Government will not end rough sleeping by 2024, concludes Kerslake Commission

The Everyone In initiative supported people who were sleeping on the streets during the COVID-19 pandemic and led to a 37% drop in rough sleeping.

However, the latest 2022 official figures show a 26% increase in rough sleeping, while more-recent statutory homelessness figures show that the number of people in temporary accommodation has reached the highest levels since records began.

The commission called on the government and the next administration to take urgent action to address the rapidly rising rates of homelessness and rough sleeping.

It strongly advocates that prevention and system change must form the basis of a robust response, rather than solely responding to people in crisis.

It said issues stemmed from a severe shortage of affordable housing, a lack of appropriate support services, and a cost of living crisis that was pushing more and more people into homelessness.

According to the report, many of the problems would be resolved if there was a greater supply of social rented housing and supported housing.

The report, which is in tribute to Lord Kerslake, recommends three key principles that should guide the next administration’s approach to end homelessness and rough sleeping for good.

They include preventing people from reaching crisis point and becoming homeless or at risk of homelessness. Where people are at risk of rough sleeping, there should be a cross-sector effort to make timely and effective interventions that prevent it.

Third, the commission said everyone should have a route out: for anyone who is sleeping rough, there needs to be a meaningful and tailored offer which will take them away from the streets for good.

The commission advocates that prevention and system change must form the basis of a robust response, rather than solely responding to people in crisis.

In the interim, it is urgently calling on government to increase housing benefit so that it covers local affordable rents.

To deliver the sector-recommended target of building 90,000 social rented homes a year, the commission said the next administration should commit to a 10-year plan to meet housing need, accompanied by “significant investment in grant funding”.

Emma Haddad, chief executive of St Mungo’s, the homelessness charity, said: “The dedication of people working throughout the homelessness sector shines through the report, but it sets out starkly that we are working against the tide.

“The chronic shortage of affordable housing and appropriate support services means we are just responding to people already in crisis, rather than preventing them from reaching that point in the first place.

“The recommendations give a clear set of actions to both the current government and the next administration that would make a big difference to tackling rough sleeping and homelessness.

“They would do well to listen to the expert voices contained in the report.”

She said the progress made on rough sleeping during the pandemic “clearly demonstrated what can be done when we work together with a shared purpose and dedicated funding”.

“It’s time we applied the same energy to stop this homelessness and rough-sleeping crisis spiralling further.

“When Bob Kerslake died in July 2023, we lost a staunch ally of the homelessness sector. This report is a tribute to him and his life’s work,” Ms Haddad said.

In a statement, the Kerslake family said: “After over 40 years as a public servant, many of which were spent on delivering quality homes and environments, Bob was saddened and dismayed by the rise of homelessness across our country.

“He was proud to chair the commission and totally committed to its findings.

“He would have been vociferous in publishing its conclusions and recommendations.

“His main focus would have been persuading those who have the power to make positive changes to read this report in depth, then work together to meet those recommendations.

“As his family, we firmly believe that this would be a fitting tribute to a great man who worked tirelessly for the betterment of others.”

Kate Henderson, chief executive of the National Housing Federation (NHF), said it was “deeply disappointing” that the findings showed the government would not meet its manifesto commitment.

“Ending rough sleeping and homelessness for good is only possible if we address the root causes and prevent it happening in the first place. This means tackling the chronic shortage of social rented homes – the only homes affordable to people on low incomes.”

She added that, ahead of the next election, the NHF was calling on all parties to commit to a “national, long-term plan for housing that is properly funded and based on ambitious and measurable outcomes to house people in need”.

Ms Henderson said: “Lord Kerslake was a staunch advocate for homelessness prevention and the role of social housing, and worked every day to ensure politicians understood this vital work.

“We urge all parties to engage with this report and take the necessary steps to make sure no one in our country goes without stable, affordable housing and support.”

Shaun Davies, chair of the Local Government Association (LGA), said: “Councils want to turn the tide of rising homelessness and ensure no one has to sleep rough on our streets, an ambition which Lord Kerslake admirably strived for.

“As this report recommends, we need to prevent people from reaching crisis point in the first place, alongside providing tailored support for those who are already homeless.

“Local Housing Allowance rates should also be urgently reviewed to ensure that at least a third of the market is affordable for people claiming housing-related benefits, alongside adequate resources for councils’ homelessness services and a cross-departmental homelessness prevention strategy.

“As per our six-point plan, councils also need to be given the powers and resources to build 100,000 social homes a year to address the national shortage of affordable housing.”

The commission was launched in March 2021 and is made up of an advisory board with representatives from health, housing and homelessness services, local authorities and people with lived experience.
In total, more than 90 organisations and individuals have contributed to evidence-gathering through surveys, focus groups and bilateral meetings, and over 100 submissions have been received.

A Department for Levelling Up, Housing and Communities spokesperson said: “We remain focused on ending rough sleeping for good and are spending £2bn to tackle homelessness and rough sleeping in the areas that need it most.

“We are making significant progress, with over 640,000 households prevented from becoming homeless or supported into settled accommodation since 2018.

“We would like to pay tribute to Lord Bob Kerslake for his life’s work on this issue and we will continue to work with the commission to end rough sleeping for good.”