Research and analysis

Ending Rough Sleeping Data Framework, September 2023

Published 30 November 2023

Applies to England

1. Key statistics

Prevented (P1 & P2)

2,993new people sleeping rough over the month in September (35% of total) – up 23% on same period last year.

900 new people sleeping rough on a single night in September (26% of the total) – up 15% on same period last year.

769 people sleeping rough over the month who have left an institution (9% of total) – up 43% since June 2023.

Rare (R1)

8,442 people sleeping rough over the month in September 2023 – up 27% on September last year, and 17% since June 2023. 14.9 people per 100,000 sleeping rough over the month in September 2023 – up from 11.7 last year and 12.8 in June 2023.

3,418 people sleeping rough on a single night in September 2023 – up 18% on September last year and up 18% since June 2023. 6.0 people per 100,000 – up from 5.1 in September last year and 5.1 in June 2023.

Brief (B1)

2,663 people sleeping rough over the month in September 2023 who are sleeping rough long term (32% of total) – up 16% since June 2023.

Non-Recurring (NR1)

1,048 people sleeping rough over the month who are returning to sleeping rough returners (12% of total) – up 5% since June 2023.

In May 2023, the Department for Levelling Up, Housing and Communities launched a new framework which sets out a clear and defined vision for ending rough sleeping, which is that it is prevented wherever possible, and where it does occur it is rare, brief, and non-recurring. This is the first quarterly publication and covers monthly information up to September 2023.

The number of people sleeping rough tends to be higher in the summer months when it is warmer and lower in the winter months, reflecting the seasonality of rough sleeping.

Date of next publication: It is expected that the next quarterly publication of monthly data up to December, will be published in February 2024.

2. Introduction

Since March 2022, the Department for Levelling Up, Housing and Communities has been working with the Centre for Homelessness Impact and 5 pilot areas (London, Greater Manchester, Newcastle, West Midlands and Bournemouth, Christchurch, and Poole) to develop a vision and definition of ending rough sleeping, as set out in our cross-government strategy ‘Ending Rough Sleeping for Good’ published last year.

For the first time, we have a clear and defined vision for ending rough sleeping: that is to prevent it wherever possible, and where it does occur it is rare, brief, and non-recurring.

Underpinning this definition is a new data framework to measure our progress. The framework, which was rolled out across all local authorities (LAs) in England in May 2023, sets out a succinct set of metrics that will be used to measure progress. This enables local government, national government and our partners to know what is required to end rough sleeping in areas across England, so local areas can identify where specific action is needed to drive improved performance. This is an important step towards having a consistent data set across England that captures the complexity of rough sleeping.

Developing the framework has demonstrated the success of close collaboration between local authorities, DLUHC and the Centre for Homelessness Impact.

Better data will not solve rough sleeping on its own, but we know through careful testing that each indicator in the framework will support local and central government to measure progress towards our shared vision to end rough sleeping, and shape local and national responses to support vulnerable people.

There are five core indicators of the framework, that sit under the four aims of vision. These are:

Prevented

• The number of new people sleeping rough (on a single night and over the course of the month). This is known as P1.
• The number of people sleeping rough over the month, who have been discharged from institutions, known as P2.

Rare

• The number of people sleeping rough (on a single night and over the course of the month), known as R1.

Brief

• The number of people sleeping rough over the month who have been sleeping rough long term, known as B1.

Non-Recurring

• The number of people returning to sleeping rough, known as NR1.

This publication provides information about these five core indicators for all local authorities in England up to September 2023. This new data framework will be relevant to people, working locally to end rough sleeping, and is an important step towards driving better outcomes and realising the cross-government goal to end rough sleeping.

3. Preventing people sleeping rough

The goal of the prevention indicators is to track how effectively rough sleeping is being prevented both nationally and locally, and can be used by local areas to identify gaps in support provision and to develop partnership working with institutions.

There were 2,993 new people sleeping rough over the month in September (35% of total people sleeping rough over the month) – up 23% on the same period last year.

