1st Report - England’s Homeless Children: The crisis in temporary accommodation

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 up”. Conditions in temporary accommodation are too often unfit for habitation, and risk having a serious detrimental impact on children’s development, wellbeing, and health. It is particularly shocking that in the last five years temporary accommodation has been a contributing factor to the deaths of at least 74 children, of whom 58 were under the age of one. (Conclusion, Paragraph 20)

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 notice. The shortage of affordable housing across England means families face growing social housing waiting lists for a permanent home, with over 1.3 million households currently on local authority housing registers. Not only are we in a housing crisis, but we are also in a temporary accommodation crisis too. (Conclusion, Paragraph 21)

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 to house families. This is unacceptable. (Conclusion, Paragraph 26) The Ministry of Housing, Communities and Local Government must require all local authorities in England to carry out mandatory inspections of housing before it is first used as temporary accommodation, and whenever new residents are placed in the property. All local authorities should publish annual reports online to set out an overview of the main findings of these 43 inspections. The Government should provide additional funding, in line with the new burdens doctrine, to local authorities to ensure that they can carry out and report on these inspections. (Recommendation, Paragraph 26) Bed & Breakfast temporary accommodation

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 a “last resort”, yet there has been a striking rise in the number of families placed in B&B temporary accommodation for more than six weeks unlawfully. We have heard evidence of children being moved from B&B to B&B; families being asked to leave their room and wait for their next nightly placement; and a family being placed in B&B accommodation for 19 weeks. For too many families, the legal six-week limit on families being placed in B&B accommodation is meaningless, as their local authority does not adhere to it and there are no effective sanctions for breaches. (Conclusion, Paragraph 43)

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 local authorities do not fulfil their statutory obligations. (Conclusion, Paragraph 44) If the Government believes that the Local Government and Social Care Ombudsman is the most suitable avenue for redress when local authorities fail to adhere to their statutory duties regarding temporary accommodation, the Government must work with the Ombudsman to review its resourcing, statutory jurisdiction, and powers, so that it can investigate all complaints of unsuitable temporary accommodation and take appropriate action with haste. (Recommendation, Paragraph 44)

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 no explicit ban on placements of families in accommodation with single adults, and we do not believe that the Code of Guidance goes far enough to ensure the wellbeing of children and families at safeguarding risk. (Conclusion, Paragraph 45) 44 The Government must update the Code of Guidance to clearly demonstrate local authorities’ foremost duty to mitigate safeguarding risks when making decisions on placements for families with children. The Government should work with local authorities to bring an end to placements of families in temporary accommodation with kitchens or bathrooms shared with single adults housed in the same building. (Recommendation, Paragraph 45)

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 response to this Report, the Government should set out its assessment of whether the Homelessness (Suitability of Accommodation) (England) Order 2023 is fit for purpose; and whether updating legislation and the Code of Guidance to refer to “non-self-contained accommodation” rather than “B&Bs” would enhance protections for families placed in temporary accommodation with shared facilities. (Recommendation, Paragraph 46)

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

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 information to the Department on the outcomes for families. Whilst we understand the Department’s preference to take a “partnership approach”, we believe it must undertake more formalised monitoring of local authorities’ use of out- of-area placements. (Conclusion, Paragraph 60)

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 the distance of placements, why out-of-area placements were used, and the type of accommodation used for households placed out-of-area. The Department should consider ways of making H-CLIC data more publicly accessible, such as through an 45 online homelessness data dashboard, to support local authorities to better understand homelessness pressures in their area, and to improve public awareness. (Recommendation, Paragraph 61)

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 properties out-of-area. The Government should consult on introducing a limit on the distance of all out-of-area placements. (Recommendation, Paragraph 62)

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 authorities to notify a prospective host authority before it makes an out-of-area placement, meaning opportunities to mitigate the impacts of these placements on families and host authorities may be missed. (Conclusion, Paragraph 63) The Government should update the Code of Guidance to require local authorities to notify the host authority before they make an out-of-area placement. This will ensure local authorities are co-operating and sharing local expertise effectively, to ensure suitable accommodation and support is available to families placed out-of-area, and to mitigate the impacts on host authorities. (Recommendation, Paragraph 63)

