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Homelessness
Latest Update
12 July 2013
General updating.
Author(s)
Arden Chambers
Part VII of the ousing A!t 1""# $A 1""#% ma&es pro'ision for the re!eipt of
appli!ations for housing( and assistan!e )ith housing( by *o!al ousing Authorities
$*A+s%.
Overview of Topic
0. ,here an indi'idual is homeless( in priority need of a!!ommodation and did not
be!ome homelessness intentionally( the *A )ill be under a duty to se!ure that
suitable a!!ommodation is made a'ailable- spe!ial pro'ision is made for those )ho
are only eligible for assistan!e( homeless( or in priority need by 'irtue of the
!ir!umstan!es of others )ith )hom they reside. .here are also duties to assist those
)ho are not yet homeless( not in priority need or intentionally homeless. /uties only
apply to eligible indi'iduals.
0. .here is also a s!heme for the referral of indi'iduals )ith a lo!al !onne!tion to
another area.
0. .here are thus four &ey !on!epts !ontained )ithin Pt VII A 1""#- homelessness(
eligibility for assistan!e( priority need and intentional homelessness.
0. Pro!edurally( there is a number of stages- re!eipt of an appli!ation( in0uiries into
eligibility and )hat duty( if any( is o)ed to the indi'idual( the pro'ision of interim
a!!ommodation and de!ision on duty o)ed $if any%. ,here an indi'idual is
dissatisfied )ith the a de!ision made as to the duty o)ed to him( he may re0uest a
re'ie) of that de!ision by the *A. If the indi'idual is dissatisfied )ith the de!ision
made on re'ie)( the indi'idual may appeal( on a point of la)( to the !ounty !ourt.
0. .his note deals )ith the tests1 stages in the order they normally fall for !onsideration
by *A+s( namely appli!ations $in!luding in0uiries and the pro'ision of interim
a!!ommodation% homelessness( eligibility( priority need( intentional homelessness(
and finally( lo!al !onne!tion( de!isions( dis!harge of duty( re'ie)s and appeals.
Key Acts
ousing A!t 1""#
Key Subordinate Leislation
omelessness $Priority 2eed for A!!ommodation% $3ngland% 4rder 200212051% 1
omeless $Priority 2eed% $,ales% 4rder 20011#06
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Allo!ation of ousing and omelessness $7e'ie) Pro!edures% 7egulations 1"""161
omelessness $8uitability of A!!ommodation% $3ngland% 4rder 20031332#
omelessness $8uitability of A!!ommodation% $,ales% 4rder 200#1#50
Allo!ation of ousing and omelessness $3ligibility% $3ngland% 7egulations 200#112"9
omelessness $/e!isions on 7eferrals% 4rder 1"":1156:
omelessness $8uitability of A!!ommodation% $3ngland% 4rder 201212#01
Key !uasi"leislation
.he omelessness Code of Guidan!e for *o!al Authorities( July 200#
omelessness Code of Guidan!e for *o!al Authorities; 8upplementary Guidan!e on
Intentional omelessness( 5th August 200"
8upplementary Guidan!e on the homelessness !hanges in the *o!alism A!t 2011 and on
the omelessness $8uitability of A!!ommodation% $3ngland% 4rder 201212#01
Key #uropean Union Leislation
2one.
Key $ases
Applications% &n'uiries
7. ' arro) *<C 3= p. >ahia ?1"":@ 1 ,.*.7. 13"#
<egum $7i&ha% ' .o)er amlets *<C ?2005@ 3,CA Ci' 390- ?2005@ 1 ,.*.7. 2103
7. ' Aensington and Chelsea 7*<C 3= p. <ayani $1""0% 22 .*.7. 90#
7. ' Gra'esham <C 3= p. ,in!hester $1":#% 1: .*.7. 206
Homelessness
7. ' <rent *<C 3= p. A)ua ?1""#@ A.C. 55
<egum $2ipa% ' .o)er amlets *<C ?2000@ 1 ,.*.7. 30#
Ali ' <irmingham City Coun!il ?200:@ 3,CA Ci' 122:- ?200"@ 2 All 3.7. 501
Ban!hester City Coun!il ' Boran ?200:@ 3,CA Ci' 36:- ?200:@ 1 ,.*.7. 23:6
Cemsha) ' ounslo) *<C ?2011@ DA8C 3- ?2011@ 1 ,.*.7. 933
#liibility
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8)addling ' AdEudi!ation 4ffi!er $C"01"6% ?1"""@ All 3.7. $3C% 216
2essa ' Chief AdEudi!ation 4ffi!er ?1"""@ 1 ,.*.7. 1"36
Patmalnie!e ' 8e!retary of 8tate for ,or& and Pensions ?2011@ DA8C 11- ?2011@ 1
,.*.7. 6:3
(riority )eed
olmesFBoorhouse ' 7i!hmond upon .hames *<C ?200"@ DA* 6- ?200"@ 1 ,.*.7. 913
7. ' Camden *<C 3= p. Pereira ?1"":@ C.4./. 31:
4smani ' Camden *<C ?2009@ 3,CA Ci' 160#- ?2005@ .*.7. 22
7obinson ' ammersmith and >ulham *<C ?200#@ 3,CA Ci' 1122- ?200#@ 1 ,.*.7.
32"5
7. $on the appli!ation of G% ' 8outh)ar& *<C ?200"@ DA* 2#- ?200"@ 1 ,.*.7. 12""
&ntentional homelessness
<ond ' *ei!ester City Coun!il ?2001@ 3,CA Ci' 1599- ?2002@ 1 >.C.7. 5##
Dgiagbe ' 8outh)ar& *<C ?200"@ 3,CA Ci' 31- ?200"@ P...8.7. 19#5
Local $onnection
Bohamed ' ammersmith and >ulham *<C ?2001@ DA* 56- ?2002@ 1 A.C. 596
7. ' 2e)ham *<C 3= p. .o)er amlets *<C ?1""1@ 1 ,.*.7. 1032
*ecisions and dischare
8hala ' <irmingham City Coun!il ?2006@ 3,CA Ci' #29- ?200:@ .*.7. :
8outh <u!&inghamshire /C ' Porter $2o.2% ?2009@ DA* 33 ?2009@ 1 ,.*.7. 1"53
7. ' <rent *<C 3= p. A)ua ?1""#@ A.C. 55
7. ' illingdon *<C 3= p. Puhlhofer ?1":#@ A.C. 9:9
8harif ' Camden *<C ?2013@ DA8C 10- ?2013@ 2 All 3.7. 30"
+eviews and Appeals
Bohamed ' ammersmith and >ulham *<C ?2001@ DA* 56- ?2002@ 1 A.C. 596
all ' ,ands)orth *<C $Appli!ation for Permission to Appeal% ?2009@ 3,CA Ci' 110
<egum $2ipa% ' .o)er amlets *<C ?2000@ 1 ,.*.7. 30#
Coun!il of Ci'il 8er'i!e Dnions ' Binister for the Ci'il 8er'i!e ?1":5@ A.C. 369
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Key Te,ts
2one.
*iscussion of *etail
A((L&$AT&O)S
0. A lo!al housing authority is obliged to a!!ept an appli!ation for homelessness
assistan!e if there is reason to belie'e that the appli!ant may be homeless or
threatened )ith homelessness; s.1:3$1%.
-ho can apply.
0. Anyone )ho is la)fully in the !ountry may apply as homeless. .his means illegal
immigrants $i.e. those )ho offend under s.19( Immigration A!t 1"61% !annot apply.
,hether a person is unla)fully in the DA is a 0uestion for the authority but only for
its o)n purposes and subEe!t to a !ontrary de!ision by the ome 8e!retary( see 7. '
,estminster City Coun!il 3= p. Castelli $2o.2% $1""#% 2: .*.7. #1#- An authority is
under a positi'e duty to report suspe!ted illegal immigrants to the immigration
authorities $7. ' 8e!retary of 8tate for the 3n'ironment 3= p. .o)er amlets *<C
?1""3@ G.<. #32%.
0. /ependent !hildren !annot apply in their o)n right( 7. ' 4ldham B<C 3= p. Garli!&
?1""3@ A.C. 50"( 7. ' <e=ley *<C 3= p. <entum ?1""3@ A.C. 50"( 7 ' .o)er amlets
3= p. <egum ?1""3@ A.C. 50". 2ote here the emphasis is on the )ord dependent.
.here is no prohibition on independent minors applying under the s!heme.
0. A potential appli!ant must be !apable of a!!epting or refusing an offer of
a!!ommodation or assistan!e( <egum abo'e. .his is a 0uestion for the authority. If
there is a la!& of !apa!ity in this regard( a so!ial ser'i!es referral )ill be re0uired.
/orm of application
0. .he appli!ation !an be made in any number of )ays and need not be in )riting( 7. '
Chiltern /C 3= p. 7oberts $1""1% 23 .*.7. 3:6. It does not need to be e=pressed as
e=pli!itly see&ing assistan!e under Pt 6. .he appli!ation !an be made by someone on
behalf of the appli!ant $i.e. a so!ial ser'i!es referral( a !ommunity group( friends or
family%.
0. It is important to distinguish bet)een the obligation under s.1:3 to a!!ept an
appli!ation and that under s.16" to pro'ide ad'i!e and information about
homelessness and the pre'ention of homelessness. .he omelessness Code of
Guidan!e for *o!al Authorities( July 200#( para #.9 gi'es e=amples of the ad'i!e and
assistan!e that may be pro'ided by an authority but it ma&es !lear that authorities
must not a'oid their obligations under Pt 6 $espe!ially the in0uiries duty%.
0. If an authority fails to a!!ept an appli!ation )here the abo'e test is met( then an
appli!ant !an !hallenge that failure in Eudi!ial re'ie) pro!eedings. 4ne re!urring
issue )ith many authorities is that appli!ations are made in a!!ordan!e )ith the
abo'e and there is a $sometimes signifi!ant% timeFlapse bet)een that initial approa!h
and the Hta&ing of an appli!ationH F )hether in the form of an inter'ie) or a formF
filling e=er!ise. 4n o!!asion( appli!ants are returned to family or friends to HsofaF
surfH during this inter'ening period. .his is an unla)ful pra!ti!e insofar as it sideF
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steps the duties referred to belo) i.e. !ondu!t in0uiries( se!ure temporary
a!!ommodation( e=tend the length of time to !ondu!t in0uiries and1or persuade an
appli!ant to find alternati'e means of se!uring a!!ommodation.
+epeat applications " $hane of circumstances
0. A person )ho is found to be intentionally homeless from a!!ommodation pro'ided
under s.1"3 or )ho loses a!!ommodation under that se!tion in some other )ay has a
statutory right to reFapply( see s.1"3$"% A 1""#.
0. In any other !ir!umstan!es( there is no e=press prohibition on the number of
appli!ations that !an be made under the homelessness pro'isions. .he only rele'ant
basis upon )hi!h a purported appli!ation !an be sho)n not to be a 'alid appli!ation
is )here it is based on e=a!tly the same fa!ts as the earlier appli!ation $see 7. '
arro) *<C 3= p. >ahia ?1"":@ 1 ,.*.7. 13"# and <egum $7i&ha% ' .o)er amlets
*<C ?2005@ 3,CA Ci' 390- ?2005@ 1 ,.*.7. 2103%.
0. ,here an authority a!!epts a homelessness appli!ation( they are obliged to ma&e a
de!ision in respe!t of that appli!ation and !ondu!t those in0uiries they !onsider
ne!essary to satisfy themsel'es )hether or not the appli!ant is eligible for assistan!e
and )hat( if any( duty is o)ed to him; s.1:9$1%. >or the e=tent of the duty( see useful
!ommentary in 7. $on the appli!ation of Bay% ' <irmingham City Coun!il ?2012@
3,C 13"" $Admin%( paras. 3"F91 )here the appli!ant had been residing temporarily
$but for some months% )ith her grandmother pending the out!ome of her appli!ation
as homeless but ultimately left due to the brea&do)n of her relationship( and
a!!ordingly( termination of the li!en!e to reside.
&n'uiries
0. ,hether in0uiries are ne!essary is a 0uestion for the authority( 7. ' Aensington and
Chelsea 7*<C 3= p. <ayani $1""0% 22 .*.7. 90#. o)e'er( if an authority fail to
ma&e an in0uiry that no authority( a!ting reasonably( )ould ha'e failed to ma&e( then
the authority ha'e a!ted in error and the de!ision )ill be unla)ful.
0. In0uiries must be !ondu!ted in a!!ordan!e )ith publi! la) prin!iples and must be
rigorous and fair( )ith suffi!ient attention to detail $although the en0uiries need not
be of a CI/ le'el%( 7. ' Gra'esham <C 3= p. ,in!hester $1":#% 1: .*.7. 206. .he
s!ope of in0uiries does not e=tend to all those ne!essary to establish the truth of the
matter( merely to enable a de!ision to be made.
0. .he in0uiries should be !ompleted )ithin 33 )or&ing days( pursuant to para #.1# of
the Code of Guidan!e.
0urden of proof
0. It is not for the appli!ant to Hpro'eH his or her homelessness( see further 7. '
,oodspring /C 3= p. ,alters $1":9% 1# .*.7. 63. ,here there is doubt( the doubt
should be resol'ed in fa'our of the appli!ant $7 ' 2orth /e'on /C 3= p. *e)is ?1":1@
1 ,.*.7. 32:( also all ' ,ands)orth *<C $Appli!ation for Permission to Appeal%
?2009@ 3,CA Ci' 110%.
