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NLF Housing Report 2016 - cover_Layout 1 26/11/2016 08:59 Page 1
Center for Independent Living
Carmichael House
North Brunswick Street
Dublin 7.
www.dublincil.org
+353 01 873 0455
“Nothing About Us Without Us”
2016 Leader Forum Housing Report Consultation with Center for Independent Living Leader Forum Members Reflecting on the National Housing Strategy for People with a Disability 2011 - 2020 Galway, Clare, Limerick, Offaly, Dublin, Sligo, Cork, Donegal and Leitrim. Center for Independent Living
Contents
Contents ......................................................................................................1
Section 1: Introduction ................................................................................2
1.1 Introduction .......................................................................................2
1.2 The Center for Independent Living.....................................................2
1.3 The Leader Forum...............................................................................2
1.4 Leader Forum Consultation Process ...................................................3
Section 11: Policy Context and Background ................................................4
2.1 Policy Context ....................................................................................4
2.2 National Housing Policy......................................................................4
2.3 The National Housing Strategy for People with a Disability ...............5
2.4 A Right to Housing .............................................................................6
Section III: Analysis and Feedback ............................................................. 7
3.1 Transition to Independent Living .......................................................7
3.2 Supported Living ................................................................................9
3.3 Social Housing ..................................................................................10
3.4 Housing Associations........................................................................13
3.5 Housing Adaptation Grants ..............................................................14
3.6 Rented Housing ................................................................................16
3.7 Property Ownership .........................................................................17
3.8 Other Suggestions ............................................................................18
Section IV: Conclusions .............................................................................20
4.1 Monitoring and Implementation ......................................................20
4.2 Recommendations ............................................................................20
Appendix 1 Leader Forum Consultation Feedback Questions – Housing ..22
1Section 1: Introduction
1.1 Introduction
The purpose of this report is to gather the learning, experience and knowledge of
members of the Center for Independent Living on the theme of housing and to use
that intelligence to make recommendations to the various stakeholders based on the
lived experience of disability. This report will be used as a tool for both the Center for
Independent Living as an organisation and for members to advocate for a housing
strategy, legislation, services and supports that are designed and implemented in
such a way as to meet the expressed needs of people living with a disability.
The recently published Government Housing Strategy ‘Rebuilding Ireland,’ is very
disappointing. It is a missed opportunity, to address any of the serious issues
concerning the lack of adequate housing for people with disabilities.
That it failed to deal in any meaningful way, with housing for people with disabilities
is very surprising given the National Disability Inclusion Strategy and especially the
Governments commitments to Deinstitutionalisation therein. Furthermore ‘rebuilding
Ireland’ doesn’t even mention the UN Convention of the rights of persons with a
disability. Which amongst other provisions provides for people with disabilities “to
choose their place of residence”.
1.2 The Center for Independent Living
The Center for Independent Living (CIL) was established in 1992 as a user-led
organisation and is committed to the recognition of people with disabilities as equal
citizens and to their achieving equal membership of society. This includes the ability
to make informed decisions about our own lives in accordance with individual needs
and lifestyle choices, to design and develop our own services and to achieve equality
of experience through consensus, respect and the valuing of all.
The Center for Independent Living is the national representative and advocacy voice
of 22 regional Centers for Independent Living around the country and it strives to
ensure that the voice of people with a disability is listened to at policymaking and
service provision levels.
1.3 The Leader Forum
A Leader Forum is a collective of people with disabilities who share common goals
and experiences and who come together to examine how policies, services and
provision might be organised to best meet the needs of people with a disability.
The purpose of the Leader Forum is to offer Leaders, members of CIL, the
opportunity to come together to share peer support and to advocate for equality and
social justice based on the lived experience of disability. Leader Forum groups meet
both on a county basis and at national level to address inequality and to promote the
2social inclusion of people with disabilities. The Leader Forum acts as a space to
empower the voices of members and to provide a unified voice for Leaders.
1.4 Leader Forum Consultation Process
Through the consultation process, Leader Forum groups are offered an opportunity
each month to inform research. Leader Forum members are given the opportunity to
direct what issues should be prioritized for research. They are asked a series of
questions each month on a priority topic. Their feedback is collated into a report,
which CIL uses when representing the Leader Forum at national level. This report will
be available to all Leader Forum members and Leader Forum members will be
updated on progress made and on actions taken by the Center for Independent
Living on the concerns and issues raised. Support and recommendations for action at
local level are made also.
The first theme that the Leader Forum groups have chosen to consult on is Housing.
The Leader Forum members wish to have their voices heard and their experiences
inform a new National Housing Strategy for People with a Disability. The following
report is the collated feedback from members on this issue.
3Section 11: Policy Context and Background
2.1 Policy Context
The National Housing Strategy was developed against a background of government
policy, international declarations on rights and current legislation, including:
- National Disability Strategy 2004
- The Disability Act 2005
- Successive equality legislation including the Equality Act 2004
- Housing (Miscellaneous Provisions) Act 2009
- UN Convention on the Rights of People with Disabilities 2006
- Review of Disability Services under the Value for Money and Policy Review
Initiative 2009 2
̶ 011
- Time to Move on from Congregated Settings: The Report of the Congregated
Settings Working Group June 2011
- The Way Home: A Strategy to Address Adult Homelessness in Ireland
2008 ̶2013
- A Vision for Change: Report of the Expert Group on Mental Health Policy.
