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Executive Summary
xxxxxxx
The homelessness monitor:
England 2021
Suzanne Fitzpatrick, Beth Watts, Hal Pawson,
Glen Bramley, Jenny Wood, Mark Stephens & Janice
Blenkinsopp. Institute for Social Policy, Housing and
Equalities Research (I-SPHERE), Heriot-Watt University;
City Futures Research Centre, University of New South
Wales; School of Social and Political Sciences, University
of Glasgow
March 2021
Executive Summaryii The homelessness monitor: England 2021 iii
The homelessness monitor The homelessness monitor:
The homelessness monitor is a longitudinal study providing an independent
analysis of the homelessness impacts of recent economic and policy
England 2021
developments across the United Kingdom. Separate reports are produced
for each of the United Kingdom nations. Suzanne Fitzpatrick, Beth Watts, Hal Pawson,
This ninth annual report updates our account of how homelessness stands
Glen Bramley, Jenny Wood, Mark Stephens & Janice
in England in 2020, or as close to 2020 as data availability allows. It also Blenkinsopp. Institute for Social Policy, Housing and
highlights emerging trends and forecasts some of the likely future changes,
identifying the developments likely to have the most significant impacts on Equalities Research (I-SPHERE), Heriot-Watt University;
homelessness. City Futures Research Centre, University of New South
Wales; School of Social and Political Sciences, University
of Glasgow
March 2021iv The homelessness monitor: England 2021 v
About Crisis
Crisis is the national charity for homeless people. We help people directly
out of homelessness, and campaign for the social changes needed to solve it
altogether. We know that together we can end homelessness.
About the authors
Professor Suzanne Fitzpatrick, Dr Beth Watts, Professor Glen Bramley, Dr Jenny
Wood and Dr Janice Blenkinsopp are all based at the Institute for Social Policy,
Housing, and Equalities Research (I-SPHERE). Professor Hal Pawson is based at
the City Futures Research Centre, University of New South Wales. Professor Mark
Stephens is based at the School of Social and Political Sciences, University of
Glasgow.
Acknowledgements
This report was commissioned and funded by Crisis, and our thanks go to Sophie
Boobis, Dr Francesca Albanese and Matthew Downie at Crisis for all of their
support with this work. In addition, we are extremely grateful to all of the key
informants from the statutory and voluntary sector organisations across England
who found time amid the COVID-19-related pressures to help us with this, and
likewise to all 148 local authorities who completed the online questionnaire
despite the extraordinary strain they were under as a result of the pandemic.
We would like to record our sincere appreciation for Rhiannon Sims’ excellent
analysis of social security and housing policy developments that we were able
to draw on in preparing Chapter 2 of this report. We would also like to thank Dr
Filip Sosenko for his assistance in setting up the survey, Jill McIntyre for all her
help with chasing survey responses and with the overall logistics of the project,
and Lynne McMordie for undertaking the formatting and proofing tasks (all
I-SPHERE).
Disclaimer: All views and any errors contained in this report are the responsibility
Crisis head office of the authors. The views expressed should not be assumed to be those of Crisis
66 Commercial Street or any of the key informants who assisted with this work.
London E1 6LT
Tel: 0300 636 1967
Fax: 0300 636 2012
www.crisis.org.uk
© Crisis 2021
Crisis UK (trading as Crisis).
Registered Charity Numbers:
E&W1082947, SC040094.
Company Number: 4024938vi The homelessness monitor: England 2021 Executive Summary vii
Executive
summary
The Homelessness Monitor series single people. This is in stark contrast exceeding that of all temporary than half (110,000 households
is a longitudinal study providing to the pre-Homelessness Reduction accommodation – up by 17 per cent or individuals). Next in numerical
an independent analysis of the Act era when the key headline in the 12 months to March 2020, and importance was hostel and
homelessness impacts of recent statistic – households ‘accepted’ by by 299 per cent since 2010. similar accommodation (42,000),
economic and policy developments local authorities as in ‘priority need’ followed by unsuitable temporary
in England and elsewhere in the – comprised only around one-third •T
hanks to various temporary accommodation and other
United Kingdom.1 This ninth annual single people. protective measures (especially unconventional accommodation,
Homelessness Monitor England income protection programmes at around 19,000 each. The least
updates our account of how •N
onetheless substantial numbers and eviction moratoria), the numerous group were those actually
homelessness stands in 2020, or of (mainly single) homeless COVID-19 pandemic triggered sleeping rough at a point in time,
as close to 2020 as data availability applicants still reach the end of the no immediate overall increase in which we estimate at 13,600.
