Development of a multiagency protocol to support people with No Recourse to Public Funds in Wolverhampton (UK)

Background

No Recourse to Public Funds (NRPF) status is applied to individuals and families subject to immigration control. The majority are unable to access most state-funded benefits, such as housing and welfare benefits that UK residents access in times of need. People with NRPF are of great public health importance, as they can face more difficulties and inequalities than the general population within the UK.^1–6 These needs can include physical, mental and emotional health issues, ⁵ such as domestic violence, housing issues, safeguarding concerns (children and adults), as well as economic, that is, the inability to provide for their families, without being able to access the support afforded to UK citizens.^3,5 During the COVID-19 pandemic, service users with NRPF status have ‘struggled to access food, shelter and subsistence support’, ¹ with children being at higher risk of social exclusion. ⁵

People with NRPF status are also unable to access benefits and safe refuge accommodation even if they are victims of serious crimes. ³ There are known cases of women with the NRPF status who suffered domestic violence resulting in death and women whose immigration status was a factor in the failure to access services to prevent death in a child. ³

In England, the Home Office does not publish the number of entrants who have the NRPF status ⁷ ; however, an ad hoc management information release publication highlighted the number of destitution applications from people with NRPF has significantly risen from 347 (Quarter 3, 2017) to 5665 (Quarter 2, 2020), a 16-fold increase. ⁷

When people with NRPF are victims of crime, the costs escalate for public sector agencies, such as the NHS and criminal justice services ³ due to the involvement of A&E, public health, the police, as well as the long-term impact on traumatised and abused adults and children. Individuals, children and families with NRPF are also more at risk of becoming homeless, as hostels for homeless people require their residents to have access to welfare benefits for funding, thus further exacerbating housing issues for people with NRPF and finding suitable shelter. ⁴

There is currently a paucity of research available about people with NRPF.^1,5 It is a relatively new visa status, introduced in the 1999 Asylum and Immigration Act. ⁸ Limited research available focuses on the impact on particular groups: South Asian women, social care, domestic violence, homelessness, and safeguarding children. ² Current research shows that there is a lack of trust of professional staff, as they are perceived to have little knowledge of NRPF, and were putting families at risk, such as by telling them to access the financial support they are not legally eligible for and thus compromise their residency in the UK. ⁵ Apart from the information on the NRPF Network, there appears to be a dearth of guidance on explicating and simplifying NRPF jargon and rules.

Wolverhampton’s NRPF Forum was set up to help reduce the inequalities faced by local residents with NRPF status, by engaging with public and voluntary sector staff working with people with a NRPF status to develop and create an easily accessible guide (‘protocol’) to help facilitate identification of appropriate cross-sector interventions and support.

Methods

Professionals’ views were sought on:

These professionals included maternity/health visitors, Headteachers, GPs, Local Authority Adult’s and Children’s Safeguarding, LA Education team, LA social worker lead for NRPF, NHS CCG, Wolverhampton Voluntary Sector Council (WVSC), and the Refugee and Migrant Centre.

Results

Four major themes emerged through these discussions:

Evidence of best practice for how children and families, and adults, with NRPF, can be supported is detailed on the NRPF Network website; however, from speaking to local stakeholders, it was clear that a summarised version was needed.

As a result of the insight gleaned from engagement with the stakeholders from the Wolverhampton NRPF forum, a multiagency protocol was developed containing the following sections:

Discussion

The NRPF status has affected many migrant families, leading some into poverty, unsustainable debt, and insecure housing.^9,10 The NRPF Network is a valuable resource, which contains detailed information regarding NRPF, including the legalities of who can and cannot be supported. Some of this information was simplified for inclusion in the protocol. The development of this protocol is important in raising awareness of the need to share information between organisations, especially when a vulnerable child/adult moves LA areas.

During the development of the protocol, it became evident that most professionals involved in supporting people with NRPF lacked some knowledge to help them provide efficient and effective support: this included not understanding the different types of NRPF statuses, the differences in the funds and support people with NRPF could access, or what the professional signposting mechanism was locally. By developing a protocol, creating online information resources for people with NRPF, and arranging training for multiagency partners, Wolverhampton is now better equipped to support and safeguard people with NRPF.

In addition to this, the local website, Wolverhampton Information Network (WIN), was updated to ensure there was a specific webpage with links to all known services which support people with NRPF. In England, Wolverhampton was one of only five LAs which had publicly available NRPF policies that were accurate and up to date. ¹ As a result of the production of the protocol, further discussions were had about the support pathways, and the agreed criteria regarding NRPF, resulting in the strengthening of safeguarding protocols.

A key insight was that having a simple protocol with the key information in a readily accessible format will help professionals in busy roles feel competent and confident to help people with NRPF, to confidently signpost to appropriate services; signpost to voluntary sector services; and understand what NRPF means, the confusion around which has caused stakeholders involved in this process to feel a sense of limited understanding on NRPF referral processes.

While this protocol was written pre-COVID-19, it is still an important reminder of the adversities that people with NRPF are likely to experience. The COVID-19 pandemic is widening existing health inequalities. ¹⁰ Given the current climate of difficulties faced, there is a heightened awareness of these difficulties experienced by people with NRPF, as they are unable to claim the same support as British residents during this period of uncertainty. While British people can claim welfare benefits if their employment situation changes/worsens, those with NRPF are not afforded this necessity.^1,3,4,6,10

Recent legal changes (June 2020) mean that if a family are destitute, or have proven they are about to become destitute, the Home Office is legally obliged to lift, or not impose the NRPF status, meaning the family can access public funds. This only applies to people who have a family with children or are on ‘private life routes’. Another recent legal change affects women who came to the UK on spousal visas, who then report domestic violence: these women are entitled to the Destitute Domestic Violence concessions for 3 months while applying for an Indefinite Leave to Remain. ⁶ Other victims of domestic violence with different visa types are not afforded this right, ⁶ and male domestic violence victims with NRPF find it harder to get support, perpetuating the inequalities already faced by people with NRPF. This will have a significant impact on a small subsection of the NRPF population affected by COVID-19 and furlough/job loss but provides positive steps going forward while the country is in recovery.

It is important to ensure, especially in the current climate, that this vulnerable NRPF population is not forgotten. Not all can access housing support or welfare benefits. ¹⁰ Many who have work visas are usually able to cope financially, but in these uncertain times of job losses, it is important to be aware of the potential increase in the number of vulnerable. ¹⁰ Under the Care Act (2014), families with children are more easily supported; however, there is a lack of legal support available for adults. This is a potential cause for concern that requires immediate review, and potential amendments (temporary or permanent) to the support that organisations can legally provide.

Although the UK government has provided additional support during the pandemic for the NRPF population, more is needed. It is envisaged that this localised protocol will help professionals to understand the current legalities regarding NRPF and allow them to identify relevant support for NRPF individuals/families, ameliorating their vulnerabilities.