Test for interim accommodation
0. ,hilst the in0uiries are ongoing( the authority must se!ure a!!ommodation is made
a'ailable to the appli!ant if there is reason to belie'e that the appli!ant may be
homeless( eligible for assistan!e and in priority need; s.1::$1%.
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0. .his is a lo) threshold test. In essen!e( if an appli!ant presents and( )ith no
supporting do!umentation( informs the authority that he or she is a <ritish !itiIen(
homeless and is pregnant or has !hildren( the duty arises to se!ure a!!ommodation
is made a'ailable be!ause the authority ha'e reason to belie'e the person is
homeless( eligible and in priority need.
HO1#L#SS)#SS
Available accommodation
0. .he statutory definition is !ontained in s.165$1% A 1""# and pro'ides that a person
is homeless if he has no a!!ommodation a'ailable for his o!!upation in the DA or
else)here( )hi!h he is entitled to o!!upy by 'irtue of an interest in it or by 'irtue of
an order of a !ourt( has an e=press or implied li!en!e to o!!upy( or o!!upies as a
residen!e by 'irtue of any ena!tment or rule of la) gi'ing him the right to remain in
o!!upation or restri!ting the right of another person to re!o'er possession.
0. >or e=ample( in 7. $on the appli!ation of 8a!upima% ' 2e)ham *<C $2001% 33 .*.7.
1 it )as de!ided that an appli!ant )ho is a se!ure or assured tenant does not
be!ome homeless( i.e. lose the legal right to o!!upy( until a )arrant for a possession
order is e=e!uted( as the appli!ant has the right to remain pending e=e!ution of the
order. In 7. ' 2e)ham *<C 3= p. Ahan $2001% 33 .*.7. 2"( the !ourt rea!hed the
same !on!lusion( but stressed the appli!ants )ere threatened )ith homelessness
$see belo)%.
1eanin of accommodation
0. A!!ommodation is defined as a pla!e )hi!h !an fairly be des!ribed as
a!!ommodation( see 7. ' <rent *<C 3= p. A)ua ?1""#@ A.C. 55. .here is a number of
!ases )hi!h gi'e guidan!e as to )hat is not to be !onsidered to be a!!ommodation;
7. ' ,a'eney /C 3= p. <o)ers $1":2% 6" *.8.G. "22 F night shelter not
a!!ommodation- Alam ' .o)er amlets *<C ?200"@ 3,C 99 $Admin%- ?200"@ 2.P.C.
12 F an appli!ant )ho o!!upies temporary a!!ommodation pro'ided to him1her
pending en0uiries( re'ie) or appeal under s.1:: or s.209$9% is still homeless(
not)ithstanding the pro'ision of this a!!ommodation- 7. ' 3aling *<C 3= p. 8idhu
$1":1F:2% 2 .*.7. 95 F a )oman )ho left her 'iolent partner and found
a!!ommodation in a )omen+s refuge )as still homeless )hilst residing there.
1eanin of available
0. Pursuant to s.16# A 1""# must be a'ailable also to any other person )ho normally
resides )ith him as a member of his family( or any other person )ho might
reasonably be e=pe!ted to reside )ith him. .here are t)o aspe!ts to a definition of
Ha'ailableH- )hether the a!!ommodation is pra!ti!ally a!!essible and )hether it is
legally a'ailable.
0. 8ee the Code of Guidan!e( parti!ularly para. :.5 and :.#. 3=amples in!lude- 7. '
Peterborough City Coun!il 3= p. Carr $1""0% 22 .*.7. 20# $failure to !onsider the
appli!ant+s boyfriend and father of !hild part of the household% and 7. ' 8outh)ar&
*<C 3= p. 7yder $1""#% 2: .*.7. 5# )hi!h !on!erned a !arer.
Unable to secure entry to accommodation
0. Pursuant to s.16#$2% a person is also homeless if he !annot se!ure entry to his
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a!!ommodation. .his !o'ers the situation e.g. )here an appli!ant has been illegally
lo!&ed out or )here they ha'e a !ara'an but no)here to legally station it.
0. <egum $2ipa% ' .o)er amlets *<C ?2000@ 1 ,.*.7. 30#. .he respondent authority
de!ided that the appli!ant )as not homeless be!ause she had a!!ommodation
a'ailable for her o!!upation in <angladesh. er appeal to the !ounty !ourt )as
allo)ed on t)o bases. >irst( before the authority !ould !on!lude that a!!ommodation
)hi!h )as reasonable for her to !ontinue to o!!upy )as a'ailable to her( thus
satisfying s.165$3% of the ousing A!t 1""#( they had to be satisfied that the
a'ailability of su!h a!!ommodation had some degree of permanen!e. 8e!ondly $and
alternati'ely%( she )as homeless be!ause she !ould not se!ure entry to her
a!!ommodation in <angladesh $under s.165$2%$a%% as she did not ha'e the finan!ial
means to return to it. Allo)ing the authority+s appeal( the Court of Appeal held( on
the meaning of s.165$1% F and )hether the a!!ommodation )as a'ailable to the
appli!ant F that a!!essibility to a!!ommodation )as a rele'ant fa!tor in determining
the a'ailability of a!!ommodation under s.165$1%. .he authority )ere not re0uired(
ho)e'er( to ma&e in0uiries into the issue of a!!essibility unless it )as raised by the
appli!ant or )as indi!ated as a potential problem in the !ir!umstan!es.
+easonable to continue to occupy
0. 8e!tion 165$3% pro'ides that a person is not to be treated as ha'ing a!!ommodation
unless it is a!!ommodation )hi!h it )ould be reasonable for him to !ontinue to
o!!upy.
0. Pursuant to the de!ision in Ali ' <irmingham City Coun!il ?200:@ 3,CA Ci' 122:-
?200"@ 2 All 3.7. 501- Ban!hester City Coun!il ' Boran ?200:@ 3,CA Ci' 36:-
?200:@ 1 ,.*.7. 23:6 an appli!ant )ill be homeless if he1she does not ha'e
a!!ommodation )hi!h it )ould be reasonable for them to !ontinue to o!!upy
indefinitely1for the foreseeable future1 at least for as long as she1he other)ise )ould
if the authority did not inter'ene to reFhouse him1her. 8o the 0uestion is really- !an
the appli!ant be e=pe!ted to stay thereJ
0. .he ouse of *ords heard these t)o !ases as one. <aroness ale said the )ords
H!ontinue to o!!upyH in s.165$3% !onnote an element of loo&ing to the future as )ell
as to the present- a!!ommodation )hi!h it is unreasonable for a person to o!!upy for
a long period of time may nonetheless be reasonable to o!!upy for a short period.
.he test is lin&ed to suitability. .herefore in Ali the appli!ants !ould be left in their
!urrent a!!ommodation for a period of time. .he 0uestion of ho) long is primarily
one for the authority. 2e'ertheless there )ill be !ases )here it is too long and the
!ourt should de!lare a brea!h of the duty. It )as not la)ful to lea'e the families in
the a!!ommodation until a!!ommodation be!ame a'ailable under the Pt # allo!ation
s!heme. In Boran the appli!ant remained homeless in the refuge( it !ould not be
reasonable for her to o!!upy it indefinitely; a!!ordingly she !ould not ha'e be!ome
homeless intentionally )hen as&ed to lea'e.
0. In arou&i ' Aensington and Chelsea 7*<C ?2006@ 3,CA Ci' 1000- ?200:@ 1 ,.*.7.
6"6 the appli!ant )as statutorily o'er!ro)ded. 2ot)ithstanding this the authority
found it )as reasonable for her to !ontinue to o!!upy her flat( as there )ere many
families in the area )ho )ere more se'erely o'er!ro)ded. .he de!ision )as upheld
in the County Court and the Court of Appeal; an authority are only re0uired to ha'e
regard to o'er!ro)ding for the purposes of dis!harge( thus o'er!ro)ded
a!!ommodation is not ne!essarily unsuitable( the same applies to s.165$3% in order
to gi'e a !oherent and !onsistent !onstru!tion.
0. o) is the test of reasonable to !ontinue to o!!upy to be e'aluatedJ It has been
des!ribed as a subEe!ti'e test; 7. ' <rent *<C 3= p. B!Banus $1""3% 25 .*.7. #93.
.he de!ision in B!Banus )as !onsidered by the Court of Appeal in /enton '
8outh)ar& *<C ?2006@ 3,CA Ci' #23- ?200:@ .*.7. 11( )hi!h also !on!erned the
issue of intentional homelessness. In gi'ing Eudgment Arden *.J. said that as noted
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the earlier authority the matter had to be determined on all the fa!ts of the !ase( and
that the )ord HsubEe!ti'eH has to be understood in that sense. .hus( the approa!h is
not )holly subEe!ti'e in the 'ie) of the appli!ant( but has been !onstrued to mean
that the issue has to be determined on all the fa!ts of the !ase( in the light of the
appli!ant+s indi'idual !ir!umstan!es assessed obEe!ti'ely and ta&ing into a!!ount any
other rele'ant fa!tors; 2oh ' ammersmith and >ulham *<C ?2001@ 3,CA Ci' "05-
?2002@ .*.7. 59. Consistent( also )ith the approa!h in Ahmed ' *ei!ester City
Coun!il ?2006@ 3,CA Ci' :93- ?200:@ .*.7. #. *oo&ing at these authorities the
approa!h is !lear; in order to as!ertain )hether it is reasonable for an appli!ant to
!ontinue to o!!upy a'ailable a!!ommodation the authority+s offi!er should $i%
as!ertain the pre'ailing !ir!umstan!es that pertain to that a!!ommodation( and $ii%
ha'ing done that( !onsider1e'aluate the effe!t they ha'e on the appli!ant.
2iolence " Section 344(3)5 as amended by the Homelessness Act 6776
0. It is not reasonable to !ontinue to o!!upy a!!ommodation if( e'en though there
maybe a legal entitlement to do so if it is probable that this )ill lead to domesti!
'iolen!e or other 'iolen!e against the appli!ant or $a% against a person )ho normally
resides )ith him as a member of his family( or $b% any other person )ho might
reasonably be e=pe!ted to reside )ith the appli!ant.
0. Violen!e means 'iolen!e from another person or threats from another person )hi!h
are li&ely to be !arried out. Violen!e is domesti! if !arried out by a person asso!iated
)ith the 'i!tim. An Hasso!iated personH is any of the follo)ing( pursuant to s.16:$1%
i. married or formerly married persons- ii. !i'il partners or former !i'il partners- iii.
!ohabitants or former !ohabitants- i'. person )ho li'e or ha'e li'ed in the same
household- '. relati'es- 'i. those )ho ha'e agreed to marry one another $)hether or
not that agreement has been terminated%- 'ii. persons asso!iated be!ause of them is
a parent of a parti!ular !hild( or has had parental responsibility for the !hild.
0. <ond ' *ei!ester City Coun!il ?2001@ 3,CA Ci' 1599- ?2002@ 1 >.C.7. 5## raised the
0uestion of )hether the lo!al authority !ould ta&e into a!!ount that the appli!ant
!ould see& legal assistan!e to pre'ent the 'iolen!e. ,hether there is a ris& of
domesti! 'iolen!e is a 0uestion of pure fa!t Hde'oid of 'alue Eudgements about )hat
an appli!ant should or should not doH.
0. In Cemsha) ' ounslo) *<C ?2011@ DA8C 3- ?2011@ 1 ,.*.7. 933( the 8upreme
Court !onsidered again the meaning of H'iolen!eH in s.166 and held that H'iolen!eH
)as not a term of art( but )as !apable of bearing se'eral meanings and !ould !o'er
many types of beha'iour. .he statutory purpose )ould be better ser'ed by
interpreting the term Hdomesti! 'iolen!eH as in!luding physi!al 'iolen!e( threatening
or intimidating beha'iour and any other form of abuse )hi!h( dire!tly or indire!tly(
might gi'e rise to a ris& of harm. .he test is al)ays the 'ie) of the obEe!ti'e
outsider( ta&ing into a!!ount the parti!ular fa!ts( !ir!umstan!es and personalities of
the people in'ol'ed.
Local circumstances
0. 8e!tion 166$2% pro'ides that in determining )hether it )ould be( or )ould ha'e
been( reasonable for a person to !ontinue to o!!upy a!!ommodation( regard may be
had to the general !ir!umstan!es pre'ailing in relation to housing in the distri!t of the
lo!al housing authority to )hom he has applied for a!!ommodation or for assistan!e
in obtaining a!!ommodation.
Other circumstances
Page 9
0. 8e!tion 166$3% A 1""# allo)s the 8e!retary of 8tate to spe!ify other !ir!umstan!es
to be ta&en into a!!ount-
0. Affordability must be !onsidered; see also the omelessness $8uitability of
A!!ommodation% 4rder 1""#13209( see also 7. ' Islington *<C 3= p. <ibi $1""6%
2" .*.7. 9":.
0. .he Code of Guidan!e( para.:.30 F :.32 states that it is unli&ely for it to be
reasonable for an assured shorthold tenant )ith no defen!e to !ontinue to o!!upy
beyond the date in the s.21 noti!e.
0. 2or should a *A insist on seeing !ourt orders for former armed ser'i!es personnel
re0uired to lea'e a!!ommodation; para.:.33.
0. Code of Guidan!e para.:.39 additionally suggests the follo)ing fa!tors are
rele'ant; physi!al !hara!teristi!s- type of a!!ommodation e.g. refuges( dire!t
a!!ess hostels and !risis night shelters Hit should not be regarded as reasonable
for someone to !ontinue to o!!upy su!h a!!ommodation in the longer termH-
people fleeing harassment )hi!h falls short of a!tual or threats of 'iolen!e.