allows, and covers a year dominated by post- Homelessness Reduction homelessness applications. Indeed,
the twin major events of the COVID-19 Act operational procedures the number judged as threatened • It is predicted that the economic
pandemic2 and Brexit. It is also the first without having secured settled with homelessness fell back aftermath of COVID-19 risks a
Monitor in which a comprehensive accommodation, or even having had significantly April-June 2020 (down substantial rise in core homelessness,
analysis of Homelessness Reduction such accommodation offered to 35 per cent on the previous quarter). including rough sleeping, unless the
Act processes and outcomes is them (around 20,000 households in But temporary accommodation Government implements a range
included and we offer detailed 2019/20). placements surged, particularly of of housing and welfare mitigation
modelling estimates and forward single homeless people, as a result of interventions, including continuing
projections of extreme forms of ‘core’ •S
ome 48 per cent of all 2019/20 the emergency measures to protect with emergency accommodation
homelessness. ‘owed a duty’ applicants were judged people at risk of rough sleeping measures for those at risk of rough
as having some form of support during the pandemic. sleeping.
Key points to emerge from our latest need, and in 23 per cent of (all ‘owed
analysis are as follows: a duty’) cases, this was linked to a • ‘Core homelessness’ in England – a • In the longer term, the largest
history of mental ill-health. Only concept which captures the most projected impact on reducing core
• Some 305,000 single people, a small proportion of applicants severe and immediate forms of homelessness would result from a
couples and families registered are subject to ‘complex support homelessness – is estimated to have large expansion of total and social
homelessness applications with needs’ (e.g., 3 per cent of ‘owed totalled nearly 220,000 in 2019, housing supply and consistent, large-
local authorities in 2019/20. Of a duty’ applicants in London had having risen from about 187,000 in scale application of Housing First
these, 289,000 (95%) were judged support needs associated with drug 2012. During 2020 these numbers accompanied by appropriate support
as homeless or threatened with dependency; 7 per cent in rest of dropped somewhat to around for mental health and substance
homelessness. England). 200,000, mainly due to the effects misuse issues, alongside the raising
of the Government’s emergency of the Local Housing Allowance. A
• Amongst those threatened with • Temporary accommodation measures in response to the meaningful levelling up of economic
homelessness and entitled to a placements show a 91 per cent COVID-19 pandemic. In 2020 there performance across the English
‘prevention’ duty half (49%) are single increase since 2011 (and 9 per cent were an estimated 10,500 people regions would also contribute to the
adults and amongst those actually in the 12 months to March 2020). currently sleeping rough on any reduction of core homelessness.
homeless and entitled to a relief Bed and Breakfast hotel placements given night which had dropped by a
duty almost three-quarters (72%) are have continued to increase at a rate third on the previous year. •L
evels of infection and COVID-
related deaths have been low
1 Parallel Homelessness Monitors are being published for Scotland, Wales and Northern Ireland. All of the UK •T
he largest element of core amongst homeless people in
Homelessness Monitor reports are available from http://www.crisis.org.uk/pages/homelessnessmonitor.html
homelessness in 2018-19 was its England, indicating an effective
2 Fitzpatrick, S., Watts, B. & Sims, R. (2020) Homelessness Monitor England 2020: COVID-19 Crisis Response
Briefing. London: Crisis. https://www.crisis.org.uk/ending-homelessness/homelessness-knowledge-hub/ least visible manifestation, sofa public health strategy with regards
homelessness-monitor/england/homelessness-monitor-england-2020-covid-19-crisis-response-briefing/ surfing, accounting for more to this vulnerable population. Criticalviii The homelessness monitor: England 2021 Executive Summary ix
to this successful outcome was the •L
ocal authorities expressed qualified Trends in homelessness the 81,500 prevention cases logged as
national ‘Everyone In’ emergency approval for the role played by Statutory homelessness ‘duty ended’ during the year.