2.2 National Housing Policy
The National Housing Policy is set out in the housing policy statement that was
launched in June 2011. The overall strategic objective is to enable all households to
access good-quality housing that is appropriate to household circumstances and in
their particular community of choice.
A summary of measures outlined in the policy statement are:
• More equitable treatment of housing tenure
• Maximizing the delivery of social housing supports within the resources
available
• Transfer of responsibility for long-term recipients of rent supplement to local
authorities
• New mechanisms for the delivery of permanent social housing
• The standing down of all affordable housing schemes
• Formal review of Part V of the Planning and Development Act 2000 (housing
supply)
• Publication of a National Housing Strategy for People with a Disability
• Delivery of housing supports for households with special needs
• Creating an enabling regulatory framework to support the increasingly
prominent role of the voluntary and co-operative sector in housing delivery
• The implementation of measures to tackle anti-social behaviour across all
housing tenures.
The National Housing Policy contained the Housing Strategy for People with a
Disability
2011–2016. This policy has been extended to 2020.
42.3 The National Housing Strategy for People with a Disability
The National Housing Strategy for People with a Disability was published in October
2011 by the Department of the Environment, Community and Local Government and
the Department of Health. The strategy outlines the broad proposals and objectives
involved in effectively addressing the housing and related support needs of people
with disabilities. The strategy sets out an understanding of the housing and related
support needs of people with disabilities and strategically plans for an integrated
response to those needs. The National Housing Strategy for People with a Disability
lays out a framework for the delivery of housing for people with disabilities through
mainstream housing policy. The strategy places emphasis on those living in
“congregated settings” and people with mental health illness.
The overall vision of the Housing Strategy for People with a Disability is:
“To facilitate access, for people with disabilities, to the appropriate range of housing
and
related support services, delivered in an integrated and sustainable manner, which
promotes equality of opportunity, individual choice and independent living.”
The National Housing Strategy for People with a Disability recognizes that people
with disabilities avail of a wide variety of housing tenures including:
- Living independently with housing provision from own resources
- Living independently in mainstream social housing settings with appropriate
support
- Living in community-based accommodation that may be specific to their need
or to their impairment.
Funding mechanisms and arrangements managed through local authorities include:
• Rental Accommodation Scheme (RAS)
• Social Housing Leasing Initiative (SHLI)
• Capital Advance Leasing Facility (CALF)
• Voluntary and co-operative housing (CAS)
• Private rental sector supported by rent supplement payments from the HSE
• Private housing adaptation grants.
The National Housing Strategy for People with Disabilities has been extended to 2020
there are nine strategic aims:
1. To promote and mainstream equality of access for people with a disability to
the full range of housing options available suited to individual and household
need
2. To develop national protocols and frameworks for effective inter-agency
co-operation that will facilitate person-centred delivery of housing and
relevant support services
3. To support people with a disability to live independently in their own homes
and communities, where appropriate
4. To address the specific housing needs of people with an intellectual and/or
physical disability, moving from congregated settings in line with good
5practice, including through the development of frameworks to facilitate
housing in the community
5. To address the specific housing needs of people with a mental health
disability, including through the development of frameworks to facilitate
housing in the community for people with low and medium support needs
moving from mental health facilities, in line with good practice
6. To consider good practice in the design, co-ordination and delivery of housing
and related supports
7. To facilitate people with a disability to access appropriate advice and
information in respect of their housing needs
8. To improve the collection and use of data and information regarding the
nature and extent of the housing needs of people with a disability
9. To provide a framework to support the delivery, monitoring and review of
agreed actions.
The National Implementation Framework includes the following aim:
“Housing authorities will develop specific strategies to meet the identified housing
needs of people with physical, intellectual, mental health and sensory disabilities
locally. These strategies will be informed by the assessments of housing need and
broader formalised consultation with relevant statutory agencies, service users
groups and disability organisations. These strategies will form an integral part of local
authority Housing Services Plans and will promote and support the delivery of
accommodation for people with disabilities using all appropriate housing supply
mechanisms.”
2.4 A Right to Housing
The right to adequate housing is recognized in the Covenant on Economic, Social and
Cultural Rights (CESCR) in Article 11. The Covenant defines the right to ‘adequate
housing’ as including not just an assurance that housing will be habitable but also
that people have security of tenure and that it be located so as to ensure access to
employment options, healthcare services, schools, childcare centres and other social
facilities. (The right to adequate housing (Art.11 (1): 13/12/1991. CESCR General
Comment No. 4 (General Comments). UN Office of the High Commissioner for
Human Rights)
Article 28 of the UN Convention on the Rights of People with Disabilities (UNCRPD)
recognizes the right of people with disabilities to adequate housing for themselves
and their families. States are required to act in order to safeguard and promote that
right and are obliged to ensure access to public housing programmes by people with
a disability.
The UNCRPD is about 10 years old. Ireland is the only country in the European Union
that has yet to ratify the Convention. Instead, the Irish state has set out a roadmap
to ratification.
6Section III: Analysis and Feedback
3.1 Transition to Independent Living
Question 1: Are you aware if there are supports in your area for those wishing
to leave institutional care and live independently?