Threatened with homelessness
0. 8e!tion 165$9% pro'ides that a person is threatened )ith homelessness if li&ely to be
homeless )ithin 2: days. 8ee Ahan( abo'e; a person may not be homeless )hen a
!ourt order for possession has been made but they )ill be threatened )ith
homelessness and a!tion must be ta&en.
#L&8&0&L&T9
&ntroduction
0. A lo!al housing authority may not pro'ide assistan!e under the homelessness
pro'isions in Pt 6 of the ousing A!t 1""#( to persons from abroad )ho are ineligible(
by 'irtue of s.1:5 of the A!t. 3ligibility is determined by an appli!ant+s immigration
status.
0. .he general rule is that an appli!ant )ho is subEe!t to immigration !ontrol is eligible
for assistan!e if he !omes )ithin one of the !lasses pres!ribed by regulations. An
appli!ant )ho is not subEe!t to immigration !ontrol is only eligible if he has both a
right to reside in the DA and is habitually resident( though !ertain appli!ants are
e=empt from the habitual residen!e test.
0. A full re'ie) of all the rele'ant la) and statutory materials rele'ant in this area is
outside the s!ope of this )or&( )hat is follo)s is a!!ordingly( an o'er'ie). ,hene'er
a lo!al housing authority has reason to belie'e an appli!ant may be homeless or
threatened )ith homelessness( eligibility must be determined( see; s.1:9$1%.
0. ,hile an authority is entitled to rea!h its o)n de!ision as to an appli!ant+s
immigration status( any su!h de!ision is only for housing purposes and )ill be subEe!t
to a !ontrary de!ision by the immigration authorities. An authority is entitled to ta&e
an immigration de!ision of the DA <orders Agen!y at fa!e 'alue and is not re0uired
to !arry out its o)n further in'estigations to determine eligibility.
0. 3ligibility is not simply the first step in de!iding )hether an appli!ant is o)ed a duty
under Pt 6. It is also rele'ant in determining )hether an appli!ant is homeless and in
priority need. .his is be!ause s.1:5$9% re0uires authorities to !onsider the eligibility
of household members )here the appli!ant themsel'es is subEe!t to immigration
!ontrol( e=!ept for 33A and 8)iss nationals.
Page 10
0. ,hen !onsidering an appli!ation from su!h an appli!ant( authorities must !ontinue to
disregard any dependants or other household members )ho are ineligible for
assistan!e for the purpose of de!iding )hether the appli!ant is homeless or has a
priority need.
0. Appli!ants )ho are not subEe!t to immigration !ontrol( and all 33A and 8)iss
nationals( are no) able to rely on ineligible household members to pro'e that they
are homeless and1or in priority need. .his does not gi'e su!h appli!ants e=a!tly the
same rights as appli!ants )ho do not ha'e to rely on su!h household members. An
appli!ation pursuant to )hi!h the authority )ould not be satisfied that the appli!ant
)as homeless or had a priority need( but for a Hrestri!ted personH( is !alled a
Hrestri!ted !aseH. A restri!ted person is a person )ho is ineligible and subEe!t to
immigration !ontrol )ho either does not ha'e lea'e to enter or remain in the DA or
)ho has lea'e subEe!t to a !ondition of no re!ourse to publi! funds.
&mmiration control
0. >or eligibility purposes( there are t)o types of person- those )ho are subEe!t to
immigration !ontrol and appli!ants )ho are not.
(ersons sub:ect to immiration control
0. .he term Hpersons subEe!t to immigration !ontrolH is borro)ed from immigration
legislation and means a person )ho( under the Immigration A!t 1"61( re0uires lea'e
to enter or remain in the DA( )hether or not su!h lea'e has been gi'en. Generally
spea&ing( this means anyone )ho re0uires a 'isa to enter or remain in the DA. An
appli!ant )ho is subEe!t to immigration !ontrol )ill only be eligible if he !omes )ithin
one of the !lasses pres!ribed by Allo!ation of ousing and omelessness $3ligibility%
$3ngland% 7egulations 200#112"9. .here are fi'e !lasses;
0. Class A is a person )ho is re!orded by the se!retary of state as a refugee )ithin
the definition in art.1 of the 7efugee Con'ention and )ho has lea'e to enter or
remain in the DA.
0. Class < applies to a person )ho has e=!eptional lea'e to enter or remain in the
DA granted outside the pro'isions of the Immigration 7ules( and )hose lea'e to
enter or remain is not subEe!t to a !ondition re0uiring him to maintain and
a!!ommodate himself( and any person )ho is dependent on him( )ithout
re!ourse to publi! funds in the DA. 3=!eptional lea'e to enter or remain )as
abolished from 1 April 2003.
0. Class C applies to a person )ho is habitually resident in the DA( Channel Islands(
the Isle of Ban or the 7epubli! of Ireland and )hose lea'e to enter or remain in
the DA is not subEe!t to any limitation or !ondition( other than a person- )ho has
been gi'en lea'e to enter or remain in the DA upon an underta&ing gi'en by his
sponsor( )ho has been resident in the DA( the Channel Islands( the Isle of Ban or
the 7epubli! of Ireland for less than fi'e years beginning on the date of entry or
the date on )hi!h his sponsor ga'e the underta&ing in respe!t of him( )hi!he'er
date is the later( and )hose sponsor or( )here there is more than one sponsor( at
least one of )hose sponsors( is still ali'e.
0. Class / applies to a person )ho has humanitarian prote!tion granted under the
Immigration 7ules. >rom 1 April 2003( the ome 4ffi!e abolished 3*7 and
repla!ed it )ith humanitarian prote!tion and dis!retionary lea'e.
0. Class 3 applies to a person )ho is an asylum see&er )hose !laim for asylum is
re!orded by the 8e!retary of 8tate as ha'ing been made before 3 April 2000 and
in the !ir!umstan!es mentioned in one of the follo)ing paragraphs- on arri'al
Page 11
$other than on his re entry% in the DA from a !ountry outside the DA( the Channel
Islands( the Isle of Ban or the 7epubli! of Ireland( )ithin three months from the
day on )hi!h the 8e!retary of 8tate made a rele'ant de!laration( and the
appli!ant )as in Great <ritain on the day on )hi!h the de!laration )as made( or
on or before 9 >ebruary 1""# by an appli!ant )ho )as on 9 >ebruary 1""#
entitled to benefit under reg.6A of the ousing <enefit $General% 7egulations
1":6.
-ales
0. In ,ales( the Classes A to C are almost identi!al to those abo'e( but there are
separate !lasses / to J )hi!h should be !onsidered.
(ersons )ot Sub:ect To &mmiration $ontrol
0. Persons not subEe!t to immigration !ontrol di'ide into t)o groups- those )ho do not
re0uire lea'e to enter or remain in the DA( and those )ho are e=empt from the
re0uirement to ha'e lea'e to enter or remain in the DA.
Those -ho *o )ot +e'uire Leave To #nter Or +emain &n The UK
0. .he first group is those )ho do not re0uire lea'e to enter or remain in the DA( and
this group !omprises-
0. <ritish !itiIens-
0. Common)ealth !itiIens )ith the right of abode-
0. 33A nationals )ho are e=er!ising .reaty rights.
0. .hose )ho are e=empt from the re0uirement to ha'e lea'e to enter or remain in
the DA.
0. .he se!ond group is those e=empt from the re0uirement to ha'e lea'e to enter or
remain in the DA. .his group !ontains three main !lasses( namely( diplomats and
their households( ser'i!e personnel $of the DA and !ertain others% and members of a
ship or air!raft to depart )ithin 6 days of their arri'al.
#liibility Of (ersons )ot Sub:ect To &mmiration $ontrol
0. .he eligibility of persons not subEe!t to immigration !ontrol is determined by reg.# of
the Allo!ation of ousing and omelessness $3ligibility% $3ngland% 7egulations
200#112"9. .he general rule is that su!h appli!ants are eligible if they ha'e both a
right to reside and are habitually resident in the DA( though some appli!ants are
e=!luded from the habitual residen!e test. In Patmalnie!e ' 8e!retary of 8tate for
,or& and Pensions ?2011@ DA8C 11- ?2011@ 1 ,.*.7. 6:3( a !ase )hi!h in'ol'ed
eligibility for state pension !redit( the 8upreme Court held that the right to reside test
is indire!tly dis!riminatory but that su!h dis!rimination is Eustified be!ause its
purpose is to prote!t the resour!es of the DA against benefit tourism by persons )ho
are not e!onomi!ally or so!ially integrated )ithin this !ountry. A!!ordingly( there is
no dis!rimination on the grounds of nationality.
Habitual +esidence
Page 12
0. .he test of habitual residen!e applies to all persons from abroad )ho are not subEe!t
to immigration !ontrol and are returning to the DA. It therefore in!ludes <ritish
!itiIens. Generally spea&ing( t)o !onditions must be fulfilled. .here must be
residen!e for an appre!iable period of time su!h that it has be!ome habitual and )ill
or is li&ely to !ontinue to be habitual. 8e!ondly( there must be a settled intention to
reside. 8ee 8)addling ' AdEudi!ation 4ffi!er $C"01"6% ?1"""@ All 3.7. $3C% 216 and
2essa ' Chief AdEudi!ation 4ffi!er ?1"""@ 1 ,.*.7. 1"36.
#liibility Of (ersons )ot Sub:ect To &mmiration $ontrol
0. A person )ho is not subEe!t to immigration !ontrol is ineligible if-
0. he is not habitually resident in the DA( the Channel Islands( the Isle of Ban( or
the 7epubli! of Ireland-
0. his only right to reside in the DA is deri'ed from his status as a Eobsee&er or the
family member of a Eobsee&er( or is an initial right to reside- or
0. his only right to reside in the Channel Islands( the Isle of Ban or the 7epubli! of
Ireland is a right e0ui'alent to one of those mentioned in $b% abo'e.
0. In ,ales( a person not subEe!t to immigration !ontrol )ill be ineligible if-
0. he is not habitually resident in the DA( the Channel Islands( the Isle of Ban( or
the 7epubli! of Ireland-
0. his only right to reside in the DA is deri'ed from his status as a Eobsee&er or the
family member of a Eobsee&er( or is an initial right to reside $see /ire!ti'es
"013#9 and "013#5%.
0. A person )ho is not subEe!t to immigration !ontrol is e=empt from the habitual
residen!e test if he is-
0. a )or&er-
0. a self employed person-
0. an A: or A2 a!!ession !ountry )or&er )ho has a right to reside be!ause he is
!omplying )ith the rele'ant s!heme- i=. a person )ho is the family member of a
person spe!ified in $a% to $!% abo'e-
0. a person )ith a right to reside permanently in the DA by 'irtue of regulation
15$!%( $d% or $e% of the domesti! regulations-
0. a person )ho left the territory of Bontserrat after 1 2o'ember 1""5 be!ause of
the effe!t on that territory of a 'ol!ani! eruption-
0. a person )ho is in the DA as a result of his deportation( e=pulsion or other
remo'al by !ompulsion of la) from another !ountry to the DA(
0. a person )ho arri'ed in Great <ritain on or after 2: >ebruary 200" but before 1:
Bar!h 2011( immediately before arri'ing in Great <ritain had been resident in
Kimbab)e( and before lea'ing Kimbab)e( had a!!epted an offer( made by er
BaEesty+s Go'ernment( to assist that person to settle in the DA. .his )as inserted
)ith effe!t from 1: Bar!h 200".
0. .he e=emptions in ,ales are different( namely-
0. Persons )ho are )or&ers for the purposes of 7egulation 1#121#: or 1251160-
0. A: a!!ession !ountry nationals )ho are )or&ers in a!!ordan!e )ith )or&er
registration s!heme-
0. Persons )ith a right to reside pursuant to the 33A 7egs )hi!h is deri'ed from
/ire!ti'e #:13#0( 63119: or 65139-
Page 13
0. A person )ho left the territory of Bontserrat after 1 2o'ember 1""5 be!ause of
the effe!t on that territory of a 'ol!ani! eruption-
0. A person )ho arri'ed in Great <ritain on or after 2: >ebruary 200" but before 1:
Bar!h 2011( )ho immediately before arri'ing in Great <ritain had been resident
in Kimbab)e( )ho had a!!epted an offer( made by er BaEesty+s Go'ernment( to
assist that person to settle in the DA.
(+&O+&T9 )##*
Statutory *efinition
0. .he main definition of )ho is in priority need is in the statute; A 1""#( s 1:"$1%(
namely( any pregnant )oman or a person )ith )hom a pregnant )oman might
reasonably be e=pe!ted to reside( and any a person )ith )hom dependent !hildren
reside or might reasonably be e=pe!ted to reside.
*ependent $hildren
0. In 7. ' 4ldham B<C 3= p. Garli!& ?1""3@ A.C. 50" their *ordships determined that
!hildren are not in priority need in their o)n right. .he notion of dependen!y
!onnotes a relationship a&in to parent and !hild $as opposed to dependen!y arising
out of any other type of relationship( e.g. husband and )ife( or siblings%. It )as
subse0uently held that 1# and 16 year olds( if in fullFtime employment $in!luding
training s!heme% )ere not dependent( although not !onfined to finan!ial dependen!y(
see 7. ' Aensington and Chelsea 7*<C 3= p. Amarfio ?1""5@ 2 >.C.7. 6:6.
