Homelessness is one of the most persistent and complex challenges facing UK governments, demanding urgent and comprehensive action. While several governments have recognised the need for a whole-government approach, true departmental alignment has often proven elusive. The new UK government’s manifesto commitment to introduce a cross-government strategy marks a pivotal moment, especially as it aims to end all types of homelessness, not just rough sleeping. In this blog, we explore the significance of a comprehensive government approach, draw lessons from past initiatives, and offer targeted recommendations to ensure this strategy's successful implementation.‍

Why a Whole-Government Approach Matters‍

Homelessness is a multifaceted issue that intersects with numerous aspects of public policy and service provision, including health, social care, justice, and housing. The challenge lies in achieving alignment and coordination across various government departments. This matters because disjointed efforts can lead to unintended consequences, where progress in one area is quickly undone by actions elsewhere. A recent example of this can be seen in the Home Office's efforts to clear the asylum backlog, which inadvertently led to a rise in rough sleeping in London and other parts of the country.

The proposed cross-government strategy is intended to tackle homelessness through a more unified approach. To achieve its objectives, the new strategy must build on historical lessons and embrace a multifaceted approach, integrating government-wide efforts and robust collaboration with external partners, including local authorities, homelessness organisations, businesses, and experts.

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‍Lessons from the Past ‍

Examining past government strategies to address homelessness offers valuable insights into what has worked and what has not. Reflecting on these initiatives helps us understand the complexities of coordination and partnership required for meaningful progress.

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Rough Sleeping Initiative (RSI) 1990-1997:

‍Initiated during the third Thatcher Administration and continued under John Major, the RSI marked the first significant government programme aimed at reducing rough sleeping. The initiative was notable for its direct funding to organisations rather than through local authorities and its focus on street outreach and resettlement services. It resulted in the construction of nearly 4,000 self-contained flats for those sleeping rough.

The RSI benefited from high-level Cabinet support and an inter-ministerial group providing governmental oversight. However, its limited engagement with local authorities and partners constrained its broader impact. 

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Rough Sleepers Unit (RSU) 1999:

‍Established by the incoming Labour Government, the RSU sought to build on the RSI's momentum. Headed by Louise Casey, the RSU initially focused on London but quickly expanded to England. It aimed to integrate various forms of inequality with ambitious targets to reduce rough sleeping by two-thirds over the 1997-2001 Parliament. The strategy included funding for outreach and tenancy sustainment teams and additional hostel bed spaces.

The RSU is noted for its visible impact on reducing rough sleeping, although the reduction in London fell short of the two-thirds target. The initiative's success can be attributed to strong support from key ministers and direct engagement with operational partners. However, the RSU faced difficulties in maintaining positive relationships with some homelessness organisations and was criticised for its ‘top-down’ approach. Effective progress in addressing homelessness, as we've learned, requires not just top-down policies but also active collaboration with those working on the ground.

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Rough Sleeping Strategy 2018 and Beyond:

‍In response to increasing homelessness during the austerity period, the Theresa May government made significant investments in tackling rough sleeping. The Rough Sleeping Strategy included substantial funding, such as £443 million for the Rough Sleeping Accommodation Programme (RSAP), and introduced the Homelessness Reduction Act (2017), extending local authority responsibilities.

The strategy also saw the creation of new teams like the Rough Sleeping Adviser Team and the Homelessness Advice and Support Team. An inter-ministerial group chaired by David Lidington and an advisory panel of sector leaders supported the strategy. Despite these efforts, inter-departmental engagement was patchy, and the effectiveness of various initiatives varied. The inter-ministerial group’s role was often more symbolic, and engagement from other departments beyond MHCLG (then DLUHC) inconsistent. 

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Moving Forward

The new commitment to addressing all forms of homelessness, rather than focusing solely on rough sleeping, marks a landmark advancement in tackling this complex issue. However, history shows that turning this commitment into effective, sustainable progress will be challenging. To maximise the impact of the new strategy, the government should consider the following approaches:

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Strengthening Inter-Ministerial Support:

Previous periods with strong ministerial focus on homelessness have seen the formation of ministerial groups to oversee strategies and programmes. These groups have often had a galvanising effect, leading to focused implementation across departments. We recommend the formation of a new inter-ministerial group with a greater focus on achieving key milestones for homelessness objectives. This group should have clear expectations and accountability measures

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Enhancing inter-departmental engagement:

Historically, efforts to address homelessness have involved attempts at inter-departmental collaboration. Despite this, progress has often been slow and fragmented. To drive more substantial and meaningful change, a new, more strategic approach is necessary. This approach should focus on enhancing coordination and leveraging the strengths of multiple departments to create a unified and effective response to homelessness. One strategy could involve the appointment of senior civil servants at the Director level or above, who would assume dual responsibilities for key homelessness-related objectives where departmental priorities intersect. 

For example, consider the issue of prison discharge. The Ministry of Justice (MoJ) aims to reduce recidivism, while the Ministry for Housing, Communities and Local Government (MHCLG) focuses on preventing homelessness among individuals leaving prison. These objectives are closely related and benefit from a unified approach. By designating a senior official to oversee coordination between MoJ and MHCLG, the government can ensure a more streamlined and integrated process. This would facilitate a cohesive strategy that helps discharged individuals transition smoothly and reduces their risk of becoming homeless. By leveraging the expertise and resources of multiple departments through a dual responsibility model, the government could create more effective and comprehensive solutions. As many different departments have a role to play in tackling homelessness, coordination between them is integral to making the most of resources used for this purpose - a recommendation we make in our forthcoming report on value for money in England. 

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Transforming the Advisory Panel into a Task Force:

‍The advisory panel supporting the Rough Sleeping Strategies since 2017 has been beneficial as a sounding board but has had limited impact. Transforming this panel into a Task Force with a sharper focus on specific obstacles could improve its effectiveness. This Task Force should include specialists from relevant policy areas to address particular challenges, such as accessing care packages for those with significant health needs. By incorporating new voices and expertise, a Task Force can provide practical solutions and drive focused efforts.

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Adopting an Evidence-Based Approach:

The Centre for Homelessness Impact is dedicated to collaborating with the government to improve outcomes for people experiencing homelessness, with a clear goal of ending all forms of homelessness. Achieving this goal requires a robust and comprehensive evidence base to guide various interventions. The launch of the Test and Learn and Systems Evaluation Programme last autumn represents a promising first step. However, it is crucial to build upon this initial programme to ensure a stronger, more systematic emphasis on evidence-based approaches. New strategies or shifts in direction must be grounded in rigorous data and evidence. We must avoid implementing strategies, policies, or programmes that are driven by inadequate data or vested interests.

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Conclusion

The introduction of a new cross-government strategy focusing on all forms of homelessness, rather than just rough sleeping, could represent a significant step forward in efforts to end homelessness in England. By learning from past experiences and embracing a collaborative, evidence-based strategy, the government has the potential to drive meaningful progress in reducing homelessness sustainably.

Homelessness is not just a policy issue - it is a human issue that requires compassion, commitment, and collaboration. As we embark on this new chapter, let us remember this sentiment and strive to make a real difference in the lives of those affected by homelessness. The Centre for Homelessness Impact stands ready to support further work in areas requiring development and consideration, aiming to make a tangible impact on this critical issue.

Dr Lígia Teixeira is the founding CEO of the Centre for Homelessness Impact

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