Members discussed the widespread lack of supports available to facilitate a move
from an institutional, residential or family setting to live independently. While some
institutions have supported people well, the supports are not consistent across
Dublin or across the country.
Dublin: Members discussed the lack of co-ordinated responses or supports from the
State in both the decision to live independently and the transition to living
independently. A range of supports and information is required to facilitate the
diversity of individual need and experience. This should include personal assistant
services, advocacy services, accessible housing, transport and home supports as a
basic minimum. Some transitions from established institutions in Dublin have been
managed well, with information provided and support in accessing housing and
services.
One member discussed her personal experience. Having agreed with the residential
setting that she would like to move out to live independently in Dublin, she received
no support from the particular institution. She ended up calling directory enquiries
due to a lack of information and was connected with the Center for Independent
Living and the Disability Federation of Ireland. She described the guidance received
from a Dublin-based advocate through the National Disability Advocacy Service as
“lifesaving” and “invaluable”, saying that the advocate provided her with the
information, support and confidence to make the transition.
Members in Dublin also reported that uncertainty over the cost of living
independently was causing anxiety and emphasized the need for a Cost of Disability
payment to facilitate equality and independence. They emphasized the need for
universal design and accessible communities to ensure that people with disabilities
would experience inclusion once they had made the transition.
Galway: Members reported that there had been a number of instances where
people in Galway had moved successfully from institutional settings to group-shared
housing. The majority of transitions are for people with intellectual disabilities.
However, some people with physical disabilities have also made the transition.
Clare: Clare Leader Forum is aware of only one group who provide support for
people with a disability, the Brothers of Charity, and they cater primarily for people
with intellectual disabilities. The experience in Clare is that people move out of
residential institutions and into smaller, institutional-style group or supported
settings. Although this may seem like a regressive move, members emphasized that
choice and control of decision-making are key to independence. Independence is not
defined by doing things alone but by choosing the supports and services and the
level of support required to live. What needs to happen is that people who really do
7wish to live independently are accommodated. At the moment, that choice element
does not appear to be there.
Limerick: Members in West Limerick reported that there are a number of options in
Limerick. Houses were built by Cheshire Ireland in Newcastlewest to support the
transition of people with disabilities from Cheshire Homes into the community.
Similarly, in Limerick city options are provided by the Brothers of Charity and the
Sisters of Charity. All of these transitions are facilitated by large-scale service
providers and they are really moving people from the larger institutions to smaller
scale residential settings. Most of these ‘units’ are fully accessible and in the same
areas, resulting in smaller scale mini-institutions. The key difference is that people
who have the ability are free to come and go when they need to.
The Limerick city Leader Forum reported that in Limerick city Enable Ireland had
wanted to buy some houses in the estate behind the centre in Dooradoyle. Local TD
Jan O’Sullivan had offered support to the proposal at the time. However, it has not
progressed. For the people that use Enable Ireland day services, having such a
facility would be ideal as they would be within a residential estate among other
people but still would have the services they require from Enable Ireland close by.
Offaly: Forum members reported transitional supports and accessible adapted
housing in Cluain Darach, Tullamore, run by Oaklee Housing Trust. The group also
reported that there was accessible adapted housing in Croghan but said that co-
ordinated support services were needed to avail of the housing and live
independently.
Offaly Leaders emphasized the importance of personal assistance services in
supporting a person to make the transition to living independently. A co-ordinated
response to needs is required as well as thorough, person-centred planning and case
conferences.
Communication is important among those providing support services to ensure that
people have the right supports, services and equipment to live comfortably and
independently at home; for example, communication is needed between those
responsible for housing and the occupational therapist to ensure access needs are
met. There are no bowel management services in Offaly hospitals and many medical
staff have no disability awareness or training. The group said that medical-based
supports like physiotherapy and occupational therapy services are often delayed.
When someone leaves a residential or a rehabilitative setting, such as the National
Rehabilitation Hospital in Dun Laoghaire, transport supports are crucial to their
staying integrated in community, family or work life. In Offaly there are a few
accessible taxis but the Townlink service is not wheelchair accessible. There is no
consistency in such services. Lack of transport supports leads to Isolation, which can
damage a person’s mental health.
Members highlighted the fact that residential or hospital care was more expensive to
the State than providing supports to live in one’s own home. Family support services
would be valuable in facilitating this transition and in helping the entire family to
adjust. Members identified issues related to using the support of a personal assistant
when using hospital services or making the transition between hospital and home.
8Sligo: Supports were said to be limited. Lack of adequate support services and lack
of accessibility were identified as the two main reasons why people remained in care
situations despite wanting to leave and live independently.
Supports must be developed to facilitate independence rather than create new forms
of dependence through care. Supports, including information technology and
assistive technology, can have a huge impact in terms of facilitating independence. It
was crucial that the Leader be informed of what supports were available and be able
to identify what were the most suitable for him or her in the long term.
Leitrim: Members said there was a lack of clarity on what supports were available
and how they could be accessed. Clear information and communication were crucial.
This point reinforces the feedback from Offaly members on the need for a system of
co-ordinated supports that is communicated to disability organisations and services
as well as individuals.
“We have been trying to get support for this model with our local authority and we
are not sure of what supports are available.”