accommodation initiative for the Homelessness Reduction Act This year’s Monitor was the first where
people sleeping rough and those legal framework in facilitating their the analysis of statutory homelessness While fundamental changes to the
at risk; around 30,000 people in responses to homelessness during trends was substantially based on legal framework for homelessness
total had been assisted under these the early pandemic period. Councils the operation of the Homelessness application assessment under the
arrangements by autumn 2020. more critical of the Act dislike what Reduction Act 2017 and its associated Homelessness Reduction Act 2017
they perceive as the excessive (H-CLIC) administrative dataset. have made ‘new homelessness’
•T
he speed and clarity of the early bureaucracy associated with it. Some 305,000 households registered trend over time comparisons more
central Government response on homelessness applications with difficult, temporary accommodation
rapidly accommodating people •K
ey changes to local authority local authorities in 2019/20. Of placements, which can be legitimately
sleeping rough, eliminating the use working practices prompted by the these, 289,000 (95%) were judged graphed over a long time series,
of communal shelters, enhancing COVID-19 emergency include a as homeless or threatened with show a 91 per cent increase since
welfare benefits, and halting shift to remote/online working with homelessness. This is slightly higher 2011 (and 9 per cent in the 12 months
evictions, was widely welcomed, with service users, which was viewed as than the 272,000 ‘local authority case to March 2020).4 Bed and Breakfast
local authorities and homelessness having been largely successful. Some actions’ as estimated for 2017/18, the hotel placements have continued to
charities also praised for rapidly rising Councils intend to make a decisive last year of the ‘old regime’.3 increase at a rate exceeding that of all
to an unprecedented challenge. shift away from communal forms temporary accommodation – up by
of sleeping provision for homeless By comparison with the Housing 17 per cent in the 12 months to March
•H
owever, subsequent ‘mixed people post-pandemic, though Act 1996 regime, a much-increased 2020, and by 299 per cent since 2010.
messages’ from central Government, others feel that financial and legal proportion of those seeking help
particularly on assistance to non- constraints make the use of night under the Homelessness Reduction The increased ‘visibility’ of single
United Kingdom nationals ineligible shelters unavoidable. Act are being formally assisted under adults in the official homelessness
for benefits and on the continuation prevention or relief duties, with statistics is one of the most striking
of Everyone In, became a matter •W
hile the COVID-19-prompted £20 the result that far fewer applicants/ changes brought about by the new
of acute concern amongst local weekly enhancement to Universal applications are ‘progressing’ through legislative framework. This group
authorities and their third sector Credit and Working Tax Credits have the system as far as being assessed as accounted almost three-quarters (72%)
partners as the crisis progressed. been widely welcomed, at the time owed a main statutory rehousing duty. of all of those assessed as homeless
of writing the Government planned This traditional headline indicator of and entitled to the ‘relief’ duty,
•M
any local authorities offered an to withdraw these uplifts from April homelessness demand – at 40,000 in and half (49%) of those threatened
upbeat assessment of their own 2021. There is also no indication 2019/20 – was well below the 57,000 with homelessness and entitled to
performance in response to the that they will be extended to legacy recorded in 2017/18. a ‘prevention’ duty. This is in stark
homelessness consequences of the benefits. The restoration of the contrast to the pre- Homelessness
COVID-19 crisis and initial lockdown Local Housing Allowance maxima to A substantial proportion of 2019/20 Reduction Act era when the key
period, though it was clear that the cover 30 per cent of private sector prevention and relief actions ended headline statistic – households
resilience of both staff and resources rents was especially beneficial in the with accommodation having been ‘accepted’ as owed the main duty
had been severely tested, with context of managing homelessness secured. Thus, households have been – comprised only around one-third
many local authorities surprised risks, but Government plans to enabled to retain existing – or to single people.
by the sheer scale of need that the refreeze these rates from April 2021 obtain new – accommodation. This
emergency measures uncovered. will cause dismay. was the outcome for most prevention Also notable is the emerging
duty cases ended during the year intelligence from H-CLIC on the profile
•W
hile acknowledging the large •C
OVID-19 has inflicted extensive (58%), with the equivalent figure for of support needs in the statutory
amount of homelessness emergency damage on the economy and on relief cases ended being 40 per cent. homeless population. While almost
funding made available by central the public finances. There is acute Assisting an applicant to obtain a new half (48%) of all households assessed
Government during the pandemic, concern about a potential tidal wave place to live (rather than to retain as owed a homelessness prevention
other stakeholders criticised the of ‘new’ homelessness as the COVID- existing housing) was, by definition, the or relief duty are recorded as having
proliferation of highly specified, 19-induced recession takes hold, ‘accommodation secured’ result for a relevant support need, these needs
short-term funding pots, focused Brexit causes disruption to trade and all of the 2019/20 relief cases with this were highly diverse in nature. Far
overwhelmingly on rough sleeping, various temporary labour market, outcome, as well as for 51,490 (63%) of from being dominated by complex
as well as the apparently ‘transitional’ welfare and housing protections are
nature of the accommodation to scaled back or ended during 2021. 3 See Figure 4.11 in: Fitzpatrick, S., Pawson, H., Bramley, G., Wood, J., Watts, B., Stephens, M. & Blenkinsopp, J.
