Forty-Ninth Report - COVID-19: housing people sleeping rough

The Department still does not have a plan for achieving its target of ending rough sleeping by 2024, and risks failing to capitalise on the successes of Everyone In. Following the general election in December 2019 the government began this … Read more The Department still does not have a plan for achieving its target of ending rough sleeping by 2024, and risks failing to capitalise on the successes of Everyone In. Following the general election in December 2019 the government began this Parliament with a manifesto commitment to end rough sleeping by May 2024: only three years from now. This brought forward the government’s previous commitment, which had been to end rough sleeping by May 2027. In February 2020 the Department commissioned a review of its 2018 rough sleeping strategy towards meeting its new target but, owing to the prioritisation given to dealing with the pandemic, this has not yet been conducted. Not only does the Department not have a plan for ending rough sleeping by 2024, it also has not worked out how to define what ‘ending’ rough sleeping means or how it will measure and report on progress in a meaningful way. To end rough sleeping will certainly involve addressing the wider lack of availability of supported housing and affordable housing. The Department’s evidence shows that 80% of rough sleepers have mental health needs and a significant majority have substance abuse which underlines the importance of providing appropriate wraparound care to provide a sustainable pathway out of rough-sleeping. In 2017 this Committee recommended that the Department launch a cross-government strategy for addressing homelessness in the round, which could have helped it to address this issue, but it has so far failed to do so. Recommendation: The Department must, before summer recess, publish at least a draft strategy for how it will achieve its goal of ending rough sleeping by 2024. This should set out its definition of ‘ending’ rough sleeping, how it will measure and report progress in achieving and maintaining this goal, and the capacity of supported and affordable housing required to reduce the flow of people onto the streets towards zero for the long term. Show less

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The Department has provided mixed messages to local authorities on how to support people sleeping rough who have no recourse to public funds, and has no long-term plan for those who have been taken into hotels. Local authorities are generally … Read more The Department has provided mixed messages to local authorities on how to support people sleeping rough who have no recourse to public funds, and has no long-term plan for those who have been taken into hotels. Local authorities are generally not permitted to support non-UK nationals who legally have no recourse to public funds, or are otherwise ineligible for benefits, other than where there is a risk to life. At the outset of the pandemic the Department provided clear advice that, because of the risks to public health, local authorities should provide accommodation for all people sleeping rough irrespective of immigration status. Over the course of the year, however, the messaging it provided to local authorities became more ambiguous, and the approach they took to these cohorts of people became increasingly divergent. In particular, it appears that local authorities in London and the West Midlands are facing practical and financial difficulties regarding their support for these cohorts, with around 50% of those staying in hotels in London being recorded as having no recourse to public funds at the beginning of winter 2020–21. The Department has not been able to say what actions local authorities should take with respect to this cohort of people once the pandemic has abated, nor has it provided clarity on the implications of its recent work with the Home Office on plans to address immigration issues related to rough sleeping. The Department must do more to support those with no recourse to public-funds. Recommendation: Within two months the Department should publish details of its agreed plans with the Home Office to address rough sleeping and immigration issues together, and provide clear guidance to local authorities on what this means for the support they offer this cohort, including those staying in hotels under Everyone In. Show less

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The size of the rough sleeping population and those at risk of rough sleeping is far higher than the snapshot the Department is relying on, exposing the inadequacy of its current approach to data collection and reporting. One consequence of 6 COVID-19: housing people sleeping rough Everyone In has been …

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The Department has provided a number of different funding streams to local authorities to cover the pandemic response for people sleeping rough, but many are short-term and reactive, and the Department does not have a cohesive long- term funding plan for its commitment to end rough sleeping. Local authorities expect …

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It is uncertain whether the Department will meet its objective of providing 3,300 homes for people sleeping rough by the end of March 2021. Under its Rough Sleeper Accommodation Programme, the Department has distributed £161 million funding against bids from local authorities for the provision of 3,300 homes for housing …