Donegal: Leaders reported a significant backlog, which means that people were
being held in hospitals unnecessarily because home supports were not available.
Inadequate provision of supports by the HSE was forcing people into nursing homes.
Supports needed to be tailored to individual circumstances through a combination of
personal assistance services, transport supports, home help and medical supports.
3.2 Supported Living
Question 2: Do you think that Supported Living is a valuable model? What are the
biggest differences between Supported Living and Independent Living?
Members discussed their understanding of the model of Supported Living and the
differences between Supported Living and Independent Living.
Feedback from these discussions included the point that Independent Living was very
different to Supported Living as it focused on the individual living on their own terms
away from any restrictions or interference. Although the Supported Living model was
important as it marked progress, it did not provide the freedom that CIL has long
advocated. However, the appropriate option depended on the individual’s
circumstances. Some people needed the level of support provided by Supported
Living and this should not be overlooked. Independent Living is not for everyone. As
people with disabilities we often need support. However, the level of support we
need should be our own choice. The movement toward Supported Living is a matter
for concern, however, as it is a term associated with elder care. We are not sick and
not all people with disabilities are old and we should not be treated in the same way.
“If Independent Living didn’t exist I wouldn’t have ever moved out of home and
gone to college. The main issue is that people need to have the choice – to live
independently or live with supports.”
9Offaly: Leaders reported that supported living services could be useful for people
who needed support in making decisions on how they wished to live their lives.
However, there can be confusion and the term can be misleading. Supported Living
can be associated with sheltered or monitored living settings with health and safety
supports.
Sligo: Members said that Supported Living was a valuable model for those who
needed it or chose it but that it was not for everyone.
“Independent living by its nature is self-directed. Self-direction of services, for
varying reasons, may not be possible for all people. It is important that those who
cannot communicate their needs still have a voice and Supported Living can allow for
this.”
It was important to have clear definitions when referring to Supported Living. There
was a risk of creating mini institutions or new forms of institutions unless choice,
control and independence were facilitated and considered.
Leitrim: Members made the following point:
“Independent Living is where the person can make all the decisions; Supported
Living is providing adequate supports to allow the person live independently with the
appropriate aids and assistance.”
Donegal: Leaders discussed the value of support services in relation to the core
values of the independent living movement in Ireland, which included options,
choice, empowerment and control. They emphasized that support services were
crucial to independence. Members universally agreed that the core of independent
living was having choice and control and being the one who made the decisions that
affected one’s life.
“The foundation of independence is having choice and control over those supports
and services.”
3.3 Social Housing
Question 3: Are you aware if there is accessible social housing available and if
there is a long waiting list?
Leaders from all areas of the country reported long delays in waiting for suitable
social housing, a shortage of housing available to people with disabilities and a lack
of variety in terms of location of housing. There was little clarification around the
administrative process, particularly in relation to how individuals were prioritized.
Members described the application processes as inaccessible and as institutional
discrimination. Throughout the country members reported significant waiting lists.
Galway: Leaders reported that the length of time on the waiting list at present
could be up to six years. The main difficulty was that no social housing had been
built in recent years and the older houses were not accessible. Galway Leader Forum
is not aware of a separate list but people with disabilities are told that they are
‘prioritized’.
10Dublin: Members said that the Forum had engaged with their local council on this
issue on an ongoing basis. Universal design was not considered in the design and
development of social housing. Members emphasized that one size did not fit all. It
was important that councils take into account the person’s individual needs when
considering applications. They pointed out, for example, that counter height in a
dwelling would need to vary depending on the person. There was a need for more
accessible social housing in areas where people had personal or support networks.
Clare: Over 3,000 people are on the waiting list for housing in Clare. According to
the Housing Agency report, a minimum of 1,062 new houses are needed in Co. Clare
before the end of 2018. Leaders in Clare highlighted that housing lists do not include
the dependents of an applicant so a stated waiting list of 3,000 could be much
higher. In 2015 in Shannon town, for example, over 500 people were on the social
housing waiting list yet, when the number of dependents was included, this came to
over 1,100 people. Therefore, young families are often prioritized when housing
becomes available.
The current housing list in Clare is broken down into different lists depending upon
the individual’s level of need. These lists are for elderly; young families; people with
disabilities; Travellers and lone parents. Other people with disabilities may also be on
these lists but categorised under an alternative heading, which might include:
• Dependent on rent supplement
• In unsuitable accommodation
• Requires separate accommodation
• In institution or emergency accommodation
• In unsuitable accommodation
• In overcrowded accommodation
• In unfit accommodation
• Unsustainable mortgage.
When people are allocated social housing it is vital that the county council considers
the area into which they are moving them. People with disabilities cannot be
allocated a house in an area where there are large numbers of youths and social
problems as this can lead to other social issues.
“I am terrified living in my own home. We have continual problems with young
people abusing us and it has gotten to the point where we are afraid to leave the
house. Why can’t the council put people with disabilities into an area where there are
older people who also need peace and quiet? I don’t want to be segregated, I just
want to be left alone and not abused on a daily basis.”
The suitability of the houses allocated also needs to be examined. Many people with
disabilities are in accommodation that is totally unsuitable for their needs.
“I live in a house where I cannot access the downstairs toilet because the door is too
narrow. If I want to go into the kitchen I have to go in my front door and turn my
chair and go through that way as the corridor is too narrow for my power chair.