$hildren Of Separated (arents
0. ,ith regard to the position in the !ase of a !hild spending time bet)een separated
parents( there are three issues )hi!h arise for !onsideration; $i% )hether the !hild is
dependent on the appli!ant-$ii% )hether the !hild resides )ith the appli!ant- $iii% if
not !urrently residing( )hether the !hild may reasonably be e=pe!ted to do so. 8ee
7. $on the appli!ation of Painter% ' Carmarthenshire CC ousing <enefit 7e'ie)
<oard ?2001@ 3,C Admin 30:- ?2002@ .*.7. 23 and 7. ' 4=ford City Coun!il 3= p.
/oyle $1"":% 30 .*.7. 50#.
0. .he ouse of *ords !onsidered split residen!e in olmesFBoorhouse ' 7i!hmond
upon .hames *<C ?200"@ DA* 6- ?200"@ 1 ,.*.7. 913. .he parents agreed a shared
residen!e order but )hen the father applied as homeless the authority found that he
)as not in priority need. .his )as upheld by the ouse of *ords. ,hether a !hild !an
reasonably be e=pe!ted to reside )ith an appli!ant is a matter for the lo!al authority
)hi!h !annot be di!tated by the terms of any shared residen!e order.
2ulnerability
0. 8e!tion 1:"$!% pro'ides that a person )ho is 'ulnerable as a result of old age mental
illness or handi!ap or physi!al disability or other spe!ial reason( or )ith )hom su!h a
person resides or might reasonably be e=pe!ted to reside shall also be in priority
need. .he !ase of 7. ' Camden *<C 3= p. Pereira ?1"":@ C.4./. 31: !on!erns the
!lassi! formulation as to 'ulnerability. .he !ase !onsidered )hether a 92Fyear old
former drug addi!t )as in priority need. .he de!ision )as 0uashed as the authority
had applied the )rong test. It does not in'ol'e as&ing )hether the appli!ant is less
able to find a!!ommodation. 7ather it is )hether( )hen homeless( the appli!ant )ill
Page 14
be Hless able to fend for himself than an ordinary homeless person so that inEury or
detriment to him )ould ha'e resulted )hen a less 'ulnerable man )ould be able to
!ope )ithout harmful effe!tH.
0. .he proper appli!ation of the Pereira test )as further !onsidered in .etteh ' Aingston
upon .hames 7*<C ?2009@ 3,CA Ci' 1665- ?2005@ .*.7. 21- In 4smani ' Camden
*<C ?2009@ 3,CA Ci' 160#- ?2005@ .*.7. 22( the Appellant F a refugee from Aoso'o
F suffered depression and postFtraumati! stress disorder. After one su!!essful appeal
to the !ounty !ourt( the authority made a further finding that he )as not 'ulnerable(
this finding )as upheld by the !ounty !ourt. .he Court of Appeal dismissed a further
appeal. ,hen determining )hether a homeless appli!ant is in priority need be!ause
of a 'ulnerability( a lo!al authority should apply s.1:"$1%$!%( 1""# A!t( in its broad
and immediate statutory !onte=t( in!luding the need to determine priority bet)een
homeless persons. .he !ourt ga'e guidan!e on the Pereira test;
0. the test establishes that a person is 'ulnerable if he has su!h a lesser ability than
that of a hypotheti!al Hordinary homeless personH to fend for himself that he
)ould suffer greater harm from homelessness than )ould su!h a person- this is
ne!essarily an impre!ise e=er!ise- gi'en that authority are !harged )ith lo!al
appli!ation of a national s!heme of priorities against their o)n lo!al burdens(
de!isions on 'ulnerability are li&ely to be highly Eudgmental- a!!ordingly(
authorities are best pla!ed to ma&e su!h de!isions-
0. the test does not re0uire that an appli!ant should also be less able than an
ordinary homeless person to find a!!ommodation-
0. Appli!ation of the Pereira test in'ol'es a !omposite assessment of the appli!ant+s
!ir!umstan!es-
0. An authority must assess an appli!ant+s 'ulnerability on the assumption that he is
or )ill be!ome homeless( not on his ability to fend for himself )hile still housed-
0. Although authorities should pay !lose regard to medi!al e'iden!e( it is not for
medi!al e=perts to determine the issue of 'ulnerability.
0. 8ee also <ellouti ' ,ands)orth *<C ?2005@ 3,CA Ci' #02- ?2005@ .*.7. 9#( and
Crossley ' ,estminster City Coun!il ?200#@ 3,CA Ci' 190- ?200#@ .*.7. 2#(
$unusual in that it is a !ase )hi!h the appli!ant )on%( and 8imms ' Islington *<C
?200:@ 3,CA Ci' 10:3- ?200"@ .*.7. 20.
Other ;Special +eason; And 1ultiple $auses
0. In 7. ' Aensington and Chelsea 7*<C 3= p. Aihara .imes( Bay 1( 1""# the !ourt
reEe!ted an eEusdum generis approa!h to other spe!ial reason and the argument that
it )as limited to mental of physi!al !hara!teristi!s of an appli!ant. .he !ategory is
freeFstanding( unrestri!ted by any notion of physi!al or mental )ea&ness other than
that )hi!h is inherent in the )ord H'ulnerableH. It )ill( ho)e'er( e=!lude drug
addition )hen !onsidered alone( although the position )ith regard to the li&elihood of
relapse into addi!tion may be different( per Crossley ' ,estminster City Coun!il
?200#@ 3,CA Ci' 190- ?200#@ .*.7. 2#( see abo'e. 8ee; Crossley, also for multiple
!auses.
#merency
0. 8e!tion 1:"$d% pro'ides that a person )ho is homeless as a result of emergen!y su!h
as flood( fire or other disaster shall also be in priority need. 8ee further 7. ' <ristol
City Coun!il 3= p. <radi! ?1""5@ 3 >.C.7. 1:"( and iggs ' <righton and o'e City
Coun!il ?2003@ 3,CA Ci' :"5- ?2003@ 1 ,.*.7. 2291.
Page 15
#,tension Of (riority )eed $ateories
0. In 3ngland; the omelessness $Priority 2eed for A!!ommodation% $3ngland% 4rder
200212051 e=tended the statutory !ategories of persons in priority need;
0. A person )ho is aged 1# or 16 and is not a rele'ant !hild( i.e. in !are and to
)hom the so!ial ser'i!es authority do not o)e a duty under the Children A!t
1":"( s.20.
0. A person aged 1:F20 )ho at any time bet)een the ages of 1# and 1: )as( but is
no longer( loo&ed after( a!!ommodated or fostered( unless a rele'ant student.
0. A person )ho is 21 or o'er and is 'ulnerable as a result of ha'ing been loo&ed
after( a!!ommodated or fostered $other than rele'ant students%-
0. A person )ho is 'ulnerable as a result of ha'ing been a member of B+s regular
na'al( military or air for!es-
0. A person )ho is 'ulnerable as a result of ha'ing been in !ustody( )hether as a
senten!e( on remand or for !ontempt-
0. A person )ho is 'ulnerable as a result of !easing to o!!upy a!!ommodation by
reason of 'iolen!e from another person or threats of 'iolen!e from another
person )hi!h are li&ely to be !arried out.
0. 1#F16 year olds; .his group is automati!ally in priority need. .he authority !annot
simply postpone the de!ision pending re!on!iliation attempts( and not ma&e a
de!ision )hile the appli!ant turns 1:; 7obinson ' ammersmith and >ulham *<C
?200#@ 3,CA Ci' 1122- ?200#@ 1 ,.*.7. 32"5. If mediation )ould ta&e an appli!ant
beyond his or her 1:th birthday the authority is bound to rea!h its de!ision )ithout
a)aiting the out!ome( as F if unsu!!essful F the effe!t )ould other)ise be to depri'e
the appli!ant of his or her right to a full duty( using mediation not as a means of
a'oiding a finding of homelessness but as a potential means of dis!harging the duty.
2ote the de!isions in 7. $on the appli!ation of 8% ' 8utton *<C ?2006@ 3,C 11"#
$Admin%- ?2006@ 2 >.*.7. :9"( 7. $on the appli!ation of G% ' 8outh)ar& *<C ?200"@
DA* 2#- ?200"@ 1 ,.*.7. 12"" and 7. $on the appli!ation of .G% ' *ambeth *<C
?2011@ 3,CA Ci' 52#- ?2011@ 9 All 3.7. 953 on )hether a !hild is a Hrele'ant !hildH
and therefore has to be assisted under the Children A!t. >or the ,elsh regs( see .he
omeless $Priority 2eed% $,ales% 4rder 20011#06.
&)T#)T&O)AL HO1#L#SS)#SS
Statutory Test
0. Pursuant to s.1"1 AA person be!omes homeless intentionally if;
0. he deliberately does or fails to do anything-
0. in !onse0uen!e of )hi!h he !eases to o!!upy a!!ommodation-
0. )hi!h )as a'ailable for his o!!upation- and
0. )hi!h it )ould ha'e been reasonable for him to !ontinue to o!!upy; ss.1"1$1%.
0. An a!t or omission shall not be treated as deliberate if the appli!ant )as una)are of
a rele'ant fa!t and the a!t or omission )as in good faith; s.1"1$2%.
0. .he same test applies e0ually to persons )ho !ommit a!ts )hi!h !ause them to be
threatened )ith homelessness( sa'e for the fa!t that the 0uestion is that the a!t is
li&ely to result in the person being for!ed to lea'e their a!!ommodation; s.1"#$1%.
Page 16
;He deliberately does or fails to do anythin<<<;
0. ,hat is the a!t or omission )hi!h has !aused the appli!ant to lose their homeJ
3=amples are;
0. surrendering or terminating a tenan!y-
0. selling a home in )hi!h the appli!ant is at no ris& of losing it-
0. being e'i!ted or as&ed to lea'e the family home for a!ts of nuisan!e $see Code of
Guidan!e para.11.20$'%% or !riminal beha'iour $see for e=ample /enton '
8outh)ar& *<C ?2006@ 3,CA Ci' #23- ?200:@ .*.7. 11-
0. being e'i!ted for the )illful and persistent refusal to pay rent or mortgage
repayments $see Code of Guidan!e para.11.20$ii% and see also the omelessness
Code of Guidan!e for *o!al Authorities; 8upplementary Guidan!e on Intentional
omelessness( 5th August 200"%.
0. failing to defend a possession !laim in )hi!h there )as a 'alid defen!e-
0. failing to use !i'il remedies to se!ure reFentry to a subsisting tenan!y $see Code
of Guidan!e para.11.1:%- 'ii. in'iting indi'iduals $in!luding !hildren% to !ome to
li'e in the property )ith the ine'itable !onse0uen!e that the landlord de!ides to
gi'e noti!e to 0uit sin!e the property is o'er!ro)ded $see <ull ' 4=ford City
Coun!il ?2011@ 3,CA Ci' #0"- ?2012@ 1 ,.*.7. 203%.
0. A person )ill ha'e not ha'e !ommitted a deliberate a!t if;
0. being e'i!ted for rent arrears or mortgage arrears )hi!h ha'e resulted from
signifi!ant finan!ial diffi!ulties and the appli!ant )as genuinely unable to &eep up
the rent or mortgage payments e'en after !laiming benefits( and no further
finan!ial help )as a'ailable $see Code of Guidan!e para.11.1: and omelessness
Code of Guidan!e for *o!al Authorities; 8upplementary Guidan!e on Intentional
omelessness( 5th August 200"%.
0. they ha'e fled the home due to 'iolen!e or domesti! 'iolen!e. .he failure to
obtain a nonFmolestation order is not an omission that !aused homelessness $see
<ond ' *ei!ester City Coun!il ?2001@ 3,CA Ci' 1599- ?2002@ 1 >.C.7. 5##%-
0. they are e'i!ted pursuant to an order of the !ourt under s.21( ousing A!t 1""#
or pursuant to a noti!e to 0uit( in !ir!umstan!es )here there are not rent arrears
or nuisan!e-
0. a young person has been as&ed to lea'e the family home( through no fault of
their o)n.
-hose conduct.
0. .he authority is !on!erned )ith the !ondu!t of the appli!ant( not the a!ts of the
appli!ant+s household. ,here a member of the appli!ant+s household has been
responsible for deliberate a!ts )hi!h ha'e rendered the household homeless( the
0uestion for the authority is )hether the appli!ant )as a party to the deliberate a!t
or stood by( )hile the a!t )as !ommitted( )ithout obEe!ting to it $see 7. ' 2orth
/e'on /C 3= p. *e)is ?1":1@ 1 ,.*.7. 32:%.
0. .he !ourts ha'e upheld findings of a!0uies!en!e in the follo)ing !ases 7. ' 3aling
*<C 3= p. 8almons $1""1% 23 .*.7. 262 $turning a blind eye to rent arrears- 7. '
.o)er amlets *<C 3= p. Ahatun $1""5% 26 .*.7. 399 $not obEe!ting to the
husband+s de!ision to lea'e a!!ommodation( )hi!h )as reasonable to !ontinue to
o!!upy- 7. ' 3ast ertfordshire /C 3= p. <annon $1":#% 1: .*.7. 515 and 7. '
8)ansea City Coun!il 3= p. John $1":3% " .*.7. 55 $nuisan!e by appli!ant+s
!hildren1 lodger( respe!ti'ely%- 7. ' 8)ansea City Coun!il 3= p. .homas $1":3% "
Page 17
.*.7. #9 failure to defend a possession !laim.
0. .he !ourts ha'e 0uashed de!isions of a!0uies!en!e in the follo)ing !ir!umstan!es;
0. rent arrears had arisen be!ause the husband had spent the money on al!ohol $7.