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On the basis of a report by the Comptroller and Auditor General, we took evidence from the Ministry of Housing, Communities & Local Government (the Department).1 We also took evidence from Baroness Casey, who temporarily led the Department’s pandemic response in respect of people sleeping rough in spring and summer …

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Notwithstanding the evident successes of Everyone In in the first wave of the pandemic, the National Audit Office noted that the Department’s response to the resurgence of COVID-19 in autumn and winter 2020 did not appear as comprehensive as in the spring. The NAO suggested that the Department would need …

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The Department’s current Rough Sleeping Strategy was launched in August 2018, with a commitment to end rough sleeping by 2027.22 In December 2019 the new Government was elected with a manifesto commitment to end rough sleeping by May 2024, three years earlier than the previous target.23 Following the adoption of …

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In our evidence session the Department was unable to define exactly what it meant by the commitment “to end” rough sleeping; nor was it able to state clearly whether it was on track to meet this target, or how it would measure and report on it.28 This is a failure …

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Tackling rough sleeping on its own without addressing homelessness as a whole may even worsen other measures of homelessness, if it means only placing more people in temporary accommodation, thereby adding to the number of homeless households.29 Baroness Casey told us that, in her opinion, not only was a review …

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The Department publishes one official measure of rough sleeping, its annual snapshot, which estimates the number of people sleeping rough on one night every autumn.34 The latest annual snapshot of figure before the pandemic, taken in autumn 2019 was 4,266.35 In contrast, the number of people assisted under Everyone In …

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In June 2020 the Department began regular data collections from local authorities on numbers of people sleeping rough in their area.40 In spite of the Everyone In initiative (and other measures, such as a ban on evictions in the private rental sector), there were reports of increasing numbers of people …

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As of January 2021, local authorities said they were expecting to spend an extra £192 million in the 2020–21 financial year, in respect of additional spending on homelessness and rough sleeping as a result of the pandemic.46 The Department considers that it has reimbursed local authorities for the costs paid …

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In addition, the Department is providing around £700 million for rough sleeping and homelessness in 2020–21, with the majority of this funding distributed through local authorities.49 Before the pandemic, the Department had planned to spend £495 million in 2020–21, as announced in previous spending rounds and the 2020 Budget.50 The …

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Since October 2020, the Department has made a series of smaller funding commitments for the winter months, including a £10 million Cold Weather Fund, £12 million Protect Programme and £10 million in January 2021 for extra COVID protection for people sleeping rough.53 The Department told us that in its consideration …

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The immigration status of people sleeping rough who are non-UK nationals can affect their legal entitlement to benefits. In some cases these are immigrants from countries outside the European Economic Area (EEA), whose visas impose the condition that they have ‘no recourse to public funds’.59 Other sub-groups of non-UK nationals …

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At the outset of Everyone In, the Department gave a clear message to local authorities that, as this was a public health emergency, they were to bring everyone in (“whether they are from Bromley or Portugal”), irrespective of immigration status or entitlement to benefits.62 At the end of May, however, …

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At out evidence session the Department was unable to answer several of our queries about these cohorts. It told us it believed that people sleeping rough with no recourse to public funds would be eligible to receive vaccinations against COVID-19, but that it was not leading on this issue, and …

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Under its Rough Sleeper Accommodation Programme, the Department has distributed £161 million funding against bids from local authorities for the provision of 3,300 homes for housing rough sleepers.76 In October the Department led us to believe the majority of these homes would be new housing, that is, additions to the …

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The Department described these 3,300 homes as “move-on” accommodation, although it made clear its assumption that residents would stay for an average of two years before needing to move on somewhere else. It did not clarify what its plans were for where they would move on to at the end …

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As of September 2020 the Department was reasonably confident that all 3,300 homes would be completed by its target date of 31 March 2021.80 In our evidence session the 69 C&AG’s Report, para 2.12. 70 Q 41. 71 Qq 31–2. 72 Q 34. 73 Q 40. 74 Q 42. 75 …

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