Because my partner also has a disability we were very limited in the accommodation
that was offered.”
11“I have been trying to get a council house for years. I keep being told that I am at
the top of the waiting list but I never hear back from them. I chase them and again I
am told that I am the top of the list. Eventually I gave up and moved out of home to
a rented house. The house is rented by the Irish Wheelchair Association. It is at the
top of an extremely steep hill. Therefore I cannot leave my house without getting a
taxi. The bus stop is at the bottom of the hill and it is too dangerous to travel down
the hill with my chair. Similarly, I cannot travel back up the hill as it is too difficult for
my personal assistants to assist me. There are several similar houses at the top of
the hill, all rented to people with disabilities who are in the same situation. If I don’t
have money for a taxi I cannot get out of my house – even to buy food. This is what
they call accessible housing in Galway.”
However, housing providers in some areas are getting it right and some people with
disabilities are very happy with the accommodation and support they are given.
“I live in social housing in rural Limerick and love my house and the independence it
gives me. It is part of a small social housing build in the middle of the town.
Everything that I need they respond to straight away. Without my home I would be
in a very different situation.”
Offaly: Leaders reported long waiting lists and the availability of some limited
accommodation. There are few options in terms of location of social housing and a
lack of certainty around its accessibility.
Sligo: Leaders may have to wait significant periods of time: one member reported
having waited eight years to date.
“The application process is unnecessarily complicated, and that in itself can be a
barrier to accessing the services provided. The physical access to the Housing
Services offices can be impeded if the wind blows the wrong way and they are
forced to close the door.”
Sligo Leaders said that ‘accessible’ was a broad term in relation to a safe,
comfortable and accessible living space and they emphasized the need for housing to
be matched and tailored to individual need. One member pointed out that certain
specific technology could facilitate independence, such as technologies built into
houses for people with impaired hearing and visual as opposed to audible fire alarm
systems.
Sligo needs more accessible homes designed for families. At present, most of the
wheelchair accessible housing available was originally designed as dwellings for older
people and consist of a small living area with a kitchen and two bedrooms. There is a
huge shortage of family housing that would meet the access needs of the person
with a disability and also meet the needs of a partner and children. Most family
homes available in Sligo are two storey, making it impossible for a disabled parent or
child to have full access to their own home. Adaptations are often made at ground
level but for a parent it is impractical not to be able to access the upper level where
children’s bedrooms may be located.
Leitrim: Members reported some limited housing available through the local
authority but said there was a shortage of accessible houses.
12Donegal: Leaders reported a huge waiting list and that the housing process can
take four to five years, with little choice in terms of location, proximity to services
and suitability.
“There is often no choice in terms of location. I need to be closer to support
networks. Options offered are not always suitable or accessible.”
Cork: A member of the Cork Forum reported an IWA housing initiative that was
currently available called Operation Sign-Up, which encourages and supports people
with disabilities who wish to live in their own homes to apply for social housing
through Cork city and county councils. This was felt to be a very valuable support as
there are huge barriers to accessing social housing in relation to the administrative
process. Some members considered the lack of appropriate supports for people with
hearing impairments, visual impairments, literacy issues or learning disabilities a form
of unintended institutional discrimination and said that programmes like Operation
Sign-Up were valuable in addressing that.
3.4 Housing Associations
Question 4: Are there Housing Associations in your area to support people with
disabilities and are they effective?
Housing associations (also known as approved housing bodies) are non-profit
organisations whose main purpose is the provision and management of housing for
households in housing need. They are tasked with providing good-quality housing at
affordable rents.
Housing associations are responsible for the management and maintenance of their
properties. They primarily provide social housing to families on low incomes, older
people, people with disabilities and people who find themselves homeless. Members
reported some housing associations that specifically catered for people with
disabilities. Some of these provide supported housing, which offers accommodation
with care and support to the tenant and often with communal facilities. Supported
housing can be offered to older people and people with disabilities who require either
visiting or on-site support to be able to stay in their homes. Housing associations
provide such support and care either in partnership with the Health Service Executive
or another service provider.
Members around the country reported a variety of both general and disability-specific
housing associations. Overall, those providing disability-specific accommodation had
more understanding of the needs of applicants who had disabilities.
Galway: The general associations such as Cluid are generally very helpful in Galway
and Limerick. Forum members were not aware of any housing association that
catered directly for people with disabilities.
Clare: Leaders reported access to general housing associations such as Respond and
Cluid. Another housing association, Banner Housing Association, leases social houses
and apartments to people with physical and intellectual disabilities. They build and
purchase houses according to the needs of the prospective tenant. As they are a
social housing provider, their rents are also affordable.
13Leaders also have access to Inis Housing, which provides a similar service. When
people on a housing list come to them, they look for a suitable house and get
bridging finance to speed the process of adaptation while the funding is being
approved. However, it is a slow process and the constant need to report back is
causing massive delays.
Sligo: There are mainstream housing associations like Cluid and Respond but no
member reported having used their services. Nazareth Housing Association provides
housing for people over the age of 65 or people with disabilities. In partnership with
the county council, Nazareth Housing Association has built 48 houses and they are
open to application.