There were 900 new people sleeping rough on a single night in September (26% of the total) – up 15% on the same period last year.

There were 769 people sleeping rough over the month in September 2023 who have left an institution (9% of total). Of these people:

• 372 people (48% of people who had left an institution) had left prison within the last 85 days – up 21% since June 2023.

• 222 people (29% of people who had left an institution) had left National Asylum Support Services in the last 85 days – up 283% since June 2023.

• 92 people (12% of people who had left an institution) had left General & Psychiatric hospital in the last 85 days – up 7% since June 2023.

• 67 people (9% of people who had left an institution) were under 25 care leavers – up 6% since June 2023.

• 15 people (2% of people who had left an institution) had left other justice accommodation within the last 85 days – down 6% since June 2023.

• 1 person (0.1% of people who had left an institution) had left the UK armed forces within the last 85 days – down 88% since June 2023.

Figure 1: New people sleeping rough, October 2020 to September 2023 (P1)

Figure 2: People sleeping rough over the course of the month who have left an institution, September 2023 (P2)

4. Making rough sleeping rare

These indicators provide an enhanced and more directly comparable way of tracking the prevalence of rough sleeping, both nationally and locally.

There were 8,442 people estimated to be sleeping rough over the month of September 2023 – up 1,206 people or 17% since June 2023 and up 1,815 people or 27% since the same period last year.

This is 2.5 times higher than the number of people seen sleeping rough on a single night, illustrating that the flow of people onto and off the street over the course of a month is significantly higher than those seen on any given night due to the dynamic nature of rough sleeping.

The rate of people sleeping rough over the month of September 2023 in England was 14.9 people per 100,000^{[footnote 1]}, compared to 12.8 people per 100,000 in the previous quarter (June 2023) and 11.7 people per 100,000 in the same period last year.

There were, 3,418 people sleeping rough on a single night in September 2023 – up 523 people or 18% since June 2023, and up 520 people or 18% since last year.

The rate of people sleeping rough on a single night in September 2023 in England was 6.0 people per 100,000, compared to 5.1 people per 100,000 in the previous quarter (June 2023) and 5.1 people per 100,000 in the same period last year.

Figure 3: People sleeping rough, October 2020 to September 2023 (R1)

5. Making rough sleeping brief

The purpose of this indicator is to assess how effectively local systems are able to rapidly identify people sleeping rough and support them off the streets, and then into long term accommodation. It can be used by local areas to identify people who have complex challenges and require tailored support.

There were 2,663 people sleeping rough over the month in September 2023 who had been sleeping rough long term (32% of total) – up 16% since June 2023.

6. Making rough sleeping a non-recurring experience

This indicator aims to track how well local areas are doing at ensuring people who have previously slept rough are supported to avoid returning to the streets, and can help to identify potential gaps in support provision and barriers to housing stability.

There were 1,048 people sleeping rough over the month who had returned to sleeping rough (12% of total) – up 5% since June 2023.

Figure 4: Number of people sleeping rough over the month who are new (P1), long term (B1) or returners (NR1), May to September 2023^{[footnote 2]}

Figure 5: Map of rate of people sleeping rough on a single night per 100,000 people (R1), September 2023

7. Definitions

New people sleeping rough (P1)

A person is considered ‘new’ if they have not been seen sleeping rough in the local authority in the 5 calendar years (60 months) preceding the date they were seen sleeping rough during the current reporting period. If a person was seen more than 5 years previously, they are to be counted as ‘New’. If there is no historical data available for the last 5 years, people seen sleeping rough for the first time should be counted as ‘New’ whilst a historical database is compiled.

Prior to May 2023, the definition was less specific in terms of time period, and a person was considered new if they were not known to local authority outreach teams and other support services.