' ,est /orset /C 3= p. Phillips $1":5% 16 .*.7. 33#%-
0. rent arrears had arisen be!ause the husband of the appli!ant had not paid the
mortgage( despite protests from the appli!ant that he do so $7. ' 3astleigh <C 3=
p. <eattie $2o.2% $1":5% 16 .*.7. 1#:%-
0. the appli!ant+s )ife F the sole tenant of a flat F surrendered her tenan!y to go and
li'e )ith another man and possession pro!eedings )ere ta&en to e'i!t the
appli!ant. .he !ouple later re!on!iled( but the husband )as able to rely upon his
opposition to the surrender as e'iden!e that he had not a!0uies!ed $7. ' Pen)ith
/C 3= p. .re'ena $1":5% 16 .*.7. 52#%-
0. !ondu!t !ommitted by the appli!ant+s husband( )hi!h preFdated their relationship
$7. ' illingdon *<C 3= p. Puhlhofer $1":5% 16 .*.7. 26:%.
;The act or omission was made in ood faith=;
0. .he 0uestion is not )hether the a!t or omission( )hi!h !aused the appli!ant to
be!ome homeless( )as reasonable( )ise or prudent( but rather )hether the a!t or
omission )as made honestly $see Dgiagbe ' 8outh)ar& *<C ?200"@ 3,CA Ci' 31-
?200"@ P...8.7. 19#5%. .he a!t of good faith must be the a!t )hi!h !auses the person
to be!ome homeless $see e.g. 7. ' .o)er amlets *<C 3= p. 7ouf $1""1% 23 .*.7.
9#0%.
0. Good faith does not e=tend to )ilful ignoran!e or )here an appli!ant has shut his
eyes to the ob'ious( e.g. )here an appli!ant a!ts Hon a )ing and prayerH by ignoring
the ad'i!e of her so!ial )or&er and mo'ing to larger a!!ommodation )ithout
!onsidering )hether she )ould be able to afford it $> ' <irmingham City Coun!il
?200#@ 3,CA Ci' 1926- ?2006@ .*.7. 1:% or by ta&ing out a large mortgage to fund
a ne) business in )hi!h there )as ne'er any proper !onsideration as to )hether it
!ould or )ould su!!eed $7. ' ,ands)orth *<C 3= p. 4n)udi)e $1""9% 2# .*.7.
302%.
0. .he failure to pro'ide ad'i!e and assistan!e to persons threatened )ith
homelessness F as re0uired by s.1"5$5% F is a material fa!tor )hen !onsidering if a
person a!ted in good faith $<ury B<C ' Gibbons ?2010@ 3,CA Ci' 326- ?2010@ .*.7.
33%.
;The applicant was unaware of a relevant fact=;
0. >or s.1"1$2% to apply the appli!ant must be ignorant of a rele'ant fa!t- not the legal
!onse0uen!e of her a!tions( e.g. being una)are of the effe!t of abandoning her
tenan!y )as not ignoran!e of a fa!t rather ignoran!e of the la) surrounding the
operation of a surrender $see 7. ' Croydon *<C 3= p. .oth $1"::% 20 .*.7. 56#%.
2or is an appli!ant able to rely upon a !ontention that they )ere una)are that( upon
mo'ing to another !ity )ithout any spe!ifi! promise of employment or housing based
on genuine in'estigation( they )ould be unable to obtain affordable housing in the
pri'ate se!tor or employment to pay for housing $7. ' ,estminster City Coun!il 3= p.
4beid $1""6% 2" .*.7. 3:"%.
0. 3=amples of )here an appli!ant has been found to be ignorant of a rele'ant fa!t;
0. the appli!ant )as una)are that she )as not re0uired to lea'e her tenan!y until
the !ourt ordered her to do so $Dgiagbe( see abo'e%-
0. the ta&ing of pri'ateFse!tor a!!ommodation in the belief that housing benefit
)ould !o'er all of the rent $4beid%-
Page 18
0. the appli!ant belie'ed that their !areFta&er )ould pay rent in their absen!e. .hey
had been una)are that he )ould fail to pay the rent and ris& their tenan!y be
repossessed $7. ' <arnet *<C 3= p. 4+Connor $1""0% 22 .*.7. 9:#.
;&n conse'uence of which he ceases to occupy accommodation<<<;
0. .here )ill often be se'eral a!ts )hi!h( on a first 'ie)ing( may ha'e !aused the
persons to be!ome homeless. It is important to identify )hi!h a!t it )as( be!ause
some a!ts may ha'e been !arried out in good faith and others not. In su!h !ases( the
authority must !onsider )hether;
0. homelessness is sho)n to ha'e been a reasonably li&ely !onse0uen!e of the
appli!ant+s deliberate a!t-
0. at the time the a!t )as !ommitted- and
0. bearing in mind that it is the appli!ant+s o)n responsibility for his homelessness
at )hi!h the statute is loo&ing.
0. In 8te)art ' *ambeth *<C ?2002@ 3,CA Ci' 653- ?2002@ .*.7. 90( the Court of
Appeal upheld a de!ision of the authority that the a!t )hi!h !aused the appli!ant to
be!ome homeless )as the !ommission of his !riminal a!t( i.e. drug dealing( )hi!h led
to his imprisonment. .he Court of Appeal reEe!ted the appli!ant+s argument that the
deliberate a!t )as the subse0uent failure of his sister to pay the rent( )hi!h resulted
in his e'i!tion for rent arrears.
0. In 7. ' <arnet *<C 3= p. 7ughooputh $1""3% 25 .*.7. #06( the Court of Appeal
upheld a de!ision of the authority that the a!t )hi!h !aused the appli!ant to be!ome
homeless )as misleading a building so!iety so as to pro'ide her )ith a mortgage(
)hi!h she )as unable to pay( rather than the fa!t that e!onomi! do)nturn had
resulted in her business generating less in!ome.
0. In ,at!hman ' Ips)i!h <C ?2006@ 3,CA Ci' 39:- ?2006@ .*.7. 33( the Court of
Appeal held that an authority had been entitled to !on!lude that the a!t )hi!h !aused
the appli!ant+s homelessness )as lea'ing rented a!!ommodation and pur!hasing a
property )ith higher mortgage payments than her rent had been. .he appli!ant )as
al)ays going to struggle to meet the payments and the fa!t that the husband lost his
Eob merely e=a!erbated( rather than !aused( the problem.
0rea>in the chain of causation
0. A person does not !ease to be Hintentionally homelessH merely by obtaining
a!!ommodation. .he person may !ease to be homeless but the intentionality )ill
sur'i'e unless either the a!!ommodation obtained is in the nature of a settled
residen!e- or there o!!urs some other super'ening e'ent or e'ents( )hi!h means
that the original intentionality is no longer !ausati'e or effe!ti'e.
0. .he best &no)n e=ample is )hen an appli!ant o!!upies settled a!!ommodation.
,hile it is al)ays a 0uestion of fa!t and degree as to )hether a!!ommodation in a
parti!ular !ase is settled( a!!ommodation may be unsettled if;
0. it is se'erely o'er!ro)ded-
0. the appli!ant )as li&ely to be e'i!ted be!ause she )as ne'er in a position to pay
the rent-
0. it is transient or temporary in nature( e.g. sharing )ith friends or family under a
li!en!e agreement e'en if it lasts for 20 months-
0. A!!ommodation let on an assuredFshorthold tenan!y F e'en if for only si= months
F is a pointer to)ards the a!!ommodation being settled $see; Anight ' Vale 7oyal
<C ?2003@ 3,CA Ci' 125:- ?2009@ .*.7. "%.
Page 19
;There occurs some other supervenin event=;
0. 3'ents( other than se!uring settled a!!ommodation( !an potentially brea& the !hain
of !ausation. .hus( in 7. ' arro) *<C 3= p. >ahia ?1"":@ 1 ,.*.7. 13"#( the Court
of Appeal held that the !hain of !ausation had been bro&en )hen the appli!ant+s
housing benefit !eased to be suffi!ient for the payment of her rent in unsettled
a!!ommodation and she )as e'i!ted. o)e'er( the inter'ening a!t must be
un!onne!ted to the temporary nature of the a!!ommodation. .hus( the !hain of
!ausation )as not bro&en )hen the appli!ant )as as&ed to lea'e by the person she
)as staying )ith be!ause that person )as hospitalised.
0. It )as inherent )ithin the temporary nature of her a!!ommodation that she )ould
ha'e ine'itably had to lea'e at some point. *i&e)ise( in 7. ' a!&ney *<C 3= p. AEayi
$1"":% 30 .*.7. 963( the authority )as entitled to !on!lude that the !hain had not
been bro&en )hen the appli!ant )as as&ed to lea'e temporary a!!ommodation
be!ause the person she )as staying )ith )as due to gi'e birth and needed the
spa!e. .he birth had been the trigger not the !ause of her homelessness.
Available for his occupation% reasonable to continue to occupy
0. HA'ailable for his o!!upationH and Hreasonable to !ontinue to o!!upyH ha'e the same
definition under ss.165 and 16# and are dealt )ith in more detail under the heading
HhomelessnessH.
LO$AL $O))#$T&O)
0. .he *o!al !onne!tion pro'isions of the A!t allo) one authority to pass the burden of
se!uring a!!ommodation for an appli!ant on to another lo!al authority in spe!ified
!ir!umstan!es.
0. .here are &ey do!uments other than the A!t and the Code of Guidan!e( in!luding the
*o!al Authority agreement and the omelessness $/e!isions on 7eferrals% 4rder
1"":1156:.
0. .he !ir!umstan!es in )hi!h duty !an be passed to another authority are-
0 2o lo!al !onne!tion )ith the area of the notifying authority-
0 Bust be a lo!al !onne!tion )ith the area of the notified authority-
0 Bust be no ris& of 'iolen!e in the area of the notified authority.
0. .here is also the opportunity to refer )here an appli!ation has pre'iously applied to
another lo!al authority and )as a!!ommodation( and )here the se!ond appli!ation(
to the notifying authority( is made )ithin a spe!ified period.
*efinition
0. A person has a lo!al !onne!tion )ith the distri!t of an authority if;
0. he has a !onne!tion )ith it; $i% be!ause he is( or in the past )as( normally
resident there( and that residen!e is or )as of his o)n !hoi!e- $ii% be!ause he is
employed there- $iii% be!ause of family asso!iations- or $i'% be!ause of spe!ial
!ir!umstan!es- or
0. he )as $at any time% pro'ided )ith a!!ommodation in that distri!t under s."5(
Immigration and Asylum A!t 1"""; A 1""# s.1""$1%( $#%.
Page 20
0. It is important not to pay so mu!h attention to the four grounds that insuffi!ient
regard is had to the )ords Hlo!al !onne!tion;H- additionally( the o'erriding
!onsideration is )hether there is a lo!al !onne!tion; 7. ' 3astleigh <C 3= p. <etts
?1":3@ 2 A.C. #13.
0. .he date for establishing )hether an appli!ant has a lo!al !onne!tion is the date of
the original de!ision( alternati'ely( at the date of the re'ie); Bohamed '
ammersmith and >ulham *<C ?2001@ DA* 56- ?2002@ 1 A.C. 596.
)ormal residence
0. A person+s normal residen!e is the pla!e )here he resides at the rele'ant time;
Bohamed ' ammersmith and >ulham *<C ?2001@ DA* 56- ?2002@ 1 A.C. 596(
abo'e( so long as that residen!e of is Hof !hoi!eH. Interim a!!ommodation pro'ided to
an appli!ant under A 1""# s.1:: is the pla!e )here that appli!ant is normally
resident and therefore !an !ount for the purpose of de!iding )hether a lo!al
!onne!tion e=ists; Bohamed abo'e. Contrast ho)e'er( those in hospital or detained
in prison.
#mployment
0. .he employment must be fairly settled and not of a !asual nature( but there is no
re0uirement that the employment be as an employee( thus( self employed persons
)ill also 0ualify under this head.
/amily associations
0. >amily asso!iations has a reasonably )ide meaning and !an in!lude( parents( siblings
or !hildren $in!luding adult !hildren%( stepFparents( grandparents( aunts( un!les or
!ousins Hpro'ided that are suffi!iently !lose lin&s in the form of fre0uent !onta!t(
!ommitment or dependen!yH( see 4Ibe& ' Ips)i!h <C ?200#@ 3,CA Ci' 539- ?200#@
.*.7. 91( and 7. ' ammersmith and >ulham *<C 3= p. A'di! $1""#% 2: .*.7. :"6
for e=amples( and the Code of Guidan!e.
Special circumstances
0. H4ther spe!ial !ir!umstan!eH is not defined )ithin the A!t( but see the Code for
e=amples- the margin of appre!iation gi'en to authorities is a substantial one. 8ee 7.
' ,estminster City Coun!il 3= p. <enni!he ?1""#@ 2 >.C.7. :25( 7. ' Vale of ,hite
orse /C 3= p. 8mith $1":5% 16 .*.7. 1#0( 7. ' Islington *<C 3= p. Adigun $1"::%
20 .*.7. #00( AlFAmeri ' Aensington and Chelsea 7*<C ?2009@ DA* 9- ?2009@ 2
A.C. 15"( 4smani ' arro) ?2009@ DA* 9- ?2009@ 2 A.C. 15".
0. An appli!ant+s medi!al !ondition !annot amount to a spe!ial !ir!umstan!e unless
treatment essential to his1her re!o'ery )as only a'ailable in the authority+s distri!t;
7. ' ammersmith and >ulham *<C 3= p. A'di! $1""#% 2: .*.7. :"6.