be provided under the Next Steps (2019) The Homelessness Monitor: England 2019. London: Crisis. Local authority case actions’ in this context
refers to the households subject to Housing 1996 main duty decisions plus those assisted by local authorities
programme
via informal prevention or relief in that year (2017/18).
4 That is, at the effective start of the COVID-19 pandemic, largely preceding the impact of the Everyone In
programme.x The homelessness monitor: England 2021 Executive Summary xi
support needs associated with drug or Significantly, virtually all of this increase temporary accommodation and other national application of Housing First,
alcohol problems, offending or rough resulted from growth in single adult unconventional accommodation, and increased rates of Local Housing
sleeping histories, as some might placements (especially single men) at around 19,000 each. The least Allowance). A successful levelling up
assume, mental or physical ill-health – most probably associated with the numerous group were those actually of economic performance across the
problems, and experience of domestic Everyone In emergency rough sleeper sleeping rough at a point in time, English regions would also contribute
violence, were more prominent. temporary housing initiative launched which we estimate at 13,600. to the reduction of core homelessness.
In fact, only a small proportion of in March 2020, as discussed further
applicants are subject to ‘complex below. The gradual increase in overall Economic, policy and COVID-19
support needs’ (e.g. 3 per cent of numbers from 2012 to 2019 concealed impacts on homelessness
‘owed a duty’ applicants in London Core homelessness wide differences between different Going into COVID-19, the United
had support needs associated with For the first time in this year’s Monitor, categories, with hostel placements Kingdom had experienced a decade
drug dependency; 7 per cent in rest of we present quantitative analysis of declining by 13 per cent, and sofa of austerity, which included public
England). ‘core homelessness’, which captures surfers and other unconventional expenditure constraints affecting
some of the most severe and increasing by 16 per cent and 13 per public services and social security
Other key points to flag from immediate forms of homelessness.5 cent, while rough sleeping virtually benefits. In 2018/19, 17 per cent of
analysis of these first two years of doubled (99%) and unsuitable individuals in the United Kingdom
the Homelessness Reduction Act The key categories captured by core temporary accommodation rose by lived in households whose income
operation include some positive signs homelessness include people sleeping 171 per cent. before housing costs (adjusted for
that may allay initial concerns about rough, staying in places not intended household composition) fell below
certain aspects of the legislation as residential accommodation Our predictions indicate that the the relative poverty threshold.
(e.g., discharge of duty on grounds of (e.g. cars, tents, boats, sheds, etc.), economic aftermath of COVID-19 risks Research conducted by Heriot-Watt
‘non-cooperation’ is rarely recorded living in homeless hostels, refuges a substantial rise in core homelessness University for the Joseph Rowntree
in practice), but also its limitations. and shelters, placed in unsuitable unless the Government implements Foundation indicated that some 2.4
Principal amongst these limitations is temporary accommodation (e.g. Bed a range of housing and welfare million people, including 550,000
that substantial numbers of (mainly and Breakfast hotels, Out of Area mitigation interventions. This should children, experienced destitution at
single) homeless applicants still reach Placements, etc.), and sofa surfing (i.e., include continuing with emergency some point in 2019.6 The survey also
the end of the post- Homelessness staying with non-family, on a short- accommodation measures for found that the extent of destitution
Reduction Act operational procedures term basis, in overcrowded conditions). those at risk of rough sleeping on a had grown, with the numbers of adults
without having secured settled substantial scale, maximising targeted and children affected rising by more
accommodation, or even having had We estimate core homelessness homelessness prevention measures, than half since 2017. Consequently,
such accommodation offered to in England to have totalled nearly ensuring social rehousing quotas the relatively stable overall poverty
them (around 20,000 households in 220,000 in 2019, having risen from for homeless people, placing limits rate over the past 15 years seems to
2019/20). about 187,000 in 2012. During 2020 on evictions, and implementing key disguise increases in very extreme
these numbers dropped somewhat welfare changes (especially raising the experiences of hardship that reflect the
Thanks to various temporary protective to around 200,000, including a drop level of Local Housing Allowance to impacts of labour market and social
measures (especially eviction in rough sleeping by a third mainly the level of median actual rents (and security change.