People sleeping rough who have been discharged from an institution (P2)

A person is counted as having left an institution recently if they report having been discharged from any of the below within the last 85 days (12 weeks + 1 day):

• Prisons (adult and youth)
• Other justice accommodation e.g. accommodation provided by the National Probation Service (i.e. Approved Premises)
• General and psychiatric hospitals
• Discharged from the UK Armed Forces National Asylum Support Services Accommodation
• National Asylum Support Services Accommodation

The 85 day period is based on Community Accommodation Service Tier 3 (CAS3) which provides temporary accommodation for up to 84 nights for homeless prison leavers and those moving on from Approved Premises to help them move into settled accommodation. This is designed to improve partnership working between homelessness and rough sleeping services and institutions to ensure people recently leaving institutions have suitable accommodation pathways.

People under 25 who are care leavers are also included but the 85 day timeframe does not apply.

People sleeping rough (R1)

People sleeping rough are defined as about to bed down (sitting on/in or standing next to their bedding) or actually bedded down in the open air (such as on the street, in tents, doorways, parks, bus shelters or encampments). People in buildings or other places not designed to for habitation (such as stairwells, barns, sheds, car parks, cars, derelict boats, stations or “bashes” which are makeshift shelters often comprised of cardboard boxes). The definition does not include:

• People in hostels or shelters
• People in campsites or other sites used for recreational purposes or organised protest
• Squatters
• Travellers

This is the same definition as is used for the annual rough sleeping snapshot statistics.

The number of people sleeping rough on a single night is an estimated figure determined from outreach contacts, or from a ‘Point-in-Time’ snapshot.

The number of people sleeping rough over the course of the month is an estimated figure based on outreach contacts.

People sleeping rough long term (B1)

Long term rough sleeping is defined as the number of people seen recently (within the reporting month) who have been seen sleeping rough in 3 or more months out of the last 12 months (1 year).

People returning to sleeping rough (NR1)

A person is considered a ‘returner’ if they are seen sleeping rough again after no contact for 2 or more quarters (180 days), whichever is shorter, measured from the last date the person was seen.

8. Things you need to know

• This is the first publication of the five new indicators, which make up the new data framework for all local authorities in England. This new framework sets out a clear and defined vision for ending rough sleeping, which is that it is prevented wherever possible, and where it does occur it is rare, brief, and non-recurring.

• The Department for Levelling Up, Housing and Communities have been collecting monthly management information from all local authorities in England about the support for people sleeping rough and those at risk of sleeping rough, since May 2020, alongside the annual rough sleeping snapshot statistics. The indicators which are not part of the data framework are still available as data tables.

• On average, 95% of areas provide a response each month and for those areas that do not provide data, imputed figures based on previous latest management information has been used.

• This monthly management information provided by local authorities includes a more frequent although less robust estimate of people sleeping rough on a single night, compared to the official rough sleeping snapshot statistics, which are collated by outreach workers, local charities and community groups and are independently verified by Homeless Link.

• The management information also provides an estimate of the number of people sleeping rough over the course of the month in each local authority to better understand the flow of people sleeping rough. This figure is based on casework done by outreach teams and other service providers.

• In September 2022, the government published the cross-government strategy Ending Rough Sleeping for Good, which is supported by the £2 billion investment over 3 years to fund dedicated measures to address the wide range of causes that can lead to rough sleeping. The commitment to publish quarterly data on rough sleeping to monitor progress was outlined in this cross-government strategy.

• The government also announced an investment of up to £530 million in funding through the Rough Sleeping Initiative (RSI) to local authorities across England, spanning a 3-year period from April 2022 to March 2025. RSI is this Government’s initiative to end rough sleeping and provides a platform for the Government to build on past successes, continuing work with local authorities in our collective aim to protect the most vulnerable in our society. It provides local authorities the resources to offer accommodation, support, and a route off the streets for people sleeping rough all year round.

• The Rough Sleeping Initiative 2022-25 is funding a variety of services from accommodation, Housing First, outreach staff and specialist services in areas such as physical and mental health, supporting prison leavers, training to widen employment opportunities, immigration advice, and access to social and private rented sector housing.

9. Technical notes

9.1 Data tables and interactive dashboard

Twenty-seven accompanying tables are available alongside this release. These include information on the five new framework indicators, as well as information about accommodation offers for people sleeping rough, and information about medium and long term accommodation which are also collected as part of the monthly rough sleeping management information.