Asylum support accommodation
0. A person has a lo!al !onne!tion )ith an authority+s distri!t if s1he )as $at any time%
a!!ommodated there under IAA 1""" s."5 $asylum support%; A 1""# s.1""$#%
unless the appli!ation )as subse0uently pro'ided )ith a!!ommodation under s."5 in
another distri!t( or the a!!ommodation )as pro'ided in an a!!ommodation !entre
Page 21
under 2ationality( Immigration and Asylum A!t 2002( s.22.
0. ,here the person has been a!!ommodated in more than one distri!t under s."5(
s1he only has a lo!al !onne!tion )ith the last su!h distri!t and the pro'ision does not
apply to a!!ommodation pro'ided in an a!!ommodation !entre $under 2IAA 2003
s.22%; s.1""$6%.
0. .his ground of lo!al !onne!tion !ame into for!e in 2005 in order to re'erse the effe!ts
of AlFAmeri ' Aensington and Chelsea 7*<C ?2009@ DA* 9- ?2009@ 2 A.C. 15"( in
)hi!h the ouse of *ords held that an asylumFsee&er did not a!0uire a lo!al
!onne!tion )ith the distri!t he had been pla!ed by the 2ational Asylum 8upport
8er'i!e.
+eferral of housin duty
0. A referral of the duty to a!!ommodate !an only ta&e pla!e if the authority applied to
$the Hnotifying authorityH% )ould be subEe!t to the full duty( A2/ either of the
follo)ing applies; A lo!al authority )ill be entitled to rely on the lo!al !onne!tion
pro'isions )hen it is-
0 satisfied the appli!ant is homeless and in priority need-
0 not satisfied that the appli!ant be!ame homeless intentionally-
0 of the opinion that the !onditions for referral apply.
0. .he !onditions are that-
0 there is no lo!al !onne!tion )ith the area of the notifying authority-
0 there is a lo!al !onne!tion )ith the area of the notified authority-
0 either( the appli!ant $or any person reasonably e=pe!ted to reside )ith him1her%
has not suffered 'iolen!e $in!luding domesti! 'iolen!e% in the notified area( or( the
appli!ation has suffered 'iolen!e $other than domesti! 'iolen!e% in the notified
authority+s distri!t- but that it is not probably( if the 'i!tim returns( s1he )ill suffer
further 'iolen!e of a similar &ind $A 1""# s.1":$2%( $2A%%.
0. >or these purposes( H'iolen!eH means 'iolen!e from another person or threats of
'iolen!e from another person )hi!h are li&ely to be !arried out and 'iolen!e is
Hdomesti! 'iolen!eH if it is from a person )ith )hom is Hasso!iatedH )ith the 'i!tim;
A 1""# s.1":$3%.
0. .here is also the opportunity to refer )here an appli!ation has pre'iously applied to
another lo!al authority and )as a!!ommodation( and )here the se!ond appli!ation(
to the notifying authority( is made )ithin the spe!ified period of fi'e years plus the
period bet)een the date of the pre'ious appli!ation and )hen the appli!ant )as
pla!ed in the distri!t of the authority no) applied to; A$BP%$3%7 200# reg.3.
*ecision to refer
0. .he de!ision to refer is a dis!retionary one( thus there is no obligation on an
authority to refer( but a failure to !onsider )hether to e=er!ise the dis!retion
unla)ful( 7. ' 2e)ham *<C 3= p. .o)er amlets *<C ?1""1@ 1 ,.*.7. 1032- 7. '
3ast /e'on /C 3= p. 7obb $1"":% 30 .*.7. "22. >urther( an authority must !onsider
all possible bases of finding a lo!al !onne!tion )ithin their o)n distri!t before ma&ing
a lo!al !onne!tion referral; 7. ' 8lough <C 3= p. Ahan $1""5% 26 .*.7. 9"2.
0. A poli!y or pro!edure to refer in all !ases )here an appli!ant )as sho)n to ha'e a
legitimate lo!al !onne!tion else)here is not permitted. Authorities should !onsider
)hether in all the !ir!umstan!es it is appropriate to refer and should al)ays be
prepared to !onsider spe!ial !ir!umstan!es for not referring; 7. ' arro) *<C 3= p.
Carter $1""9% 2# .*.7. 32.
Page 22
0. In ma&ing their de!ision to refer( the notifying authority should ta&e full a!!ount of
the general housing !ir!umstan!es pre'ailing in both distri!ts and seriously !onsider
)hether the publi! interest re0uires that rehousing should be underta&en by the
notified authority rather than the notifying authority; 7. ' 2e)ham *<C 3= p. .o)er
amlets *<C ?1""1@ 1 ,.*.7. 1032( abo'e. .he notifying authority must notify the
appli!ant of the de!ision to refer and the reasons( s.1:9$9%.
0. Pending resolution( there is a duty on the notifying authority to se!ure that
a!!ommodation is a'ailable for the appli!ant.
(osition of the notified authority
0. .he notified authority are bound by the de!ision of the notifying authority( e'en
though the notified authority ha'e made a pre'ious de!ision that the appli!ant )as
intentionally homeless( e'en )here a different de!ision had been made pre'iously- 7.
' 8lough <C 3= p. 3aling *<C ?1":1@ G.<. :01.
0. ,here a notified authority disputes the referral( it should set do)n its reasons in full
)ithin ten days( omelessness $/e!isions on 7eferrals% 4rder 1"":1156:( 8!h.1(
paras 1 L 2.
+esolution of disputes
0. In default of agreement bet)een the notifying and notified authorities( the 0uestion
)hether the referral !onditions are satisfied must be de!ided by arbitration to an
independent panel of referees; see omelessness $/e!isions on 7eferrals% 4rder
1"":1156:.
0. .he referee must in'ite )ritten representations from both authorities( and may in'ite
)ritten or representations from any other person. .he referee must notify the
authorities as to the de!ision and the reasons.
0. A lo!al !onne!tion referral is 'oidable $rather than 'oid% if made unla)fully- )here
the notified authority do not a!!ept the referral( they should promptly !hallenge the
referral in Eudi!ial pro!eedings and not simply ignore it; 7. ' .o)er amlets *<C 3= p.
Camden *<C $1":"% 21 .*.7. 1"6. If there is a dispute bet)een authorities o'er a
referral( this does not affe!t the appli!ant 'is M 'is the notifying authority; 7. '
2e)ham *<C 3= p. .o)er amlets *<C ?1""1@ 1 ,.*.7. 1032( abo'e.
*#$&S&O)S
8enerally
0. 4n the !on!lusion of their in0uiries( the authority must inform the appli!ant of their
de!ision in )riting and( if it is ad'erse to the appli!ant( gi'e reasons and inform him
of his right to re0uest a re'ie) of the de!ision; s.1:9$3%. Dsually this notifi!ation
ta&es the form of a Hs.1:9 letter.H An authority !annot delay ma&ing the s.1:9
de!ision in order to enable a !hange of !ir!umstan!es to o!!ur( thereby denying( or
limiting the s!ope of the duty o)ed to( an appli!ant( see 7obinson ' ammersmith
and >ulham *<C ?200#@ 3,CA Ci' 1122- ?200#@ 1 ,.*.7. 32"5.
0. CA. In !ases )here the appli!ant may ha'e diffi!ulty understanding the impli!ations
of the de!ision( an authority should !onsider arranging for a member of staff to
pro'ide an e=planation of the notifi!ation in person( Code of Guidan!e( para.#.23.
Own decision
Page 23
0. .he authority must rea!h its o)n de!ision( and one authority !annot HrubberFstampH
the de!ision of another( 7. ' 8outh erefordshire /C 3= p. Biles $1":5% 16 .*.7. :2.
.he same prin!iple applies to de!ision of the !ourt( see olmesFBoorhouse '
7i!hmond upon .hames *<C ?200"@ DA* 6- ?200"@ 1 ,.*.7. 913 )here the de!ision
of a !ourt !on!erned shared residen!e of a !hild bet)een t)o parents( and
a!!ordingly re0uired the authority to determine )hether the appli!ant )as in priority
need.
1edical advice
0. ,ith regard to the treatment of medi!al ad'i!e( see 8hala ' <irmingham City Coun!il
?2006@ 3,CA Ci' #29- ?200:@ .*.7. :- the Court of Appeal set out guidan!e to be
applied )here an authority use a medi!al ad'isor to assist )ith the determination of
'ulnerability( )hi!h may be summarised as follo)s-
0. An authority should be !areful not to appear to be using spe!ialist medi!al ad'i!e
simply to shore up or pro'ide reasons for a negati'e determination ?1"@-
0. ,here an authority+s medi!al ad'isor is a General Pra!titioner but the appellant
addu!es the opinion of a spe!ialist( the authority must not fall into the trap of
thin&ing that they are !omparing Hli&e )ith li&eH )hen )eighing the t)o opinions
against one another ?22@-
0. .he authority+s ad'iser has the fun!tion of enabling it to understand the medi!al
issues and to e'aluate for itself the e=pert e'iden!e. In the absen!e of an
e=amination of the patient( the authority+s medi!al ad'iser+s ad'i!e !annot itself
!onstitute e=pert e'iden!e of an appli!ant+s !ondition. .he authority needs to ta&e
any absen!e of an e=amination of the appli!ant into a!!ount ?22F23@-
0. ,here an authority+s medi!al ad'iser does not e=amine an appli!ant he or she
may spea& to the appli!ant+s medi!al ad'iser about matters )hi!h need
dis!ussion. .he dis!ussion should be informal and only an agreed minute of it
should be!ome part of the !ase materials ?23@.
+easons
0. If a matter is determined ad'ersely to an appli!ant( it must gi'e reasons- see 8outh
<u!&inghamshire /C ' Porter $2o.2% ?2009@ DA* 33- ?2009@ 1 ,.*.7. 1"53 and
7obinson ' ammersmith and >ulham *<C ?200#@ 3,CA Ci' 1122- ?200#@ 1 ,.*.7.
32"5.
*&S$HA+8#
&nterim accommodation
0. ,here a homelessness appli!ant is ad'ised of the !onse0uen!es of a!!epting pri'ate
se!tor a!!ommodation and pro!eeds to do so prior to any de!ision under s.1:9 as to
the duty( if any( o)ed to him( the authority )ill be entitled to de!ide that he is not
homeless( see antonF7houila ' ,estminster City Coun!il ?2010@ 3,CA Ci' 1339-
?2011@ .*.7. 12.
!uality
Page 24
0. ,here a!!ommodation is pro'ided( e'en )here that a!!ommodation is pro'ided only
pursuant to the duty to pro'ide interim a!!ommodation !ontained in s.1:: $see Abed
' ,estminister CC ?2011@ 3,CA Ci' 190#%( the a!!ommodation must be HsuitableH.
,hen determining )hat !onstitutes suitable a!!ommodation an authority must ha'e
regard to the slum !learan!e and o'er!ro)ding parts of the ousing A!t 1":5 $Pts "
to 10( respe!ti'ely% and Pts 1 to 9 of the ousing A!t 2009 )hi!h deals )ith housing
!onditions and the !ontrol of houses on multiple o!!upation.
0. .he 8e!retary of 8tate has the po)er to add !ir!umstan!es to be ta&en into a!!ount(
by order( and has e=er!ised this po)er- omelessness $8uitability of A!!ommodation%
$3ngland% 4rder 20031332# and omelessness $8uitability of A!!ommodation%
$,ales% 4rder 200#1#50. Dnder these regulations( the authority is re0uired to
!onsider the finan!ial resour!es a'ailable to the person( the !osts of the
a!!ommodation( payments being made under a !ourt order to a spouse or former
spouse( any payments to made to support !hildren( )hether under a !ourt order or
the Child 8upport A!t 1""1 and the appli!ant+s other reasonable li'ing e=penses. In
3ngland( the omelessness $8uitability of A!!ommodation% $3ngland% 4rder
201212#01 also re0uires the authority to ta&e into a!!ount !ertain spe!ified matters
about the lo!ation of the a!!ommodation.
0. .he obligations under the ,elsh regulations are more e=tensi'e and in!lude the
spe!ifi! health needs of the person( the pro=imity and a!!essibility of the support of
the family or other support ser'i!es( and any disability of the person.
0. .here is a number of aspe!ts to !onsider )ith regard to suitability( generally( see 7. '
<rent *<C 3= p. A)ua ?1""#@ A.C. 55- )ith regard to standard( see 7. ' illingdon
*<C 3= p. Puhlhofer ?1":#@ A.C. 9:9( 7. ' *ambeth *<C 3= p. Campbell $1""9% 2#
.*.7. #1:( 7. ' Camden *<C 3= p. Jibril $1""6% 2" .*.7. 6:5( and 7. $on the
appli!ation of A% ' 2 *<C ?2001@ 3,C Admin 5:"( for se!urity see 7 ' ,ands)orth
*<C e= p ,ingro'e and 7. ' ,ands)orth *<C 3= p. Bansoor ?1""6@ G.<. "53( for
time( see 7. ' 2e)ham *<C 3= p. <egum $Bashuda% ?2000@ 2 All 3.7. 62( for
personal !ir!umstan!es 7. ' <rent *<C 3= p. 4mar $1""1% 23 .*.7. 99#( for ra!ial
harassment see Ahmed ' *ei!ester City Coun!il ?2006@ 3,CA Ci' :93- ?200:@ .*.7.
#.
0. A!!ommodation !an only be regarded as a'ailable for a person+s o!!upation if it is
a'ailable for o!!upation by him together )ith and any other person )ho normally
resides )ith him as a member of his family- or $b% any other person )ho might
reasonably be e=pe!ted to reside )ith him; s.16"( ousing A!t 1""#. .his need not
ne!essarily be a single unit of a!!ommodation in )hi!h a family !an li'e together(
e.g. it !ould be t)o units of a!!ommodation if they are so lo!ated that they enable
the family to li'e HtogetherH in pra!ti!al terms; 8harif ' Camden *<C ?2013@ DA8C
10- ?2013@ 2 All 3.7. 30".
