In summing up for the Government, I will comment on issues raised by Deputies who have spoken on this motion. I will also summarise the Government's position on this important issue.
The problem of homelessness is multifaceted. It has many complex origins and rarely arises in isolation. Homelessness may arise as a result of family difficulties, alcohol or drug abuse, mental illness, unemployment or bad luck — this list is not exhaustive. In addition, because of trends in the housing market, people entering the market may find the price of buying their first home prohibitive.
As my colleague, the Minister of State at the Department of Health and Children, Deputy Fahey, pointed out last night, we are living through a time of unprecedented change in Irish society. Many aspects of this change are beneficial but the benefits have come at a price and people who would have had a role in a more traditional society have been left behind.
Young people are particularly at risk in a situation where society no longer acts to reinforce the family and does not promote social cohesion as was the case. Problems which previously did not arise to anything like their present extent now fall to statutory and voluntary agencies to deal with, and these agencies are responding to the challenge. Young people can encounter particular problems with alcohol and drugs and while health boards and the health promotion unit of my Department are active in developing and delivering innovative programmes to help young people cope with these potential problems, we must recognise that there will be casualties. However, action is being taken in this area and the problem of young homelessness will continue to be addressed.
The necessary legislation, the Child Care Act, 1991, assigns to health boards responsibility for promoting the welfare of children who are not receiving adequate care and protection and obliges health boards to provide childcare and family support services. Boards are also required to make suitable accommodation available for children who are homeless. Health boards must review their services annually and, in a more recent development, must submit service plans to my Department identifying priorities for each year. My Department funds boards on the basis of these plans.
It is important to note that very significant additional funding has been made available to allow the full implementation of the Child Care Act. From 1993 to the end of 1997 an additional £43.5 million on an annualised basis has been allocated to health boards for this purpose and a further £8 million will be made available during 1998. In addition, capital investment of £5 million is provided for in 1998. This represents a very significant commitment by successive Governments to the development of childcare and family support services, including services for the young homeless.
Investment in services for the homeless is directed to the areas of greatest need and is mainly targeted at the Eastern Health Board. There is no doubt that the Eastern Health Board, and the greater Dublin area in particular, has a wider range of problems than any other part of the country. That is not to say that other parts of the country do not have to cope with the problem of homelessness — far from it. It is merely to recognise that large urban areas have more than their share of problems.
My colleague, the Minister of State at the Department of Health and Children, Deputy Fahey, outlined last night the main developments which have been financed in the Eastern Health Board area. These initiatives are designed to provide a practical response to the problem and also to resource the Eastern Health Board to deal with the problems it faces. The Minister also referred to the need for an integrated range of measures to prevent problems arising in the first place and this is another area in which all health boards have responded so that they can provide the necessary supports for families in difficulty. However, this is clearly an area that would merit greater attention in future.
I now wish to address the broader issue. While Deputy Stagg was kind enough last night to speak approvingly of what was being done in relation to homelessness among young people, he was somewhat critical in regard to adult homelessness. This response was, I think, unmerited. In his contribution earlier in the debate my colleague, the Minister of State at the Department of the Environment and Local Government, Deputy Molloy, outlined the situation in relation to homeless people, for whom he has responsibility. He noted that while health boards traditionally had a leading role in providing accommodation for homeless people, responsibility transferred to the local authorities following the enactment of the Housing Act, 1988. However, as health boards had developed a wealth of experience and expertise in assessing and responding to the needs of homeless people, they continue to be involved in this area.
In particular, the arrangements in the Dublin area are a good example of co-operation between local authorities and health boards. The Homeless Persons Unit is operated by the board. It arranges emergency accommodation, as required, for homeless people on behalf of the Dublin local authorities. It also deals with the income support requirements of homeless people. In effect, it operates a one stop shop to meet the emergency accommodation and income support needs of homeless people.
The Dublin Homeless Initiative, involving the Dublin local authorities, the Eastern Health Board and the voluntary sector, is a logical extension of this partnership arrangement. My colleague and other speakers have paid tribute to the work of voluntary bodies in providing accommodation and services for homeless people. I echo this sentiment.
The procedures involved in providing accommodation and services for homeless people lend themselves to the flexible arrangements which voluntary bodies can provide. While we obviously want services to be cost effective, we do not want to lose the flexible response which is a trademark of voluntary bodies. In an increasingly complex society, it seems that more and more people have difficulty in coping. As several speakers said, homelessness is often a complex mix of factors such as family breakdown, alcohol or drug addiction, etc., compounded by factors such as poverty, unemployment and social exclusion. The response to homelessness, therefore, generally requires the provision of accommodation and other services. Unless there is a safety net of supports available when people become homeless, there is a danger that some vulnerable homeless people will slip into the world of crime and drug abuse.
I have referred, as have many other speakers, to the position in Dublin because nearly two-thirds of homeless people are in the Dublin area. While homelessness is largely a problem in the large urban areas it is also a problem, albeit of a different type, in smaller towns and rural areas. Anyone can become homeless for a variety of reasons. It is essential, therefore, that local authorities and health boards ensure that the necessary arrangements are in place to meet emergencies as and when they occur.
The Government's commitment to meeting housing needs is clear from the record levels of funding approved for the local authority and social housing programmes this year. Many homeless families are housed under these programmes but what is clear from this debate is the need for co-ordinated services and co-operation between the statutory and voluntary sectors to help homeless people find a route out of homelessness and back to more normal living.
The powers of local authorities to respond to homelessness are broad. Perhaps the most significant recent development has been the expanded local authority and social housing programme. The Government has made a commitment to maintain this programme. Many homeless families have benefited from this programme and capital funding has been significantly increased. Social housing measures are being developed and they play an important part in meeting housing needs, including those of homeless people.
The voluntary housing capital assistance scheme provides high standard accommodation for homeless people as well as for the elderly and people with disabilities. Since the inception of the scheme some £37 million has been paid in respect of projects for homeless people.
Organisations such as the Simon Community, Focus Ireland, the Society of St. Vincent de Paul, Respond and the Salvation Army have availed of the scheme to provide 470 units of accommodation for homeless people. In addition, a separate rental subsidy scheme funded by the Department of the Environment and Local Government has also been availed of by the voluntary sector.
There have been significant improvements in the range of voluntary housing measures to make them as attractive as possible to voluntary bodies providing accommodation for homeless people and other groups. More direct assistance is also required and the Department of the Environment and Local Government has made this available to homeless people and the bodies working on their behalf. Annual grants are made available to a number of voluntary bodies. Local authorities have extensive powers and these powers are being used. Funding is being provided and it is intended to continue with this policy.
The Government has accorded a high priority to this issue and we stand over our record.