An interactive dashboard enables users to explore the new framework indicators in more detail.

9.2 Data quality and limitations

This management information provides more timely and more detailed data on rough sleeping and the support for rough sleepers compared to the annual rough sleeping snapshot.

The management information is collected via a regular survey to local authorities, which began in May 2020. Local authorities were required to provide data underpinning the new framework indicators from May 2023, although some indicators have been collected for longer as they were already part of the rough sleeping management information collection. All local authorities are required to complete the survey, which includes questions about rough sleeping, off the street accommodation, long term or repeat rough sleepers and medium or long term accommodation. This management information provides more timely and more detailed data on rough sleeping and the support for rough sleepers compared to the annual rough sleeping snapshot.

Local authorities submit their management information via DLUHC’s DELTA online data collection system. The DELTA online data collection system includes in-built rules and validation checks to ensure the data provided is complete and accurate.

As well as the in-built validations via DELTA, DLUHC analysts also carry out a series of quality assurance checks including checks for outliers and comparing the information with other relevant data sources.

The data is not independently verified. It has been provided by local authorities.

The Office for Statistics Regulation (OSR) which is the regulatory arm of the UK Statistics Authority completed a review of the very first Support for people sleeping rough publication against the Code of Practice for Statistics. This review considered the value, quality and trustworthiness of these statistics in relation to the Code. The review recommendations are being taken forward.

To assess the quality of new management information, we compared the monthly rough sleeping management information estimates with the 2022 Rough sleeping snapshot data. These two different sources were correlated which provides confidence that local authorities are consistent when estimating the number of people sleeping rough on a single night.

For the monthly rough sleeping snapshot estimate, local authorities are advised to use a snapshot approach which will provide the most robust figure. This should be 1 of the 3 approaches that are used for the official rough sleeping snapshot, which may include a count-based estimate, an evidence-based estimate meeting or an evidence-based estimate meeting including a spotlight count. If no snapshot has been conducted within the month, local authorities should gather their intelligence, data sources and records to establish what a single night figure would be and submit this as their estimate.

DLUHC recently commissioned Homeless Link to undertake research to investigate how local areas in England have implemented the new rough sleeping data framework and to appraise data collection methods and validation processes being used to provide this information.

Early findings from the research by Homeless Link show there is some disparity in data management and technical capacity between different local authorities and there is some variation in the interpretations of the definitions for the new indicators which is as expected given the infancy of this new framework.

The information that underpins the new indicators is largely gathered by outreach workers as part of their regular outreach activity. Information may also be gathered from referrals from partner agencies to help identify people that may not engage with services. This means the quality of the information is linked to the coverage and frequency of outreach activity as well the local data systems in place to accurately track and record this information.

The information about institution discharge is gathered via self-disclosure by people sleeping rough and/or information sharing from institutions, so the quality is also linked to the reliability of self-disclosure and data sharing from partners. Identification of people sleeping rough who are new, returning or long term relies on the local systems in place to identify unique individuals, avoid double counting and accurately track individuals over time using historical records, which will take time to develop.

There are some comparability issues between local authorities in London and the rest of England, as the definition of new, returner and long term rough sleeping applies to the whole of London, compared to each local authority across the rest of England. There is also some overlap between the new and returner indicators if a person returns to sleeping rough after not being seen for more than five years.

There are also some challenges around the consistency and comparability of the approach being used for the single night snapshot month on month and between areas, as there is more local discretion for the monthly snapshot compared to annual snapshot around the approach used, the date for the single night snapshot, the coverage etc. The single night snapshot can also be impacted by the weather, where people choose to sleep, the date and time chosen, and the availability of alternatives such as available night shelters.

The information about people sleeping rough over the course of the month, includes known people and people identified by outreach activity, so may not include all hidden homeless groups.

This research which will be published early next year, will be used to develop further guidance for local areas to improve the quality and comparability of the data underpinning the new indicators.