0. As to suitable a!!ommodation for gypsies )ith a H!ultural a'ersionH to bri!&s and
mortar( see 8heridan ' <asildon <C $formerly <asildon /C% ?2012@ 3,CA Ci' 335-
?2012@ .*.7. 2". In A&htar ' <irmingham City Coun!il ?2011@ 3,CA Ci' 3:3- ?2011@
.*.7. 2: the Court of Appeal held that )here a lo!al authority ma&e an offer of
a!!ommodation to a homeless appli!ant under Pt 6( ousing A!t 1""#( they are not
obliged( in the offer letter( to gi'e reasons for their 'ie) that the a!!ommodation
offered is suitable( nor( on a re'ie) of the suitability of the a!!ommodation( are they
obliged to gi'e reasons for a de!ision in the homeless person+s fa'our that the
a!!ommodation )as not suitable.
(endin review
0. 4n!e the authority has notified the appli!ant as to the de!ision under s.1:9 as to
)hat duty( if any( is o)ed to him( the duty to pro'ide a!!ommodation !eases but is
repla!ed by a po)er( see s.1::$3%. .here is no obligation to !onsider )hether to
Page 25
e=er!ise the po)er until a re0uest is put by the appli!ant.
Advice and assistance
0. .hose )ho are homeless( eligible for assistan!e and not in priority need are o)ed the
ad'i!e and assistan!e duty !ontained in s.1"2$2%. .he right to ad'i!e and assistan!e
does not infer a duty of !are bet)een the authority and the appli!ant( see 3phraim '
2e)ham *<C $1""3% 25 .*.7. 206.
0. .hose )ho are homeless( eligible for assistan!e( in priority need( and not
intentionally homeless are also o)ed the ad'i!e and assistan!e duty !ontained in
s.1"2$2%( together )ith an additional duty that the authority se!ure that
a!!ommodation is made a'ailable Hfor su!h a period as they !onsider )ill gi'e him a
reasonable opportunity of himself se!uring a!!ommodation for his o!!upationH(
pursuant to s.1"0$2%.
The full housin duty
0. .he duty to)ard those )hom the authority is satisfied are eligible( homeless( in
priority need and not intentionally homeless is go'erned by s.1"3- the duty is to
se!ure that a!!ommodation is a'ailable for o!!upation by the appli!ant until the duty
to)ard the appli!ant !eases in a!!ordan!e )ith the se!tion.
0. /is!harge of the duty !annot be postponed for any e=traneous reason( 7. ' .o)er
amlets *<C 3= p. Ahali0ue ?1""9@ 2 >.C.7. 1069. .he duty may be dis!harged in
one of three )ays( by se!uring that suitable a!!ommodation pro'ided by it is
a'ailable for the appli!ant( by se!uring that the appli!ant obtains suitable
a!!ommodation from some other person or by gi'ing su!h ad'i!e and assistan!e as
)ill se!ure that suitable a!!ommodation is a'ailable from some other person.
0. .he authority shall !ease to be subEe!t to the duty under the se!tion if the appli!ant
!eases to be eligible for assistan!e( be!omes homeless intentionally from the
a!!ommodation made a'ailable for his o!!upation( a!!epts an offer of
a!!ommodation under Pt VI $allo!ation of housing%( or a!!epts an offer of an assured
tenan!y $other than an assured shorthold tenan!y%( or other)ise 'oluntarily !eases
to o!!upy as his only or prin!ipal home the a!!ommodation made a'ailable for his
o!!upation( s.1"3$#%.
0. .he authority shall !ease to be subEe!t to the duty under the se!tion if the appli!ant(
ha'ing been informed by the authority of the possible !onse0uen!e of refusal and of
his right to re0uest a re'ie) of the suitability of the a!!ommodation( refuses an offer
of a!!ommodation )hi!h the authority are satisfied is suitable for him and the
authority notify him that they regard themsel'es as ha'ing dis!harged their duty
under this se!tion( s.1"3$5%. .his applies e'en )here the offer is one of an assured
shorthold tenan!y( regardless of )hether the offer is of temporary or permanent
a!!ommodation.
0. >urther( the authority shall also !ease to be subEe!t to the duty under this se!tion if
the appli!ant( ha'ing been informed of the possible !onse0uen!e of refusal and of his
right to re0uest a re'ie) of the suitability of the a!!ommodation( refuses a final offer
of a!!ommodation under Pt #.
0. >ollo)ing amendments made by the *o!alism A!t 2011( s.19:( an authority+s duty
!an !ome to an end if the appli!ant a!!epts or refuses a pri'ate rented se!tor offer.
.his must be an offer of a fi=edFterm( assured shorthold tenan!y from a pri'ate
landlord( )hi!h is made )ith the authority+s appro'al; s.1"3$6AC%. .he term must be
for at least 12 months( or for su!h longer minimum period as my be pres!ribed. An
authority may not ma&e a pri'ate rented se!tor offer unless they are satisfied that
the a!!ommodation is suitable for the appli!ant and that it is reasonable for him to
a!!ept it. .he omelessness $8uitability of A!!ommodation% $3ngland% 4rder
Page 26
201212#01 sets out a number of !ir!umstan!es in )hi!h a pri'ate rented se!tor offer
!annot be suitable a!!ommodation.
+estricted cases
0. A restri!ted !ase means a !ase )here a *A )ould not be satisfied that the appli!ant is
homeless( eligible( has a priority need and is satisfied that he is not intentionally
homeless( but are only so satisfied by result of ha'ing regard to a restri!ted person
$s.1"3$3<%%. In restri!ted !ases( so far as is reasonably pra!ti!able( the authority
must bring their duty to an end by ad'ising the appli!ant of the possible !onse0uen!e
of refusal of an offer and that the appli!ant has the right to re0uest a re'ie) of the
suitability of the a!!ommodation offered( and !ausing to be made to the appli!ant an
offer a pri'ate a!!ommodation offer( )hether the offer is a!!epted or refused(
s.1"3$6AA% and $6A<%.
0. An offer of pri'ate a!!ommodation in these !ir!umstan!es must be an offer of an
assured shorthold tenan!y made by a pri'ate landlord to the appli!ation in relation to
any a!!ommodation )hi!h is( or may be!ome( a'ailable for the appli!ant+s
o!!upation( must be made )ith the appro'al of the authority( in pursuan!e of
arrangements made by the authority )ith the landlord )ith a 'ie) to bringing the
authority+s duty under this se!tion to an end( and the tenan!y must be offered as a
fi=ed term tenan!y $)ithin the meaning of Pt 1 of the ousing A!t 1"::% for a period
of at least 12 months.
+#2&#-S
0. In the e'ent that the s.1:9 de!ision has gone against the appli!ant( he is entitled to
a re'ie) of that de!ision( under s.202. Any de!ision may be the subEe!t of a re'ie)
e=!ept;
0. refusal to a!!ept a homelessness appli!ation-
0. or a de!ision to refuse to pro'ide interim a!!ommodation under s.1::$1%( both of
)hi!h !an only be !hallenged by Eudi!ial re'ie).
0. .he re0uest for a re'ie) should be made )ithin 21 days of notifi!ation of the s.1:9
de!ision; s.202$3%( although an authority may e=tend time if they so )ish. .he
re'ie) must be !arried out by a more senior offi!er and must in'ol'e notifying the
appli!ant of his right to ma&e representations in )riting pursuant to Allo!ation of
ousing and omelessness $7e'ie) Pro!edures% 7egulations 1"""161 reg.# $see also
all ' ,ands)orth *<C $Appli!ation for Permission to Appeal% ?2009@ 3,CA Ci' 110%
0. .he re'ie) )ill simply de!ide )hether or not the s.1:9 de!ision is !orre!t. o)e'er(
in order to ta&e into a!!ount information )hi!h may ha'e !ome to light sin!e the
s.1:9 de!ision( the s.202 re'ie) is !ondu!ted on the basis of the fa!ts as they are at
the date of the re'ie)( Bohamed ' ammersmith and >ulham *<C ?2001@ DA* 56-
?2002@ 1 A.C. 596. .here should be an opportunity afforded to the appli!ant to ma&e
representations( but see 3l Goure ' Aensington and Chelsea 7*<C ?2012@ 3,CA Ci'
#60- ?2012@ P...8.7. 1##9 for te!hni!al failures to !omply )ith reg. #$2% Allo!ation of
ousing and omelessness $7e'ie) Pro!edures% 7egulations 1"""161.
Oriinal decision deficient
0. If the re'ie)er ta&es the 'ie) that there is a defi!ien!y or irregularity in the s.1:9
de!ision( but that the a!tual result is !orre!t( he or she must send a Hminded toH
letter to the appli!ant e=plaining this and in'iting the appli!ant or someone a!ting on
Page 27
his behalf to ma&e further representations( )hether orally or in )riting or both orally
and in )riting( see Allo!ation of ousing and omelessness $7e'ie) Pro!edures%
7egulations 1"""161 reg.:$2%.
0. .his re0uirement !an be engaged )here( although the lo!al authority+s original
de!ision !ould not itself be faulted( there had been a !hange in the fa!tual position by
the time the re'ie) de!ision )as made su!h as to render the original de!ision
defi!ient( or )here the de!ision itself !hanged but the duty remained the same- see
Bitu ' Camden *<C ?2011@ 3,CA Ci' 129"- ?2012@ .*.7. 10.
0. ,hat is !lear is that the re0uirement is stri!t and there is no assessment of the
Heffe!tH of an authority+s failure to !omply )ith reg.:$2% on the appli!ant $i.e. any
material preEudi!e !aused%. It is suffi!ient that an appli!ant has been depri'ed on the
opportunity to e=er!ise the Hart of ad'o!a!yH. Boreo'er( in Ba&isi ' <irmingham City
Coun!il ?2011@ 3,CA Ci' 355- ?2011@ P...8.7. 1595( the Court of Appeal held that(
)here the re'ie)ing offi!er identifies a defi!ien!y in the original de!ision and informs
the appli!ant of the right to ma&e representations orally and1or in )riting an
appli!ant is entitled to an oral( fa!e to fa!e hearing if so re0uested. A re'ie) should
be !on!luded )ithin : )ee&s of the re0uest for a re'ie) ha'ing been made( see
Allo!ation of ousing and omelessness $7e'ie) Pro!edures% 7egulations 1"""161(
reg."$1%$a%.
0. It should go )ithout saying( but( as this is a publi! la) pro!edure( the appli!ant
should be gi'en suffi!ient reasons for the de!ision at both the s.1:9 and s.202 stage.
In parti!ular( if inade0uate reasons are gi'en in the s.1:9 de!ision( this alone !an
!onstitute a defi!ien!y )hi!h then obliges the re'ie)ing offi!er to ta&e the additional
pro!edural steps referred to at para.22 $abo'e%. .here is a po)er to house pending
re'ie); s.1::$3%.
A((#ALS
0. If both the s.1:9 and s.202 stages ha'e gone against an appli!ant( then he or she
may appeal to the !ounty !ourt on a point of la); s.209$1%$a%. .he appli!ant may
also appeal against the authority+s failure to notify of the re'ie) de!ision )ithin eight
)ee&s; s.209$1%$b%.
0. .he role of the !ounty !ourt Eudge is a&in to that of the Administrati'e Court on
Eudi!ial re'ie)( <egum $2ipa% ' .o)er amlets *<C ?2000@ 1 ,.*.7. 30#- <egum '
.o)er amlets *<C ?2003@ DA* 5- ?2003@ 2 A.C. 930. .he Eudge is therefore not
entitled to rea!h their o)n !on!lusions on the fa!ts( but is !onfined to re'ie)ing the
a!tions of the authority for their la)fulness in publi! la) terms.
0. In summary( the grounds for Eudi!ial re'ie) may be summariIed as illegality(
irrationality and pro!edural impropriety $Coun!il of Ci'il 8er'i!e Dnions ' Binister for
the Ci'il 8er'i!e ?1":5@ A.C. 369%. In order to su!!eed( the Appellant must satisfy at
least one of these grounds.
0. It is !lear that the !ourt does not ha'e any Eurisdi!tion to a!t as the primary fa!t
finder( see <ubb ' ,ands)orth *<C ?2011@ 3,CA Ci' 12:5- ?2012@ P...8.7. 1011.
4rdinarily( the s.209 appeal is from the s.202 re'ie) de!ision F hen!e the signifi!an!e
of appli!ants ensuring that all rele'ant materials are before the re'ie)er )hen the
s.202 pro!ess ta&es pla!e. As the !ourt+s Eurisdi!tion is limited to re'ie)ing the
de!ision $in light of the material before the de!isionFma&er%( ne) e'iden!e )hi!h )as
not before the re'ie)ing offi!er at the time the re'ie) de!ision )as made !annot be
!onsidered. .he appeal must be brought )ithin 21 days of the appli!ant being
notified of the s.202 de!ision; s.209$2%( although the !ourt may permit an appeal to
be brought out of time )here there is good reason for doing so; s.209$2A%.
0. Any su!h appli!ation for permission to bring a late appeal !an be made before or
after the timeFlimit has e=pired but if it is made after)ards( there must be a good
reason for the delay in applying for su!h permission; s.209$2A%$b%.