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 impacts of homelessness on children. (Conclusion, Paragraph 64) As the Government seeks to establish ‘consistent identifiers’ for children through its Children’s Wellbeing and Schools Bill, it should ensure that these can be used as a formalised notification system, so that a child’s school and GP are alerted when they move into temporary accommodation. This should be introduced alongside a focus on improving data reporting and sharing between public services, to fully understand the health impacts of temporary accommodation on children. (Recommendation, Paragraph 64)

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 how it may improve data 46 collection and reporting of the housing circumstances of A&E admissions and GP referrals, and of school absenteeism, to improve understanding of how temporary accommodation impacts children’s health and education. (Recommendation, Paragraph 65) The Government’s strategy to end homelessness

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 preparation of the strategy. The strategy must build on the previous work of homelessness organisations and independent reports, in order to agree the specific actions and funding commitments which will bring about significant progress towards ending homelessness during this Parliament. (Conclusion, Paragraph 71)

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 Minister or job title of each official who attended each Inter-Ministerial Group meeting from November 2024 to present; and • an update on the Inter-Ministerial Group’s focused engagement with children and families, and how this will inform the forthcoming strategy. The Government should publish updates on the Inter-Ministerial Group’s work after each of its meetings, including a summary of what was discussed. (Recommendation, Paragraph 72)

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 temporary accommodation, the Government must require local authorities to provide homeless residents with information about their rights and the complaints process. (Recommendation, Paragraph 73) 47

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 take ownership of and be held accountable for progress towards ending homelessness and delivering on the commitments in the strategy. (Recommendation, Paragraph 74)

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 homelessness during this Parliament. The Inter- Ministerial Group should continue to meet at least quarterly after the strategy is published and should publish quarterly updates on the strategy’s implementation. As part of each quarterly meeting, the Group should review the Government’s quarterly homelessness statistics and consider any changes to the strategy that may be required in light of the data. (Recommendation, Paragraph 75)

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 authorities. The ringfence may leave a gap in the funding of those councils which rely heavily on the HPG to fund temporary accommodation, at a time when local authorities are facing acute financial pressures. (Conclusion, Paragraph 87)

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 rising private sector rents, placing them at risk of homelessness and relying on temporary accommodation. It is far more expensive for local authorities to support families once they are in temporary accommodation. (Conclusion, Paragraph 88)

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 far as possible, homelessness funding should be directed towards preventing homelessness in the first place. The Group should consider how best to move towards this preventative model while ensuring there are no unintended consequences 48 for local authorities. Specifically, it should consider the impact of the 49% ringfence of HPG funding for prevention on local authorities that are currently spending a high proportion of HPG funding on temporary accommodation. (Recommendation, Paragraph 89)

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 temporary accommodation. (Conclusion, Paragraph 90) The Government should extend its support for local authorities to acquire their own temporary accommodation stock through the Local Authority Housing Fund, including by acquiring empty affordable homes delivered through planning obligations. These new homes should be acquired within the local authority’s own area as far as possible. The Government should also consider the issue of empty affordable homes as part of its forthcoming long-term housing strategy with regard to the investment barriers, such as environmental requirements, which are preventing housing associations from taking on new social housing stock. (Recommendation, Paragraph 90)

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 the Minister for Homelessness and Democracy outlined, we must not lose focus on the need for social and affordable housing to alleviate the crisis in temporary accommodation. (Conclusion, Paragraph 91) The Government must ensure that social and genuinely affordable housing forms a substantial proportion of its 1.5 million target, given the importance of these tenures to ending homelessness in England. In the forthcoming long-term housing strategy, the Government must set out how the national housing target will be achieved by tenure, including a target for Social Rent homes to promote genuinely affordable housing as part of the housing mix. The Government must also recognise the urgent need for immediate interventions, as outlined in this Report, to improve temporary accommodation provision and to support families into more settled homes. (Recommendation, Paragraph 91) 49