Figure 6: Quality Assurance Process flowchart

An outline of the production process and quality assurance carried out prior to the publication of the Ending Rough Sleeping Data Framework.

Accessible version of flowchart

Start: DLUHC provide guidance to LAs on questions to be included in monthly rough sleeping management survey (end of each month).

1. Rough sleeping monthly management information survey is issued to all LAs in England and GLA via DELTA online data collection system (end of each month).

2. Information on rough sleeping over the course of the month is pre-populated via information from CHAIN, for all London boroughs (1st week of month).

3. LA submits data to DLUHC using DELTA online data collection system (2nd week of each month).

4. In-built validation rules and checks ensure the data provided is complete and accurate before submission.

5. DLUHC conducts further validation, sense checks and quality assurance prior to publication - Discuss discrepancies with rough sleeping advisers and LAs if needed prior to publication.

End: DLUHC publishes management information (approximately 12 weeks after collection).

9.3 Related statistics

Combined Homelessness and Information Network (CHAIN)

The Combined Homelessness and Information Network (CHAIN) is a multi-agency database recording information about people seen rough sleeping by outreach teams in London. CHAIN is managed by Homeless Link, a London-based homeless charity and is used by organisations working with people sleeping rough in London. Information is recorded onto the CHAIN database by people who work directly with people sleeping rough in London (e.g. workers in outreach teams, day centres, hostels and resettlement teams). CHAIN does not cover ‘hidden homeless’ groups, such as those who are squatting or staying in inaccessible locations to outreach workers.

Hostels and support services

Homeless Link publishes an Annual review of single homelessness support, which includes information about the number of hostels and shelters in England and available bed spaces, as well as the support and services available to single people who become homeless in England.

DLUHC related statistics

The rough sleeping statistics do not provide a definitive number of people or households affected by homelessness in England. The term ‘homelessness’ is much broader than people sleeping rough. It is difficult to provide an accurate estimate of all homelessness across England. Data used to compile any estimate is collated from different datasets, which sample different subsets of the population over different time frames. Any estimate of homelessness in England will collate datasets that are not discrete from one another, which means some individuals may have been included more than once in the estimated total.

Support for people sleeping rough

DLUHC has been collecting and publishing management information about the support for rough sleepers and those at risk of rough sleeping, since May 2020, initially as part of the response to the COVID-19 pandemic.

This management information provided more timely information about people sleeping rough but uses a similar collection approach to annual rough sleeping statistics, albeit without the greater verification of the annual statistics.

This quarterly publication provided a fuller picture of the dynamic and seasonal nature of rough sleeping, and illustrated the work done by local authorities to provide a pathway off the streets and into long term accommodation.

Following the roll out of the new data framework to all local authorities in England, in May 2023, this quarterly publication will now focus on the vision for ending rough sleeping, which is that it is prevented wherever possible, and where it does occur it is rare, brief, and non-recurring. The indicators which are not part of the data framework are still available as data tables.

Annual rough sleeping snapshot

The DLUHC’s official annual rough sleeping snapshot statistics, provide a way of estimating the number of people sleeping rough across England on a single night in autumn and assess change over time. This is the most robust measure of rough sleeping given they are independently verified and are published in line with the Code of Practice for Statistics. These statistics provide information about the estimated number of people sleeping rough on a single night between 1 October and 30 November each year and some basic demographic details (i.e. age, gender, nationality).

Rough sleeping questionnaire

In December 2020, DLUHC published the initial report on the rough sleeping questionnaire (RSQ), which represents one of the largest survey data collections on people who sleep rough ever attempted in the UK. The report provides insights into the experiences of people who have slept rough, including their support needs and vulnerabilities, experiences of homelessness and use of public services, as well as an estimate of the fiscal cost associated with someone who sleeps rough.