0. Pending the out!ome of an appeal( the authority ha'e a po)er to a!!ommodate the
Page 28
appli!ant if they had a duty to do so under ss.1::( 1"0 or 200; s.209$9%. It )ill be in
rare !ir!umstan!es that an authority )ill not ha'e had a duty to pro'ide
a!!ommodation under s.1:: )hilst in0uiries )ere made but it may be that an
appli!ant applied )hilst threatened )ith homelessness $2: days or less% and a!tually
be!ame homeless )hilst re'ie)ing the original de!ision.
0. 4n an appeal( the !ourt may ma&e su!h order !onfirming( 0uashing or 'arying the
de!ision as it thin&s fit; s.209. In general( if an administrati'e la) de!ision is
0uashed( the de!ision must be remitted to the de!ision ma&ing body for it to ma&e a
fresh de!ision. .he e=!eption to this rule arises )here the body properly dire!ting
itself !an only !ome to one de!ision( in )hi!h !ase the !ourt !an substitute that
de!ision for the one under re'ie); 3&)uru ' ,estminster City Coun!il ?2003@ 3,CA
Ci' 12"3- ?2009@ .*.7. 19.
Analysis
K#9 A+#AS O/ $O1(L#?&T9 O+ U)$#+TA&)T9
8enerally
0. Part VII of the A!t !ontains a !omplete statutory s!heme for the re!eipt and
pro!essing of appli!ations for housing assistan!e( and dra)s hea'ily on immigration
la) $parti!ularly )ith regard to the status of 33A nationals% )ith regard to the test of
eligibility.
0. .he poli!y and purpose of the A!t is to ensure that the assistan!e pro'ided to the
homeless does not !omprise the allo!ation of a se!ure tenan!y e=!ept )here the
appli!ant 0ualifies from the )aiting list maintained under Part VII F a laudable aim
gi'en the intense pressure on housing sto!&s. .he statute is supplemented by a
'oluminous body of !ase la) as to the tests of homeless( eligible( in priority need and
not intentionally homeless( )hi!h has sprung up both around the ousing A!t 1""#
and its prede!essor( the ousing $omeless Persons% A!t 1"66( together )ith the
ousing A!t 1":5( Pt 3.
0. >ollo)ing A)ua( the !on!ept of settled a!!ommodation )as s)ept a)ay and repla!ed
)ith a ne) notion that there )as nothing unsuitable or una!!eptable in
a!!ommodation )hi!h )as temporary or inse!ure( so long as the appli!ant )as not
threatened )ith homelessness )ithin 2: days F a further response to the de!reasing
a'ailability of housing sto!&.
0. >ollo)ing A)ua( the !on!ept of settled a!!ommodation )as s)ept a)ay and repla!ed
)ith a ne) notion that there )as nothing unsuitable or una!!eptable in
a!!ommodation )hi!h )as temporary or inse!ure( so long as the appli!ant )as not
threatened )ith homelessness )ithin 2: days F a further response to the de!reasing
a'ailability of housing sto!&. :#. .he amendments !ontained in the *o!alism A!t 2011
)ith regard to s.1"3 and ho) a *A may dis!harge duty to)ard an appli!ant are
plainly de'elopments in the same 'ein( albeit some 15 years after the de!ision in
A)ua. .here is little( if any( reason to belie'e that that tide )ill turn )ithin a similar
time frame and e'ery reason to belie'e that fifteen years after the passage of the
*o!alism A!t 2011 pressures on lo!al authorities are li&ely to be as !hroni! as they
are today( if not more a!ute.
#liibility
0. Gi'en the !onstant de'elopments in this area $often in a pure immigration !onte=t
)ith a &no!&Fon effe!t for housing la)%( and the interfa!e of domesti! la) )ith 33C
regulations( this is a 'e=ing area for pra!titioners. .he a!!ession of the A: and A2
Page 29
!ountries to the Dnion( and the differing regimes appli!able to their nationals ma&e
the assessment of eligibility a pro!ess )hi!h must be underta&en in se'eral steps and
)ith some !aution.
0. .he de'elopments of a body of !ase la) ha'e further !ompli!ated this area(
parti!ularly )ith regard to the definitions of- H)or&erH $in!luding Vatsouras '
Arbeitsgemeins!haft $A7G3% 2urnberg "00 $CF2210:% ?200"@ All 3.7. $3C% 696( >B<
$Dganda% ' 8e!retary of 8tate for the ome /epartment ?2010@ DAD. 996 $IAC%(
8e!retary of 8tate for ,or& and Pensions ' J8 $I8% ?2010@ DAD. 131 $AAC%( and
8e!retary of 8tate for ,or& and Pensions ' /ias ?200"@ 3,CA Ci' :06- ?2010@ 1
C.B.*.7. 9%( HselfFemployedH $in!luding Jany ' 8taatsse!retaris 'an Justitie $C2#:1""%
?2003@ All 3.7. $3C% 1"3 and 7. $on the appli!ation of .ilianu% ' 8o!ial >und Inspe!tor
?2010@ 3,CA Ci' 13"6- ?2011@ 9 All 3.7. 169%( HselfFsuffi!ientH( HstudentH(
Hpermanent right to resideH $in!luding 8e!retary of 8tate for ,or& and Pensions '
*assal ?200"@ 3,CA Ci' 156( /ias $abo'e%( 7. $on the appli!ation of <idar% ' 3aling
*<C $CF20"103% ?2005@ G.<. :12( .roEani ' Centre Publi! d+Aide 8o!iale de <ru=elles
$CPA8% $CF95#102% ?2009@ All 3.7. $3C% 10#5 and B!Carthy ' 8e!retary of 8tate for
the ome /epartment $CF93910"% ?2011@ All 3.7. $3C% 62"%( Hfamily membersH $see
PG L VG ?2006@ DAAI. 1"( <igia ' 3ntry Clearan!e 4ffi!er ?200"@ 3,CA Ci' 6"-
?200"@ 2 C.B.*.7. 92( Jia ' Bigrations'er&et $CF1105% ?2006@ G.<. 595( Pedro '
8e!retary of 8tate for ,or& and Pensions ?200"@ 3,CA Ci' 135:- ?2010@ P...8.7.
1509( and Beto!& ' Binister for Justi!e( 30uality and *a) 7eform $CF12610:% ?200"@
G.<. 31:%.
0. >urther diffi!ult de'elopments )ith regard to other rights to reside( parti!ularly in
respe!t of 33A nationals a!0uiring rights through their !hildren( ha'e !ome about
pursuant to art.12 of 7egulation 1#121#: $see <aumbast ' 8e!retary of 8tate for the
ome /epartment $CF9131""% ?2002@ 3.C.7. IF60"1, arro) *<C ' Ibrahim $CF
31010:% ?2010@ P...8.7. 1"13( .ei=eira ' *ambeth *<C $CF9:010:% ?2010@ P...8.7.
1"13( 8e!retary of 8tate for ,or& and Pensions ' J8 $I8% ?2010@ DAD. 396 $AAC%(
4&afor ' 8e!retary of 8tate for the ome /epartment ?2011@ 3,CA Ci' 9""- ?2011@
1 ,.*.7. 3061( Chen ' 8e!retary of 8tate for the ome /epartment $CF200102%
?2005@ G.<. 325( , $China% ' 8e!retary of 8tate for the ome /epartment ?200#@
3,CA Ci' 19"9- ?2006@ 1 ,.*.7. 1519( 3C4 $/ubai% ' B $I'ory Coast% ?2010@ DAD.
266 $IAC%( and 7uiI Kambrano ' 4ffi!e 2ational de l+3mploi $423m% $CF3910"%
?2012@ G.<. 2#5%.
0. .his is an area )hi!h )ill !ontinue to de'elop rapidly and should be !losely
monitored.
(rocedural considerations
0. Copious !ase la) also arises )here appli!ants argue that there ha'e been pro!edural
failures( parti!ularly )ith regard to original de!isions found to be defi!ient )here
reg.:$2% Allo!ation of ousing and omelessness $7e'ie) Pro!edures% 7egulations
1"""161( and to a lessor e=tent( reg.# of the same( are engaged.
0. <rea!hes of natural Eusti!e and pro!edural fairness are therefore more li&ely to
generate litigation in this area than failure to properly apply the substanti'e tests
!ontained in Pt VII of the A!t.
*ischare of duty
0. Another fruitful area for !hallenges to *A de!isions is )ith regard to dis!harge of any
duty o)ed to the same under s.1"3( and in!reasingly( s.1"0 of the A!t( as seen in
!ases su!h as antonF7houila ' ,estminster City Coun!il ?2010@ 3,CA Ci' 1339-
?2011@ .*.7. 12( Abed ' ,estminister CC ?2011@ 3,CA Ci' 190# and 8heridan '
<asildon <C $formerly <asildon /C% ?2012@ 3,CA Ci' 335- ?2012@ .*.7. 2".
Page 30
0. ,ith the imminent !hanges to s.1"3 pursuant to s.19: and s.19" *o!alism A!t 2011
$see belo) under possible future de'elopments F no date has presently been set for
the !oming into effe!t of these pro'isions%( this seems set to be a trend )hi!h is
li&ely to !ontinue.
LAT#ST *#2#LO(1#)TS
2one.
(OSS&0L# /UTU+# *#2#LO(1#)TS
0. .he la) in this area is !onstantly de'eloping )ith !ases in the higher !ourts most
li&ely to !on!ern pro!edural points( parti!ularly( !omplian!e )ith regs # and :
Allo!ation of ousing and omelessness $7e'ie) Pro!edures% 7egulations 1"""161.
(erformance of the main housin duty (s<3@A) " (rivate rented sector offer
0. 8e!tions 19: and s.19" *o!alism A!t 2011 )ill effe!t !hanges to the performan!e of
the main housing duty )hen they !ome into effe!t. .he primary effe!t of these
amendments )ill be to allo) *A+s to end the main duty by arranging for appli!ants to
be made an offer of suitable a!!ommodation in the pri'ate rented se!tor $Hpri'ate
rented se!tor offerH%. .he H0ualifying offerH that may presently be used to dis!harge
the s.1"3 duty )ill be repealed.
0. A ne) pri'ate rented se!tor offer )ill be;
0. an offer of an A8. made by a pri'ate landlord to the appli!ant in relation to any
a!!ommodation )hi!h is( or may be!ome( a'ailable for the appli!ant+s
o!!upation-
0. one made )ith the appro'al of the lo!al housing authority in pursuan!e of
arrangements made by the authority )ith the landlord( )ith a 'ie) to bringing
the authority+s duty to an end-
0. and be a fi=ed term tenan!y of at least 12 months.
0. Any su!h offer must be made in )riting. .he noti!e must inform the appli!ant of the
possible !onse0uen!es of refusal or a!!eptan!e of the offer and of the right to
re0uest a re'ie) of the suitability of the offer. In most !ases the appli!ant must be
ad'ised of his entitlement to reFapply if the a!!ommodation !omes to an end )ithin
the t)o year period( as set out belo).
0. .he pro'isions also pro'ide that )here a homeless appli!ant( )ho had pre'iously
a!!epted a pri'ate rented se!tor offer( subse0uently ma&es a fresh appli!ation for
homelessness )ithin t)o years of ha'ing a!!epted the first offer( that appli!ant )ill
be treated as being o)ed the main duty pro'ided he is still eligible and not
!onsidered to be intentionally homeless( regardless of )hether they in fa!t ha'e
priority need at the time of the later appli!ation( and )ill be deemed homeless at the
point )hen possession is sought.
0. In the e'ent of reFappli!ation( the authority )ill o)e an interim duty to pro'ide
a!!ommodation )hilst it !arries out its in0uiries as to )hether a main duty is o)ed.
.his duty )ill arise if the authority Hhas reason to belie'e that the duty under
s.1"3$2% may applyH $ne) s.1::$1A%%. .he full duty !an only be reFa!0uired on!e;
s.1"5A $#%.
0. .he present s.1"3$5% )ill be repla!ed )ith the follo)ing;
0 H$5% .he lo!al housing authority shall !ease to be subEe!t to the duty under this
Page 31
se!tion ifF$a% the appli!ant( ha'ing been informed by the authority of the possible
!onse0uen!e of refusal or a!!eptan!e and of the right to re0uest a re'ie) of the
suitability of the a!!ommodation )hi!h the authority are satisfied is suitable for
the appli!ant($b% that offer of a!!ommodation is not an offer of a!!ommodation
under Pt # or a pri'ate rented se!tor offer( and$!% the authority notify the
appli!ant that they regard themsel'es as !easing to be subEe!t to the duty under
this se!tion.H
HU1A) +&8HTS
0. .he re'ie) pro!edure !ontained in reg. :$2% Allo!ation of ousing and omelessness
$7e'ie) Pro!edures% 7egulations 1"""161 is not the determination of a !i'il right for
the purposes of art.# of the 3C7.
0. In <egum ' .o)er amlets *<C ?2003@ DA* 5- ?2003@ 2 A.C. 930( the ouse of
*ords held that the appli!ant+s right of appeal to the !ounty !ourt $under A 1""#
s.209% )as suffi!ient to ma&e the pro!edure !ompliant )ith art.#( e'en )here the
re'ie) )as !ondu!ted by an offi!er of the authority )ho )as not independent and
impartial- !omments to the !ontrary in Adan ' 2e)ham *<C ?2001@ 3,CA Ci' 1"1#-
?2002@ 1 ,.*.7. 2120 )ere in!orre!t.
#U+O(#A) U)&O) AS(#$TS
2one.
/urther +eadin
omelessness and Allo!ation( :th 3d.( *AG
ousing Allo!ations and omelessness( 2nd 3d.
3n!y!lopedia of ousing *a) and Pra!ti!e( *ooseleaf( $8)eet and Ba=)ell%