Wales in the last three years. However, at least 75,000 young people are still in contact with homelessness services every year, and government figures for those accepted as homeless in 2007 show over 8,000 involved ‘applicant aged 16 or 17’ - around one in 10.

Private rents are more expensive, a particular problem for young people who face restrictions on the amount of housing benefit they can receive. So it isn’t surprising that many would prefer the security and value of a social tenancy, although these are in short supply.

One housing professional confirms: "We are finding it increasingly difficult to resettle young people in appropriate and permanent accommodation. The decline in social housing (especially for single people), soaring house prices pushing up private rents and the appalling discrimination of Single Room Rent for under-25s mean young people do not have a genuine choice of accommodation."

Jean Templeton, chief executive of St Basils, one of the UK‘s largest agencies helping young homeless people (see case study) asks: "Too often, the housing ‘offer’ made to young people is conditional or time-barred. Why put that sort of burden on someone’s future?"

Many young people grappling with adult responsibilities complain about a catch 22 situation which means that they can’t afford to move out of benefits and into work.

Steve Hillman from the Foyer Federation explains: "For most people in Foyers, the only work they are able to get in the first instance are entry level jobs, which leave them £10-15 a week better off for working full time. This means there is little incentive for young people, many of whom will cite examples of people they know who started a job, fell behind with their rent and lost their home."

The government’s youth homelessness strategy includes initiatives to help young people develop life skills to help get on and sustain their tenancies, and sets targets to stop young people being placed in unsuitable accommodation such as B&B hotels. But this has led to an increased demand for places in supported accommodation specifically designed for young people. "You have to deal with the crisis and meet the target, but if you only deal with it at that level, then more and more young people will be in trouble," says Jean Templeton. "What happens to the over 17s? It sometimes takes time for the impact of legislative change to be felt."

Intensive rescue schemes are an expensive way forward. One in five young people leaving temporary accommodation will become homeless again, costing around £10,000 in housing and support. Ms Templeton believes the provision of housing for young people should be main stream. "You have to be almost homeless to get support. Young people tend to be invisible to housing policy, unless experiencing extreme vulnerability."

And even then, there is likely to be an emphasis on finding a young person somewhere to live, while any of the ordinary aspirations around training and work may be shunted right down the list of priorities.

Housing for young people, and their ability to pay for it in a sustainable way, should be at the centre of any framework strategy for housing - or welfare, or the economy. The CLG funded National Youth Reference Group (pictured on the cover) has sent delegates to a round table discussion with ministers to give their perspective on what works and what doesn’t in relation to housing and support services. The group is an opportunity for Glen, Samantha (see case study) and others to assist other young people and contribute to change.

Government is interested, and other current initiatives are promising. For example, the recent Welfare Reform Green Paper - No-one Written Off - proposed that the cut-off beyond which people can claim income support and housing benefit and study full-time should be raised from 20 to 21 years. "I hope there is a growing awareness that young people need long-term help and encouragement to fulfil their potential, as well as a roof over their heads," says Hilary Cheyne, a lecturer in life skills for homeless people aged 16-25 years. "The focus has moved to education, employment and support rather than just emergency accommodation. Increasingly, even if there is a place for a young person to stay to keep them off the street, it is often inappropriate. Many of our youngest clients have the most complex set of needs. They are encouraged to keep in contact with us, they know we are here to help and that they may need us for the long haul. They are young and need more than one chance to get things right."

A Housing Reform Green Paper planned for later this year will set out proposals for housing services and options to encourage people towards greater economic independence and social mobility - in response to John Hills’ report on the role and purpose of social housing. "For too long, young people haven’t featured in the legislative framework and that’s got to change," Ms Cheyne says.

*Names have been changed

CASE STUDY

GETTING ON: THE IMPORTANCE OF HOUSING, WITH SUPPORT

Why is it suddenly possible for a girl like Samantha Jackson to make a success of her life? She can answer that question with no hesitation: she moved into her own flat. "Housing is the main issue. If you have nowhere to live you feel down, you feel no-one wants to know you. When you’ve got your own place you feel more confident, you feel you’ve achieved something."

But getting there required more than a roof - support with an emphasis on life skills, personal responsibility and education.

Sam came out of care at 16, and returned to live with her mum, until domestic violence forced her out again. She was homeless for five years and unable to complete her college course. "I was pushed from pillar to post for five years because they didn’t know who was supposed to take responsibility for me," she says. "Now I’m in my own place, I feel more confident to go out there and redo my GCSEs and try to get on a course that will lead me to a career in counselling."

Samantha’s story may have been very different. Finding decent, affordable housing and sustaining a tenancy while moving into the world of work is a key step towards a successful future. But all too often, young people only come to the attention of housing and support services when they have already run into difficulties. And two fifths of statutory homelessness relates to young people between 16 and 25.