Statutory homelessness

DLUHC also collect and publish quarterly statistics on the broad characteristics and circumstances of households owed a statutory homelessness duty. This includes households who approach the council for help with housing who are sleeping rough. The statutory homelessness statistics includes some but not all of the people provided with accommodation in response to COVID-19 through the ‘Everyone In’ support. Not all individuals assisted through ‘Everyone In’ would have been owed a homelessness duty. Any individual not owed a homelessness duty would not be part of the local authority case level data submission to DLUHC and therefore would not be included in the Statutory Homelessness statistics. People sleeping rough will only be recorded in these statistics if they have made an application that has been accepted by the local authority. There are 3 main groups that are not included in the statutory homelessness statistics that would be included in the management information. These include:

People not eligible for statutory homelessness assistance because they are ‘persons from abroad’ specifically excluded by the legislation.

People sleeping rough who did not engage with the assessment process required to take a homelessness application, or who were not owed a relief duty by the local authority.

People who were provided accommodation via upper tier local authorities, such as Greater London Authority (GLA) who do not have statutory homelessness duties, and do not provide data via the Homelessness Case Level Information Collection (HCLIC) data system.

These statistics include information about the accommodation at the time of application, including if a person was sleeping rough, and include information about support needs, including offending history, care leavers, former asylum seekers and whether applicants has served in the HM forces.

Hidden homelessness

DLUHC produce other statistical releases that can help build up the wider homelessness picture. For example, the English Housing Survey publishes data on the number of people sofa surfing and concealed households in England, which are additional adults in a household who wanted to rent or buy but could not afford to do so. In addition, the CORE social housing lettings collection publishes data on those moving from homelessness into local authority/ private registered providers accommodation.

Expenditure on homelessness

DLUHC publish statistics on local authority revenue expenditure and financing in England. The RO4 return within the Revenue Outturn suite relates to housing services and includes information on local authorities’ expenditure on homelessness activities.

Revisions policy

Non-scheduled revisions

Where a substantial error has occurred as a result of the compilation, imputation or dissemination process the statistical release, live tables and other accompanying releases will be updated with a correction notice as soon as is practical.

If a local authority notifies DLUHC of an error in the information they have submitted after publication of the release, a decision on whether to revise will be made based upon the impact of any change and the effect it has on the interpretation of the data.

Scheduled revisions

There are no scheduled revisions for this release.

9.5 User Engagement

DLUHC has developed the new framework over the last 18 months in conjunction with the Centre for Homelessness Impact and five early adopter pilot areas (London, Greater Manchester, Newcastle, West Midlands and Bournemouth, Christchurch, and Poole). An additional set of indicators to support the five core indicators is currently being tested via this group through regular project meetings, which will conclude early next year.

DLUHC also holds quarterly rough sleeping data forums with local areas to consult on any changes regards the monthly management information and keep areas up to date about new data requirements or improvements related to rough sleeping.

DLUHC is also part of the cross-government housing and homelessness group, which enables analysts across the devolved nations working on homelessness to collaborate and learn from each other. The Government Analysis Function provides the latest homelessness statistics work programme summarising the DLUHC initiatives, as well as those happening in the rest of the UK.

Users are encouraged to provide feedback on how these statistics are used and how well they meet user needs.

Comments on any issues relating to this release are welcomed and encouraged. Please contact roughsleepingstatistics@levellingup.gov.uk if you have any feedback or comments.

See the department’s engagement strategy to meet the needs of statistics users.

10. Enquiries

Media

Telephone: 0303 444 1209

Email: newsdesk@levellingup.gov.uk

Statistical enquiries

Telephone: 0303 444 2623

Email: roughsleepingstatistics@levellingup.gov.uk

Responsible analysts

Jon White, Anthony O’Dowd, Grace Harrington & Hudson Farley-Moore

Information on Official Statistics is available via the UK Statistics Authority website.

Information about statistics at DLUHC is available via the department’s website.

1. ONS mid-2021 population estimates. ↩

2. There is some overlap between new people sleeping rough over the month (P1) and people returning to sleeping rough (NR1) if a person found sleeping rough returns to sleeping rough after not being seen for more than five years. Not all people seen sleeping rough over the month, are included in new people sleeping rough over the month (P1), people sleeping rough long term (B1) or people returning to sleeping rough (NR1). ↩