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It has been almost a year since the Homelessness Act 2002 came into effect, yet it appears to have made little difference to some homeless people. This is despite its promises to transform the way local authorities with housing responsibilities tackle homelessness.

The act amended the responsibility of local housing authorities to accommodate unintentionally homeless people in priority need by replacing their previous two-year duty with an indefinite duty to provide accommodation until settled housing is available.

The homelessness priority need categories were also extended to cover five new client groups, including 16 and 17-year-olds. This excludes, however, care leavers who are covered by the Children (Leaving Care) Act 2000 and children in need covered by the Children Act 1989.

But a lack of appropriate housing means many councils are struggling to meet the requirement to give priority to 16 and 17-year-olds and consequently they are forced to place them in bed and breakfast accommodation. Last month homelessness agencies voiced their concerns about the welfare of young people being placed in B&Bs without support (news, page 14, 12 June).

How do teenagers cope with living in a B&B? Ruth Coleman is Hertsmere Homeless Project co-ordinator in Hertfordshire. "Being homeless, even in a B&B, is desperate," she says. "They feel very isolated and get closed into a world of four walls."

Hertsmere does not have emergency accommodation suitable for 16 and 17-year-olds, says Coleman. It has one hostel for young women, two other hostels, a night shelter for over-18s and no B&Bs. A nearby B&B, she adds, has refused to take under-18s after a previous placement broke down.

B&B accommodation is often of poor quality and can be too far from family and friends to maintain regular contact. On top of this, being in a B&B is often the first time people of this age have lived independently, which is why they need support, says Clare Rowntree, homelessness charity Centrepoint's national development unit manager for the south. They may also have mental health or substance misuse problems, exacerbated by their homelessness, that require addressing, she adds.

But, local authorities often don't have the necessary staff available to support 16 and 17-year olds. And even when appropriate support is available, actually getting it to them in B&Bs can be problematic, says Rowntree: "I've heard from support workers who won't go and visit these young people because they feel the environment is unsafe."

Alexandra Sinclair is the leader of the Ricochet project in Rotherham, operated by homelessness charity Shelter. The scheme, which has been running for two years, offers advice to 16 to 25 years olds at risk of becoming, or who are homeless. Half of the 320 clients it saw from July 2002 to June 2003 were aged 16 and 17.

She says it is often "the very chaotic" 16 and 17-year-olds who are placed in B&Bs, a move some of them like because there they are free to do what they want. But housing these clients without support in this type of accommodation can be harmful as they can be drawn into antisocial behaviour.

"It can be very dangerous for them because no risk assessment is carried out and they do not know other residents. They can be exposed to drugs and prostitution," says Sinclair.

Hambleton Council, a small rural local authority in north Yorkshire, is fortunate that its few B&B placements rarely break down, says housing services manager Alan Glew. It currently has three 16 and 17-years-olds in B&Bs, staying for an average of six weeks, because it transferred all its housing stock to a housing association 10 years ago.

"Some B&B placements operate almost like supported lodgings because of the relationship we have established with the proprietors," he says. "This contributes to the young person's sense of well-being and security."

In May, the government published a consultation document containing national minimum standards for B&Bs. The standards aim to back the government's commitment to ending the use of B&Bs for families with children by March 2004. How would councils respond if a similar target was introduced for 16 and 17-year-olds?


Belinda Gallup, acting asylum seeker programme manager at Sheffield Council, supports the idea: "No homeless vulnerable person should be in a B&B. Local authorities are increasingly in a difficult position and any target should be supported by additional assistance."

Coleman believes that if a target was introduced it would need to be supported by more resources: "There has to be resources put in to make sure the Homelessness Act is implanted properly."

Local authority housing departments should admit that 16 and 17-year-old homeless young people are a specialist area, and should develop local service agreements with agencies experienced at working with them, she adds.

Nicola Robinson, a Shelter policy officer, believes the government's current review of B&Bs should improve the situation, but isn't convinced that a target is the answer. "Local authorities may require a flexible approach. Those in rural areas may have limited alternatives available."

She would like to see multi-agency assessment panels - including social services and housing - established to assess the requirements of young people and provide for their housing needs.

Glew, meanwhile, recommends professionals from all statutory and voluntary services work proactively in a preventive role and raise awareness of the local situation with young people "before a crisis point is reached".

'I felt very alone, totally isolated'

Kai Carpenter is 17 and from Southampton. He left home a few months ago because of a family breakdown and is sleeping rough in central London. He was picked up by a contact and assessment team worker from homelessness charity The Connection at St Martin’s, which is near Trafalgar Square. The CAT worker could only place him in a B&B hotel because none of the local hostels had any space.

The B&B was like “a prison”, says Kai. His room was very small, with a bed, a portable television and a fridge that smelt. A cleaner visited daily but left the door unlocked and Kai worried that his possessions would be stolen. He shared the toilet and bathroom at the end of the corridor with the hotel’s nine other residents.

He found it hard to sleep because his room was hot and he did not feel safe. It was also noisy: “A guy would be shouting up at my window at one in the morning ‘I’m going to get you when you get out of there’.”

Kai says he felt “very alone, totally isolated” when he was in the B&B because he had no support and did not meet the other residents. He spent his time at the day centre for homeless young people run by The Connection at St Martin’s. He could buy cheap food there and obtain information about housing, health and vocational courses.

After three days in the B&B, Kai moved back on to the streets because he wanted some company. He says: “I would never consider moving back into a B&B.” The Connection at St Martin’s is now trying to find Kai a bed in an appropriate hostel while he continues to sleep rough.

Despite his experiences, Kai is still optimistic. He wants to get off the streets and be “just like other people” and get an education
and a job.