"Lots of support goes into young people who enter higher education but very little into those who do not," says Jean Templeton, chief executive of St Basils, a youth agency that uses housing to work with young people. St Basils provides accommodation (23 residential projects in the Midlands) and support, including training, access to advice or drug support, and help with budgeting, cooking and other life skills. "We set a high bar in terms of our expectations of young people, their aspirations and our belief in them," she says.

Jean Templeton says too many young people are struggling to make the transition from childhood to adulthood and independence, without any assistance. Samantha was lucky enough to find a home and plenty of tailored support through Herts Young Homeless Group. Ms Templeton continues: "Things have changed dramatically over the last few decades, in terms of social environment young people grow up in - the pace, family, friendship networks, methods of communication. Young people need to have the opportunity to try things out and make mistakes. With a supportive family around them this is usually possible. For thousands of other very young people, a mistake could mean losing their home and livelihood."

So how do you prevent the repeat homelessness experienced by many young people unable to lift themselves out of poverty? St Basils, with partner organisations including Ashram HA, Waterloo HA, Family Housing and Birmingham City Council, is developing a starter homes model for young people which could act as a bridge between care and a permanent settled future in work.

The scheme would make use of redundant social housing, or empty private sector stock. It would be different from other schemes because it would:

- Make the link between personal savings, personal investment and housing choice.

- Be affordable for young people, within communities, not isolated or separate.

- Include bespoke housing management for up to five years.

- Include an element of rent or other subsidised payment to be placed in a savings fund, match funded where possible, for young people to build up a deposit towards permanent housing.

- Include subsidy from partners to ensure rent or charge payment are low enough to reduce benefit dependency and help maintain sustainable employment.

See www.stbasils.org.uk for more details.

CASE STUDY

THE RIGHT MATCH IN SCOTLAND

One big problem for young people is the high cost of the private rented sector, where most of them end up. In West Lothian, the lottery-funded ‘Flatmates’ project was launched two years ago, and is attracting attention from local authorities all over the UK.

The project is run by the Cyrenians, and aims to increase the affordability of private rented sector (PRS) accommodation for young people (with low or no support needs) who are subject to single room rent restrictions, or stuck on benefits because they can‘t afford to get a job. "It’s a lot easier to work when you’re only paying half the rent," says Lorraine Gillies, senior service manager. "And there’s a shortage of one-bedroom properties in West Lothian."

Tenants come from various sources - including hostels. The scheme offers a rent deposit guarantee, but the bulk of time and money - 60 per cent - is spent on making sure that prospective flat mates are compatible. Once matched, tenants participate in ‘prepare to share‘ sessions to discuss potential problems. "This is not about emergency access, but sustainable accommodation," says Gillies. "If you get the right match in terms of tenants, then far less support is needed, so it’s a good investment. Tenancies last eight months on average, but that’s mainly because young people tend to move around a bit."

Cyrenians staff provide some advice and help with benefits for the first year.

Flatmates have separate short assured tenancy agreements, so that if one does move on, the other can stay in the property. Gillies says firm friendships have blossomed between strangers united by the project. "Tenants like it, they enjoy it. They also learn valuable life skills, cooking and eating together, jointly paying bills."

And although landlords were nervous at first – ‘two young`uns together, no thanks!’ - Gillies says the project has been a success.

CASE STUDY

MAKING THE LINK

For Will Nixon, director of operations at Aspire Housing, providing affordable and secure accommodation is not enough. Tackling worklessness among young people is just as important as helping them find somewhere to live. Which is why the social landlord has recently created one of the largest social enterprises in the country with the introduction of a training organisation into the registered social landlord group. Project Management (PM) is a training business which already delivers the Homeworks project - mainly funded by Stoke City Council - which provides training for young people on the Entry to Employment programme. This addresses basic skills issues, and incorporates a Citizenship programme and the opportunity to access full-time apprenticeships and employment. Seventy per cent of all trainees go on to pursue long-term training or permanent employment. This is what Will Joynson, 17, hopes for. A new Project Management recruit, he was working part-time at the local KFC, having dropped out of college before he finished his course. "I’m doing an apprenticeship in maintenance and landscaping, and going on a placement soon. I’m hoping it’ll end with a job, because it’s what I want to do."

Aspire Housing owns and manages 8,500 properties across North Staffordshire, transferred eight years ago from Newcastle-under-Lyme council.

Six weeks into the collaboration, Will Nixon says tenants are already asking to sign up. But although the link between work and home make the collaboration with Project Management a natural fit, he says the opportunities won‘t be limited to his tenants. "We’re keen to expand it to anyone in the area. We’ve been going into schools and talking to 10 and 11 year-olds."