moratoria, see below), the COVID-19 due to the effects of the emergency maintaining that level).
pandemic triggered no immediate COVID-19 ‘Everyone In’ programme COVID-19 has caused the most
overall increase in homelessness aimed at those at risk of rough In the medium term, the most dramatic shrinkage of the economy
applications. However, temporary sleeping (see further below). effective policies for reducing core ever experienced and in any other
accommodation placements surged homelessness would be large circumstances such as massive
in Q2 2020. By quarter end, the The largest element of core increases in welfare benefit levels contraction of the economy would
overall national total was more than homelessness in 2018-19 was its and associated measures to reduce have resulted in mass unemployment.
6,000 higher than at the start, with least visible manifestation, sofa destitution, including raising the level But lockdown was accompanied by
additional Bed and Breakfast hotel surfing, accounting for more than half of Local Housing Allowance as just unprecedented peacetime levels of
placement accounting for half of this (110,000 households or individuals). noted. In the longer term, the largest economic stimulation and, notably,
change. The latter, therefore, rose Next in numerical importance was projected impact on reducing core the various job ‘furlough’ schemes.
from some 8,000 to some 11,000 over hostel and similar accommodation homelessness would result from a The first Coronavirus Job Retention
the period – a 40 per cent increase. (42,000), followed by unsuitable large expansion of total and social Scheme, introduced in April 2020,
housing supply (accompanied by the met 80 per cent of a furloughed
5 The core homelessness concept was introduced in research undertaken with Crisis in 2017 and updated maintenance of social housing quotas employee’s salary up to £2,500 per
in 2018, with this Monitor representing a further major update. Bramley, G. (2017) Homelessness
Projections: Core homelessness in Great Britain. Summary Report. London: Crisis. https://www.crisis.org.
for core homeless households), the month (with the Government funding
uk/media/237582/crisis_homelessness_projections_2017.pdf; and Bramley, G. (2019) Housing Supply
Requirements across Great Britain for Low-Income Households and Homeless People: Research for Crisis 6 See Fitzpatrick, S., Bramley, G., Blenkinsopp, J., Wood, J., Sosenko, F., Littlewood, M., Johnsen, S., Watts,
and the National Housing Federation; Main Technical Report. Edinburgh: Heriot-Watt University. https://doi. B., Treanor, M., & McIntyre, J. (2020) Destitution in the UK 2020. York: JRF. https://www.jrf.org.uk/report/
org/10.17861/bramley.2019.04 destitution-uk-2020xii The homelessness monitor: England 2021 Executive Summary xiii
75 per cent of this cost). The scheme 2020 Summer Statement reaffirming letter instructed all local authorities in under Everyone In did not return to the
was extended until the end of March, planned housing investment as England to move everyone sleeping streets in winter.17 Various other smaller
and then, in December, the Chancellor announced earlier in the year. The rough and in communal shelters into pots of funding targeted at rough
announced a further extension until Affordable Homes Programme will be a safe place, ideally in self-contained sleeping were announced over the
the end of April 2021. By the end of worth £12.2 billion over the five years accommodation, over the following course of the year, to operate alongside
October, the scheme had supported to 2025/26, with annual spending two days.12 Over 90 per cent of pre-existing funding streams targeting
almost 10 million (9.9 m) jobs at a cost rising by a quarter from £1.95 billion people sleeping rough known to homelessness, including the third
of £46.4 billion.7 The initial furlough in 2020/21 to an average of £2.44 Councils at the beginning of the crisis year of the Rough Sleepers Initiative
scheme was also, according to our billion.8 However, the new Affordable were reported to have been offered programme, amounting to £112million
local authority survey, crucial in Housing Programme differs from its accommodation in commercial hotels, in 2020/21. In the Spending Review on
mitigating homelessness risks during predecessors in some important ways: Bed and Breakfasts, holiday lets, 25th November, the Chancellor made
the COVID-19 crisis: 80 per cent of in particular, it shifts funding away university accommodation or housing available further new monies (£151
respondents considered it ‘very’ or from renting and towards ownership association stock, many of whom million) for local authorities to spend
‘somewhat’ important in this regard. by reverting to a roughly 50:50 split had been sleeping on the streets for on rough sleeping in 2021-22.