Dublin: Members reported positive experiences of dealing with housing associations
and several members of the Dublin-based groups are currently living in housing
association properties. These associations included HAIL and Fold. A Leader said
they could maintain their independence but found the support offered through the
association was valuable. Dublin members reported using the support of Fold
Housing very successfully.
Leitrim: Members were not aware of any housing association that existed to support
people with disabilities.
Offaly: Some members accessed housing through Cluain Darach and Oaklee
Housing Association. It was believed to be working well and Leaders are happy with
the supports available.
Donegal: Leaders reported some general housing associations but none that
provided specific supports for people with disabilities.
Cork: Several Forum members live in Abode, which is connected with the Doorway
to Life Housing Association. Members reported that Abode ran programmes for
building independent living skills.
3.5 Housing Adaptation Grants
Question 5: How important are Housing Adaptation Grants? Are you aware if Housing
Adaptation Grants are being awarded in your area or if there are delays?
Housing adaptation grants are vital to members yet Leaders report that the funding
allocated to local councils is inadequate to meet the demand for the Housing
Adaptation Grant Scheme in most local authority areas. In some areas of the country,
it was reported that the scheme had been suspended completely and new
applications were not being accepted.
According to a member in Dublin:
“Housing Adaptation Grants can facilitate people with disabilities to live more
comfortably, remain living in our own homes and live more independently. This isn’t
about renovating your house, it’s about essential work and making your home live-
able.”
14One Sligo member noted:
“These are exceedingly important. They may allow people to stay in their own homes
having acquired a disability or, should they choose, live with family.”
Leaders in the West reported that very few if any grants were being awarded now in
that region. Waiting times varied depending on local authority area.
Donegal: Leaders reported delays in getting housing adaptation grants. Such delay
can cause distress and diminish quality of life.
“There is a huge amount of red tape and the process is intimidating and confusing.”
Offaly: Housing adaptation grants are still being delayed. When they are awarded,
they are reported to be adequate and applicants reported that the adaptations had
had a positive impact and they were happy with the work completed. However,
grants have been cut in Offaly by 45 per cent.
Dublin: Members in the Fingal area reported that minor adaptations could be dealt
with within a reasonable time but that significant adaptations could take up to two
years.
There is a high demand for grants. Minor grants are dealt with quickly; major grants
can take much longer.
Cork: Members reported the case of a family who had been approved for a housing
adaptation grant but had been told that it could be seven or eight years before the
grant was processed due to lack of funding.
The application process was described as too complicated and bureaucratic with
inadequate support for applicants who required support to complete the forms.
Leaders said the forms were extremely complex and the process very slow. The lack
of flexibility in the system was cited as a barrier to applications. The level of
paperwork was described as “daunting” with a need for “more supports to make the
process accessible for people with hearing or visual impairments, people who can’t
write for themselves and people with learning disabilities”.
Grants were described as inadequate to cover costs in some cases, particularly for
larger jobs and those requiring ongoing maintenance. Some Leaders reported
difficulty when the amount required to finish the build was more than the person’s
grant. The majority of people with disabilities would not have the difference and the
process of going back to the council and applying for additional money was
extremely tedious and stressful. In rural areas many people with disabilities relied on
their political representatives to advocate on their behalf. Others reported that
shortfalls in funding were covered by savings, support from family or friends and
personal loans. Some found the means test too restrictive.
One member emphasized the need for collaboration between local authorities and
other support services provided by the State to the individual applicant:
“Occupational therapists can play a valuable role if they work with the local authority
to make sure the adaptation matches the applicant’s need. Inter-agency working is
so important.”
15Sligo: Leaders said that housing adaption grants were difficult to get and were only
suitable for a limited number of people, based on whether they owned their own
home. There was no equivalent scheme or option for people with disabilities who did
not own their own home.
“They only usually come up on a yearly basis and a limited budget will be issued. If
you apply at the wrong time of the year you may have to wait some time for funding
to become available. They are also only useful if the dwelling is owned by the
disabled person or a family member. It is far more complicated if it is a rental
property.”
3.6 Rented Housing
Question 6: Is there availability of accessible rented housing and is rent allowance
adequate?
Accessible rented accommodation was a significant issue for many members.
Leaders reported that one of the biggest difficulties was finding accessible rented
housing where the rent allowance was accepted. This experience is replicated
throughout the country.
Leaders in Galway, Cork, Offaly, Donegal and Dublin reported that rent allowance
was not accepted by the majority of landlords. Many of the advertisements
specifically state that “Rent Allowance not accepted”.
The high cost of rent, particularly for those living alone, was discussed. A lot of
people with disabilities find it difficult to share a house with others. Renting a place
on your own can be very difficult to afford.
“People cannot afford to rent anymore because of the cap imposed on social welfare.
Able-bodied people may be able to afford to dip into their living expenses to cover
the difference. As a person with a disability you cannot do this as the cost of your
disability leaves you with nothing to spare each month.”
One Donegal member said that, because of the amount he spends on rent, he
doesn’t have enough money left over to eat properly.
“I pay more than half of my disability allowance on rent, I don’t eat at all.”
Even when rent allowance is accepted, Leaders across the country reported that rent
allowance is not adequate to meet current rent levels. Several Leaders reported that
they were struggling with recently increased rents.
