Source · Select Committees · Housing, Communities and Local Government Committee
1st Report - England’s Homeless Children: The crisis in temporary accommodation
Housing, Communities and Local Government Committee
HC 338
Published 3 April 2025
Recommendations
3
Acknowledged
Mandate local authorities to conduct mandatory temporary accommodation inspections and publish annual reports.
Recommendation
Some local authorities are not taking sufficient account of the needs of children and families when making decisions on temporary accommodation placements. Many local authorities do not carry out any regular inspections of the conditions in the accommodation they use …
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Government Response Summary
The government stated it would consider strengthening the Homelessness Code of Guidance regarding safeguarding considerations for temporary accommodation placements and develop toolkits and practical guidance for placement management, but did not commit to mandatory inspections or additional funding.
Ministry of Housing, Communities and Local Government
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5
Deferred
Work with Ombudsman to review resourcing, jurisdiction, and powers for temporary accommodation complaints.
Recommendation
We are disappointed in the Minister for Homelessness and Democracy’s response that vulnerable families living in B&Bs should be expected to “raise a challenge in the courts or bring their concerns to the Local Government and Social Care Ombudsman” when …
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Government Response Summary
The government did not address the recommendation to review the Local Government and Social Care Ombudsman's resourcing or powers. Instead, it highlighted its aim to reduce emergency accommodation use for families and the ongoing £8 million Emergency Accommodation Reduction Pilots with 20 local authorities.
Ministry of Housing, Communities and Local Government
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6
Deferred
Update Code of Guidance and end family placements sharing facilities with single adults.
Recommendation
We are alarmed to hear examples of families housed in temporary accommodation that included spaces shared with single adults with a history of domestic abuse. This is completely inappropriate and poses a potential safeguarding risk to children. Currently, there is …
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Government Response Summary
The government deflected the recommendation to update the Code of Guidance on safeguarding in shared facilities by discussing existing reporting requirements for out-of-area placements and its efforts to improve the presentation, quality, and accessibility of this data.
Ministry of Housing, Communities and Local Government
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7
Deferred
Assess legislation suitability and update guidance to specify 'non-self-contained accommodation' for family protection.
Recommendation
The use of the term “B&B” in legislation means that the law does not prevent families being placed in similarly inappropriate accommodation, such as some hostels, which are not always covered by the six-week limit. (Conclusion, Paragraph 46) In its …
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Government Response Summary
The government did not directly assess the Homelessness (Suitability of Accommodation) (England) Order 2023 or the proposed change in terminology from 'B&Bs' to 'non-self-contained accommodation'. Instead, it noted challenges with local placements and stated it would consider ways to further define acceptable out-of-area placements.
Ministry of Housing, Communities and Local Government
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8
Rejected
Require Government strategy to end family placements in shared temporary accommodation within six weeks.
Recommendation
The Government’s forthcoming strategy on ending homelessness must set out a clear plan to end placements of families in temporary accommodation with shared facilities, starting by reducing and eliminating placements of over six weeks. (Recommendation, Paragraph 47) Out-of-area temporary accommodation
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Government Response Summary
The government rejected the recommendation to end placements of families in temporary accommodation with shared facilities, stating it does not agree such placements are never appropriate, but committed to reducing the use of emergency accommodation and eliminating B&Bs for families through the homelessness strategy and existing reduction pilots.
Ministry of Housing, Communities and Local Government
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10
Acknowledged
Require local authorities to report quarterly on out-of-area placements and publish H-CLIC data.
Recommendation
The Government must improve the quality of data on local authorities’ use of out-of-area placements. It should require all local authorities to report to the Department quarterly on instances of out-of-area placements as part of their H-CLIC data report, including …
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Government Response Summary
The government highlighted the potential of data linking and stated it is working across departments on programs like ECHILD and BOLD, exploring how these platforms could offer short-term solutions for linking temporary accommodation and pupil data, but did not commit to specific H-CLIC reporting or a public dashboard.
Ministry of Housing, Communities and Local Government
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11
Deferred
Issue guidance discouraging out-of-area property acquisition and consult on placement distance limits.
Recommendation
The Government must issue guidance to discourage local authorities from acquiring properties outside of their authority boundaries to use as temporary accommodation. Where this is not possible, the local authority must notify prospective host local authorities before it purchases any …
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Government Response Summary
The government deflected the recommendation, stating the Inter-Ministerial Group (IMG) is developing a long-term homelessness strategy and will review its purpose after publication, but did not address the specific requests for guidance on out-of-area property acquisition, pre-purchase notification, or consulting on distance limits.
Ministry of Housing, Communities and Local Government
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12
Deferred
Update Code of Guidance requiring local authorities to notify host authorities before out-of-area placements.