between these tenures.9 years. By autumn 2020, around 33,000
Lockdown brought the housing market people had been assisted under these Notable by its absence, at the outset
to a halt, whilst the wider economic Access to long-term housing was the ‘Everyone In’ arrangements.13 of the COVID-19 crisis, was any notion
dislocation brought fears of mass capacity challenge most widely seen of a purely ‘localist’ approach to
evictions and mortgage possessions. as having been posed (or emphasised) This Everyone In initiative was assisting the homeless population:18
The Government acted to protect by the pandemic by local authorities preceded by £3.2 million targeted instead, strong, decisive and hands-
tenants and mortgaged owners from in our national online survey. Some 61 funding to local authorities to support on leadership was offered by central
eviction during the pandemic by per cent of local authority respondents people sleeping rough and those Government and received and acted
introducing compulsory and blanket considered that their authority was at risk, alongside £4.6 billion un- upon by Councils and other local
forbearance on the part of landlords poorly or otherwise inadequately ringfenced funds14 to help councils stakeholders with a sense of urgency
and mortgage lenders. For renters, equipped to deal with the crisis in cope with the overall financial and collective endeavour. While this
forbearance relied on two main this respect. Among the minority of pressures of the pandemic.15 On 24th weakened over time, as discussed
mechanisms. First, legal proceedings authorities where it became easier to May the Government announced below, homeless people were, by and
were halted and sometimes access social rental tenancies during that it was to bring forward £161 large, kept safe in in the early stages of
enforcement action suspended. the pandemic, explanatory responses million out of an (increased) £433 the pandemic. Levels of infection and
Second, notice periods have been related in the main to amended million four-year budget to provide COVID-related deaths have been kept
extended to six months until at least housing association or council 6,000 new supported housing units low amongst this highly vulnerable
the end of March 2021 in the majority allocation policies that gave increased for ex-rough sleepers, with 3,300 population, so far at least, indicating a
of cases (with exceptions for anti-social or overwhelming priority to homeless of these units to become available successful public health strategy.19
behaviour and fraud). In this year’s households, usually for a time limited over the next 12 months.16 On 24th
national online survey, 87 per cent period. June, it was announced that £105 Other crucial factors in mitigating the
of responding Councils considered million would be made available for impact of COVID-19 on homeless
the evictions moratorium to have As reported in the Homelessness interim accommodation to ensure people included substantial additional
been ‘very important’ in preventing or Monitor England 2020: COVID-19 that those currently being assisted resources, radically improved
minimising homelessness in their area. Crisis Response Briefing,10 (July 2020),
the pandemic prompted a radical and 12 Ministry of Housing, Communities and Local Government (2020) Coronavirus (COVID-19): Letter from
Notably, however, the Chancellor rapid nation-wide shift in responses Minister Hall to Local Authorities on Plans to Protect Rough Sleepers. Online: MHCLG. https://www.gov.uk/
government/publications/letter-from-minister-hall-to-local-authorities
chose not to increase the supply of to some of the most extreme forms 13 Ministry of Housing, Communities and Local Government (2020) Coronavirus (COVID-19) Emergency
new affordable housing as part of the of homelessness with a remarkable Accommodation Survey Data: November 2020. Online: MHCLG. https://www.gov.uk/government/
Government’s COVID-19 stimulus degree of success and speed.11 On publications/coronavirus-covid-19-emergency-accommodation-survey-data-november-2020
14 As at October 2020 National Audit Office (2021) Investigation into the Housing of Rough Sleepers During
package, in contrast to the response 26th March, a Ministry of Housing,
the Pandemic. London: NAO
to the 2008 financial crisis, with his Communities and Local Government 15 National Audit Office (2021) Investigation into the Housing of Rough Sleepers During the Pandemic.