Clare: The situation with the rent allowance is so bad that Threshold planned to
hold a public meeting in Ennis in February to highlight the issue.
“The rent allowance of €24 per week means that I have to pay €50 per week. That is
a lot of money when I have no income other than a social protection payment.”
16Galway: There were difficulties with finding suitable rented accommodation,
Leaders reported. A lot of the older houses are not accessible and are targeted at the
student market. Owners of the newer houses that may be accessible are not
accepting rent allowance so it can be very difficult.
Sligo: Leaders said that there was little to no housing available that could be used
independently by a wheelchair user. Bathrooms and kitchens can be particularly
problematic in rental properties. Limited space is a huge issue for many.
“Unlike a public space, a home is personal and simply sticking to the regulation won’t
ensure a home is accessible to the individual.”
Members in Leitrim and Offaly also reported a shortage of accessible, well-
equipped rental properties. One Leader in Offaly said that people were resorting to
living in standard bungalows and were forced to compromise on access.
Donegal: Leaders reported that suitable rented accommodation was rarely available.
If a person is living in rented accommodation, it usually cannot be adapted to their
needs. One member said that they had rented a house for a long time and minor
adaptations were facilitated but significant changes were not. Rental costs remain
high and available rental properties are often in unsuitable locations and removed
from services and support networks.
Cork: There is very limited rental accommodation available with suitable accessible
showers as many showers are in the bath and there are no rails. There are no
accessible buildings to rent.
Dublin: One Leader discussed the challenge involved in moving from an institutional
setting to live independently. He described the difficulty of finding accommodation
and the refusal of landlords to accept rent allowance. The rental situation was so
prohibitive that the person is unable to leave the residential setting and is working
with his peers in the Leader Forum to identify a solution based on their experience.
There is little support from the team in the setting that he is living in.
3.7 Property Ownership
Question 7: Are you aware of issues related to applying for a mortgage and
ownership of property?
Members reported very different experiences in terms of making a mortgage
application and owning their own house. A small number had applied for and got a
mortgage without difficulty based on their income. Other members reported differing
experiences depending on their banks and their disclosure of their disability. For
some, the process was very complicated and many on social welfare or disability
allowance are not considered for a mortgage.
It can be more difficult for someone who is diagnosed with a long-term illness prior
to purchasing a property, as a long-term illness may affect one’s ability to get a
mortgage or life assurance. If a person cannot find the means to own a property
they may be forced to rely on the accommodation provided by the local authorities.
As a result, a huge number of people with disabilities are not in a position to own
their own homes.
17Members reported that it was extremely difficult to own your own house when you
have a disability. When you are on a social protection payment and something goes
wrong with your house there are few options to turn to in terms of maintenance. For
Leaders who are paying a mortgage, the maintenance costs of the house combined
with the cost of your disability can cause huge stress and anxiety.
The majority of people with disabilities do not own their own house for these
reasons. The cost of disability is simply too high to allow it. The importance in this
country of owning your own house does not make sense for many Leaders. In other
countries people rent for the long term and in so doing do not have the costs
associated with maintaining a property. Until there is more security of tenure in long-
term renting of property, people with disabilities will feel fear and pressure around
owning a house and securing accommodation.
There is also a very real issue when people who have a disability and who have
always lived in their own homes get older. They may want to continue to live there
but cannot do so because they don’t have the appropriate level of support.
Limerick: Leaders reported that the local CIL is “brilliant“ at trying to help people to
stay in their own homes. However, the lack of supports, such as transport, in rural
areas can mean that a person becomes isolated and vulnerable and is still forced out
of their home.
“I am terrified of what is going to happen to me when I get older. At the moment the
only person I see every day is my PA and maybe the postman. I would love to get
out and about but I would have to get a taxi into town and back and I cannot afford
that. All my children have their own lives and I know that eventually I will be forced
out of my house. Instead of moving me into a home why can’t this government help
me to stay in my home?”
Donegal: Leaders said that Donegal is experiencing the highest rate of evictions in
the country at the moment. There is huge fear in relation to owning our own homes.
3.8 Other Suggestions
Question 8: All other suggestions, comments or ideas are welcome.
One Sligo member reported that:
“It is more and more evident that people with disabilities are put in a category with
little thought given to the needs of people who happen to be disabled. It is also
forgotten that many people gain disabilities over the course of their lifetime. A
whole-of-life approach needs to be taken to housing provision, taking into account
people’s abilities now and in the future. A person with disabilities is often seen as an
individual by themselves, neglecting to acknowledge that the person may be part of
a family unit and needs to be housed as such.”
“I find policies and protocols will be developed to account for people with disabilities
as vulnerable people. Doctors, occupational therapists and case workers must assess
your needs. Service providers must run risk assessments etc. While this may be
necessary in some cases, it is not necessary in all cases. No respect is given to the
wishes or knowledge of the person with a disability.”
18“What if, God forbid, someone with a disability wanted to move to go to college . . .
or live closer to a boyfriend or girlfriend? The current situation does not allow for
people with disabilities to “have a life of spontaneity”. You would need to plan
potentially years in advance to move. If you are limited to council housing you can’t
choose either where you live in the same way as you could if buying or renting.”