Recommendation
We are deeply concerned to hear that several local authorities may be falling short of their legal duties regarding out-of-area placements, particularly the requirement to notify the host authority after placements are completed. There is currently no requirement for local …
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Government Response Summary
The government deflected the recommendation to update the Code of Guidance for pre-notification of out-of-area placements. Instead, it mentioned the Inter-Ministerial Group's work on homelessness and plans to extend Awaab's Law to the private rented sector and temporary accommodation through future regulations and consultation.
Ministry of Housing, Communities and Local Government
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14
Deferred
Provide update on connecting homelessness data with public services and improve related data collection.
Recommendation
The Government should provide an update on its efforts to connect homelessness data with data from other public services, including health data, to take a more holistic approach to understanding the drivers of homelessness in England. It should also consider …
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Government Response Summary
The government did not address the recommendation to update on connecting homelessness data with other public services or improving data collection for A&E, GP, and school absenteeism. Instead, it highlighted general efforts to publish a homelessness strategy, increase homelessness funding, boost affordable housing, and progress the Renters' Rights Bill.
Ministry of Housing, Communities and Local Government
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16
Deferred
Provide and publish detailed updates on Inter-Ministerial Group work, meetings, attendees, and family engagement.
Recommendation
In its response to this Report, the Government should provide: • an update on the work of the Inter-Ministerial Group to date; • the dates and attendance of any Inter-Ministerial Group meetings since January 2024; • the names of each …
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Government Response Summary
The government did not provide any of the requested updates on the Inter-Ministerial Group (IMG), its meetings, attendance, or engagement with children and families. Instead, it detailed funding for the Local Authority Housing Fund, efforts to boost affordable housing supply, and plans for the Future Homes Standard.
Ministry of Housing, Communities and Local Government
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17
Deferred
Consider extending Awaab's Law to temporary accommodation and require rights information for residents.
Recommendation
The Group should consider how Awaab’s Law will be extended to temporary accommodation. The strategy on ending homelessness must clearly outline how all accommodation providers will be expected to fulfil this new requirement. Once Awaab’s Law is in force in …
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Government Response Summary
The government did not address the recommendation concerning the extension of Awaab's Law to temporary accommodation, nor did it commit to outlining this in the homelessness strategy or requiring local authorities to provide information on tenant rights. Instead, it focused on its commitment to increasing social and affordable housebuilding through various funding programmes and development policies.
Ministry of Housing, Communities and Local Government
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18
Deferred
Mandate the national homelessness strategy to ensure ministerial ownership and accountability for progress.
Recommendation
The Group should also consider whether the current balance of responsibilities for homelessness policy between local authorities and central government is compatible with a national strategy on tackling homelessness. The strategy on ending homelessness must address how government ministers will …
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Government Response Summary
The government recognized the importance of balancing responsibilities and accountability for homelessness policy, stating that the forthcoming homelessness strategy will provide more detail on these matters.
Ministry of Housing, Communities and Local Government
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19
Accepted in Part
Publish the strategy on ending homelessness by July 2025 and provide quarterly updates.
Recommendation
The Group should publish its final output, a strategy on ending homelessness, by July 2025—before the summer recess—so that the Government, homelessness organisations, and local authorities have sufficient time to start implementing the strategy and making meaningful progress towards ending …
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Government Response Summary
The government commits to publishing the homelessness strategy later this year, but defers a review of the Inter-Ministerial Group's purpose until after publication, not committing to ongoing quarterly meetings or updates. It also highlights current funding increases and legislative progress on related issues.
Ministry of Housing, Communities and Local Government
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22
Not Addressed
Evaluate the link between welfare reforms, Local Housing Allowance, and homelessness prevention funding.
Recommendation
MHCLG and the Department for Work and Pensions must use the Inter- Ministerial Group as an opportunity to evaluate the link between welfare reforms and homelessness, particularly regarding LHA rates. We agree with the Government on the principle that, as …
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Government Response Summary
The government reiterated its spending on housing support, the rationale for LHA rates and the HPG ringfence, and its commitment to monitoring HPG spend, but did not explicitly commit the Inter-Ministerial Group to evaluate the link between welfare reforms/LHA rates and homelessness or the impact of the HPG ringfence.
Ministry of Housing, Communities and Local Government
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23
Accepted
Extend support for local authorities to acquire temporary accommodation, including empty affordable homes.
Recommendation
Local authority owned housing for temporary accommodation is a more cost-efficient means of providing higher quality temporary accommodation for families in the long term. It is unacceptable that some affordable homes are currently sitting empty while families are stuck in …
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Government Response Summary
The government accepted the recommendation, increasing the Local Authority Housing Fund by £50 million to £500 million to help local authorities acquire temporary accommodation, including empty affordable homes, within their areas, and committed to publishing the Future Homes Standard to address environmental requirements.
Ministry of Housing, Communities and Local Government
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24
Accepted in Part
Ensure social and genuinely affordable housing comprises a substantial proportion of the 1.5 million homes target.