London: NAO
16 Ministry of Housing, Communities and Local Government (2020) 6,000 New Supported Homes as Part
7 Gov.UK (2020) HMRC Coronavirus (COVID-19) statistics, last updated 17 December. Online: Gov.UK https:// of Landmark Commitment to End Rough Sleeping. Online: MHCLG. https://www.gov.uk/government/
www.gov.uk/government/statistics/coronavirus-job-retention-scheme-statistics-december-2020 news/6000-new-supported-homes-as-part-of-landmark-commitment-to-end-rough-sleeping
8 Perry, J. (2020) ‘Building back better? Post-Covid housing programmes’, in Stephens, M. et. al. (eds) UK 17 Ministry of Housing, Communities and Local Government (2020) £105 Million to keep Rough Sleepers
Housing Review Autumn Briefing. Coventry: CIH Safe and off the Streets During Coronavirus Pandemic. Online: MHCLG. https://www.gov.uk/government/
9 Ibid. news/105-million-to-keep-rough-sleepers-safe-and-off-the-streets-during-coronavirus-pandemic
10 Fitzpatrick, S., Watts, B. & Sims, R. (2020) Homelessness Monitor England 2020: COVID-19 Crisis Response 18 Fitzpatrick, S., Pawson, H. & Watts, B. (2020) 'The limits of localism: a decade of disaster on homelessness
Briefing. London: Crisis. https://www.crisis.org.uk/ending-homelessness/homelessness-knowledge-hub/ in England', Policy and Politics, 48(4), 541-561. https://doi.org/10.1332/030557320X15857338944387
homelessness-monitor/england/homelessness-monitor-england-2020-covid-19-crisis-response-briefing/ 19 Lewer, D., Braithwaite, I., Bullock, M., Eyre, M.T., White, P.J., Aldridge, R.W., Story, A. & Hayward, A.C. (2020)
11 See also National Audit Office (2021) Investigation into the Housing of Rough Sleepers During the Pandemic. ‘Covid amongst people experiencing homelessness in England: a modelling study’, The Lancet, 8(12), 1181-
London: NAO 1191. https://www.thelancet.com/journals/lanres/article/PIIS2213-2600(20)30396-9/fulltext#seccestitle70xiv The homelessness monitor: England 2021 Executive Summary xv
collaborative working (especially both local authorities and key accommodation of non-United of the senior homelessness experts
between health and homelessness informants raised concerns about the Kingdom nationals ineligible for we interviewed mid-pandemic.
services), and a workforce that adapted deleterious impacts on homelessness benefits and the continuation of Interestingly, the local authority
swiftly to a wholly unprecedented if enhancements to Local Housing Everyone In, became a matter of survey also indicated that only a very
challenge. While local authorities Allowance and Universal Credit were acute concern for Local Authorities small number of councils expected
generally gave an upbeat assessment not sustained in the longer-term, and their third sector partners as the to continue to use dormitory-style
of their own performance in response about the failure to uprate ‘legacy’ crisis progressed. It also resulted in provision post-pandemic. However,
to homelessness during the COVID-19 benefits such as Income Support,20 growing variation in local authority given the high-profile Government
crisis, it was clear that the resilience and the offsetting effect of the Total practice across the country as the commitment to ‘end’ rough sleeping
of both staff and resources had been Benefit Cap on the Local Housing year progressed, notwithstanding a by 2024, fears were expressed by some
severely tested, with the National Audit Allowance uplift in particular. change in the Homelessness Code of key informants that communal shelter
Office remarking that many councils Guidance advising local authorities provision, or at least more congregate-
were surprised by the sheer scale of Moreover, the official homelessness to respond sympathetically to those style hostels, might be expanded to
need that Everyone In uncovered. The statistics for April-June 2020 capture made vulnerable as a result of the help meet this target. Furthermore, the
large amount of emergency funding the dramatic impact of the evictions pandemic.22 The protections offered speed with which the capital budget
made available by central Government ban, with the number of homeless to those in asylum accommodation, in the Next Steps programme was
to respond to homelessness during the households assisted as a result of the for example, has also weakened in the required to be spent was argued as
pandemic was widely acknowledged ending of private and social tenancies second and third COVID lockdowns. undermining the ability to deploy these
by key informants, but the proliferation plummeting, while cases associated resources strategically and, potentially,
of highly specified, short-term funding with family and friend exclusions Key informants pointed to the strong opening up the danger of damaging
pots was viewed as less than strategic, or domestic violence remained foundations laid by the Rough Sleepers new ‘path dependencies’ associated
with rapid turnaround bidding steady. The suspension of evictions Initiative and the Homelessness with hasty investments in inappropriate
processes layering further stress onto from asylum accommodation, and Reduction Act in enabling a more forms of accommodation.