Galway: There is a Housing Linkage Group under the new Galway City Community
Network. However, the Galway Leader Forum (GLF) has recently learned that there is
also a Disability Housing Group within Galway City Council. It appears that the IWA is
the representative for people with disabilities on this group when they meet. The GLF
plan to enquire about this committee, its terms of reference and representation.
Clare: The main emphasis at the moment is on the county council doing up houses.
However, although they have the funds, they are stating that they are awaiting
approval on budget spends nationally. Accessible social housing needs to be fast-
tracked.
It is also important to note that if a person who lives in social housing wants to move
they simply cannot. They would be waiting years to be allocated a new house or, in
the majority of situations, would simply be told no. As a person with a disability, if
you acquire a disability and want to move to a town that has better facilities to cater
for your needs, you simply cannot do it. The question arises then, where is the
element of choice and control over your life?
“I would love to move into Limerick and be closer to my friends and college. Yet how
am I to do that? I have to care for my mother and haven’t the PA hours to enable
me to socialize anyway. It is a very lonely existence and it gets me down. I wish life
were different. I have tried to get extra PA hours to enable me to live my life but
keep getting turned down. I have even tried to secure a direct payment but am not
considered able to manage my own service yet. I know if I put my name on the
social housing waiting list I will be waiting years for a house and my mother would
then be looking at having to move into a home. What choice do I have? I want to
live, not just exist.”
Leitrim: Members identified the need for well-equipped, accessible properties to
accommodate people with disabilities.
“We are aware of the congregated settings support and the need to provide
accessible accommodation for people with disabilities and we have brought this to
the attention of the local authority and the HSE.”
19Section IV: Conclusions
4.1 Monitoring and Implementation
There is little cohesion in terms of national practice and a comprehensive and
inclusive national housing strategy based on individuals’ needs is required. Members
reported that there is a huge issue with strategies not being implemented. Full
consultation with people with disabilities is essential to ensure that any strategy is
implemented effectively. All strategy documents should be matched with an action
plan, a timeline and allocation of responsibility for implementation.
Increased communication is needed between the Department of Environment, the
Department of Health, local councils and the Housing Agency along with the
development of an Implementation Planning Group.
4.2 Recommendations
• The delivery of housing for people with disabilities through mainstream
housing options. Mainstream access to independent living for adults living
with physical, mental, sensory or intellectual disabilities with the support of
the housing authorities and the HSE, to support people with a disability to live
independently in their own homes, with accommodation designed or adapted
to be fit for purpose, rather than having to move into residential care
settings.
• Cross-departmental communications and co-ordinated supports are needed
for people with disabilities living independently. These supports should be
tailored to match the need of the individual and should be based on a person-
centred planning approach to ensure adequate supports. Supports should
include personal assistance, transport, and medical supports.
• Increased provision of social housing is needed, which should include a
tailored process based around matching housing location and accessibility to
individual need in terms of access, support services and networks.
• Housing Associations with specific housing and supports suitable for people
with disabilities are needed.
• Increase the allocation to the Housing Adaptation Grants Scheme, with a
clearer, more accessible application process and a speedier system.
• Introduce rules for acceptance of rent allowance by landlords.
• Introduce access supports for people with disabilities who are privately
renting.
• Provide supports for people with disabilities to enable them to purchase
accessible housing.
• Increase co-operation among the Housing Agency, local authorities, approved
housing bodies and the Department of the Environment, Community and
Local Government to ensure the delivery of housing and housing services.
• Ensure that all processes involved in seeking housing support are disability
proofed.
• Housing Adaptation: Increase the total funding available, revise the means
test to target limited resources at those who can least afford adaptations and
revise the system to ensure resources are targeted at those who are most in
need of adaptations.
20• Conduct regular reviews of all caps and limits on the Housing Adaptation
Grants to ensure they are adequate to cover the costs of adaptation.
• Provide supports to ensure that bureaucracy and red tape are not barriers to
people with disabilities when applying for social housing or grants. Such
supports would include literacy supports, support for those with visual and
hearing impairments and supports for people with learning disabilities.
• Deliver disability awareness training for local authority frontline staff who are
involved in delivering housing services.
• To meet social housing needs, increase the options for people with disabilities
through the private rental sector using the Rental Accommodation Scheme
(RAS) and the Social Housing Leasing Initiative (SHLI).
• Promote the use of RAS-type (Rental Accommodation Scheme) leasing
arrangements for people with disabilities who have not been in receipt of rent
supplement.
• Introduce incentives for landlords who provide accessible accommodation or
make adaptations to meet the access needs of tenants.
• Increase the provision of social housing.
• Ensure greater security of tenure for people with disabilities.
21Appendix 1 Leader Forum Consultation Feedback Questions – Housing
1 Are you aware if there are supports in your area for those wishing to
leave institutional care and live independently?
2 Do you think that Supported Living is a valuable model? What are the
biggest differences between Supported Living and Independent Living?
3 Are you aware if there is accessible social housing available and if there
is a long waiting list?
4 Are there Housing Associations in your area to support people with
disabilities and are they effective?
5 How important are Housing Adaptation Grants? Are you aware if
Housing Adaptation Grants are being awarded in your area or if there
are delays?
6 Is there availability of accessible rented housing and is rent allowance
adequate?
7 Are you aware of issues related to applying for a mortgage and
ownership of property?
8 All other suggestions, comments or ideas are welcome.
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