Recommendation
The Government clearly recognises the scale of the homelessness crisis in England, and we welcome the scale of the Government’s ambition to tackle it. We welcome the Government’s target to deliver 1.5 million new homes during this Parliament, however, as …
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Government Response Summary
The government committed to significantly increasing social and affordable housing, with a particular focus on Social Rent homes, backed by an additional £2.8 billion investment, and will outline actions in the forthcoming long-term housing strategy, though it has not yet set a specific affordable housing target.
Ministry of Housing, Communities and Local Government
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Conclusions (8)
1
Conclusion
Accepted
The appalling conditions in some temporary accommodation in England are utterly shameful. We are concerned that issues of poor-quality temporary accommodation continue to persist, even though it is now over five years since the then Children’s Commissioner described these conditions as “simply inappropriate places for a child to be growing …
Government Response Summary
The government is taking action through the Renters’ Rights Bill to introduce powers to apply the Decent Homes Standard to the private rented sector, with the intention of bringing temporary accommodation within its scope, subject to consultation on implementation details and appropriate enforcement mechanisms.
2
Conclusion
Deferred
During our inquiry we have also heard that, for many families, life in temporary accommodation is far from ‘temporary’. In some cases, families spend years in temporary accommodation, stuck in limbo without the stability of permanent accommodation and knowing that their local authority may require them to move with little …
Government Response Summary
The government highlights the role of the Local Government and Social Care Ombudsman (LGSCO) in investigating complaints and notes that the LGSCO received increased funding for 2025/26 due to increased demand. However, it does not address the core concern regarding the extended duration of stays in temporary accommodation or the underlying housing crisis.
4
Conclusion
Accepted
The shortage of social housing in England has led local authorities to rely on using B&Bs and other accommodation with shared facilities as temporary accommodation, which are inappropriate and potentially unsafe environments for children to grow up in. The Government already requires that families are only housed in B&Bs as …
Government Response Summary
The government clarified that certain hostels are covered by the B&B definition in legislation and reiterated its stance that privately managed shared accommodation is generally unsuitable for families, though good quality shared facilities can serve as a stepping stone.
9
Conclusion
Accepted
Out-of-area temporary accommodation placements have a devastating impact on families, leaving them far from their extended family, friends, and support network, and causing disruption to children’s education. There is a lack of reliable data on how out-of-area placements are currently used, as local authorities are not required to report detailed …
Government Response Summary
The government stated it has laid provision in the Children’s Wellbeing and Schools Bill to introduce a single unique identifier (SUI) nationally to improve information sharing, and is considering further policy options across departments to improve the lives of children in temporary accommodation.
13
Conclusion
Acknowledged
Currently, schools are not always notified when a pupil becomes homeless or changes school due to a move into temporary accommodation. This prevents schools from offering additional support which those children may require. Similarly, GPs are often unaware that families are experiencing homelessness, leaving an incomplete picture of the health …
Government Response Summary
The government provided a vague commitment, stating that the homelessness strategy will provide more detail on balancing responsibilities and accountability between central and local government regarding children in temporary accommodation, without addressing the specific recommendation for a formalised notification system for schools and GPs.
15
Conclusion
Accepted
It is essential that the strategy to end homelessness has buy-in across all government departments and local authorities, and so we welcome the creation of the Inter-Ministerial Group on Homelessness and Rough Sleeping to bring about this collaboration. It is vital that all invited government departments engage fully in the …
Government Response Summary
The government highlighted existing and increased funding for housing support, Local Housing Allowance, the Household Support Fund, Discretionary Housing Payments, and the Homelessness Prevention Grant, stating these measures contribute to preventing homelessness.
20
Conclusion
Acknowledged
We welcome the Government’s decision to increase homelessness funding for 2025/26, including the £192.9 million uplift to the Homelessness Prevention Grant (HPG). However, the decision to ringfence 49% of HPG funding for activities to prevent and relieve homelessness may be a detrimental, one-size-fits-all approach towards the pressures facing some local …
Government Response Summary
The government defended the 49% ringfence on the Homelessness Prevention Grant (HPG), explaining it was based on historical local authority spend and stating the HPG was not intended to cover all temporary accommodation costs, but committed to monitoring local authority spend.
21
Conclusion
Rejected
We are also concerned that the Government’s decision to re-freeze Local Housing Allowance (LHA) rates from April 2025 will undermine the impact of additional homelessness grant funding. We have seen compelling evidence that this is a false economy. Re-freezing LHA rates is likely to leave many families unable to afford …
Government Response Summary
The government justified its decision regarding Local Housing Allowance rates by outlining factors considered for 2025/26, reiterating its broader housing support spending, and highlighting other funding for homelessness prevention, implicitly rejecting the committee's concern about the re-freeze.