struggling local authorities. easement of restrictions on support for effective response to COVID-19
people originally from the European than might otherwise have been Conclusion
Supportive wider changes to welfare Economic Area who are not in the case, particularly with regards to The sharp disjuncture represented
policy were also vital in protecting employment,21 were humanitarian single homeless people. That said, by the catastrophe of the COVID-19
homeless people and other low- interventions that also likely saved the Homelessness Reduction Act pandemic opens up an opportunity to
income groups during the crisis. In lives, or at least immense suffering. received only qualified endorsement reflect on the shape of homelessness
particular, the raising of the Local from local authority respondents with services in the future, and in particular
Housing Allowance maximum to cover It is striking that, despite the scale and regard to the role it played during the the future role of congregate models
the 30th percentile of private rents apparent success of the Everyone In pandemic; those who were positive of accommodation, especially that
was considered ‘very’ or ‘somewhat’ initiative, enumerated levels of rough pointed to its pivot towards earlier employing dormitory-style shared
important in mitigating homelessness sleeping in London, as captured in forms of intervention, while the (very sleeping provision. On the more
risks by 82 per cent of local authorities the CHAIN dataset, did not alter much small) minority who were singularly immediate horizon, a pressing
in our national survey, while the during 2020, with new rough sleepers critical flagged what they perceived as priority remains effective move-on
corresponding percentage was even spiking during the most active excessive bureaucracy associated with arrangements for people temporarily
almost as high (74%) with regard to phase of Everyone In (April-June specified operational procedures and accommodated during the COVID-19
the temporary suspension of benefit 2020). However, the extent to which statistical monitoring. crisis, especially those with No
sanctions. Around two-thirds of all these statistics reflect 'real' patterns Recourse to Public Funds who, by
local authority respondents (66-68%) in levels of rough sleeping over the One striking point to emerge during autumn 2020, comprised around half
considered additional Local Welfare course of this extraordinary year, as the pandemic was the extent to of the population accommodated in
Assistance funding, enhancement of opposed to variations in the intensity which dormitory-style shelters have London under ‘Everyone In’.
Universal Credit standard allowances of outreach activity and data capture, continued in use to accommodate
(by £20 per week), and the temporary is difficult to judge homeless people in at least some parts The 2022 Homelessness Monitor
suspension of (most) debt-related of England. Over half (52%) of local England will be able to assess the
benefit deductions, as likewise However, subsequent ‘mixed authorities reported at least some success or otherwise of efforts to
important in preventing or minimising messages’ from central Government, homelessness accommodation of this resolve the predicament of these
homelessness in their area. However, particularly with regard to the type in their area pre-pandemic, albeit vulnerable migrants, as well as to
often confined to winter or extreme stem the potential tidal wave of ‘new’
20 Child Poverty Action Group (2020) Supporting Families During the COVID-19 Pandemic. Online: CPAG. weather conditions. A decisive shift homelessness expected as the COVID-
https://cpag.org.uk/policy-and-campaigns/briefing/supporting-families-during-covid-19-pandemic
21 Ministry of Housing, Communities and Local Government (2020) Letter from Minister for Rough Sleeping
away from the use of night shelters 19-induced recession takes hold, Brexit
on Funding for Emergency Accommodation During the Pandemic, and Support for EEA Rough Sleepers. was, unsurprisingly, a priority of many causes disruption to trade and various
Online: MHCLG. https://www.gov.uk/government/publications/coronavirus-covid-19-letter-from-
minister-hall-to-local-authorities-on-funding-support-for-those-in-emergency-accommodation-and-
eea-rough-sleepers 22 See https://www.gov.uk/guidance/homelessness-code-of-guidance-for-local-authorities/updatesxvi The homelessness monitor: England 2021
temporary labour market, welfare and
housing protections are scaled back
or ended. More positively, it should
also enable reflection on the extent
to which opportunities to ‘build back
better’ are starting to materialise in the
post-pandemic era.
Longer-term, a key factor in
determining economic prospects
and the level of social protection is
whether the Government returns to a
policy of austerity in order to reduce
the levels of debt built up as a result
of COVID-19. The lesson of the last 10
years is that this will be of fundamental
importance to determining the context
of homelessness over the next decade.
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