Rough Sleeping

Debate between Tom Hayes and David Simmonds

Wednesday 23rd October 2024 Westminster Hall

[David Simmonds (Ruislip, Northwood and Pinner) (Con)]

It is a pleasure to serve under your chairmanship again, Sir Christopher, so soon after we were engaged on local government matters yesterday. I congratulate the hon. Member for Ealing Southall (Deirdre Costigan) on bringing forward this debate—I know her constituency well as mine is nearby—and I congratulate Members on their contributions, which have illuminated not just some of the policy and political angles, but the genuine complexity of the rough sleeping issue.

The measurement of rough sleeping across the United Kingdom commenced in 2010. The last Conservative Government felt that it was a high priority and, consequently, we moved from a situation under the previous Labour Government in which less than a quarter of local authorities measured the number of people rough sleeping in their area at all, to one where all local authorities were required to use a standard methodology to count the number of rough sleepers and indicate the composition of that population.

That measure fed into a number of policy initiatives over those years. We saw a growth in the number of people recorded as rough sleeping on the streets from 2010 to 2017, and then some ups and downs. We saw a reduction from the 2017 peak to the number we see today, with a particularly low figure recorded during the covid pandemic, when the Everyone In policy was rigorously pursued by local authorities across the country.

It is clear that this matter is not simply one of political will. We note that, despite the high priority that Labour placed on it in opposition, the highest increases in the number of rough sleepers on the streets were in Labour-led local authorities, and the most effective authorities at reducing the number were Conservative-led. I see some shaking of heads, but Westminster, Camden and Bristol consistently top the list of authorities with the highest numbers of rough sleepers on the streets.

We also need to note that around 46% of all the people sleeping rough are in London and the south-east. The hon. Member for Ealing Southall provided a graphic description of what she has seen—one reflected on the streets of our capital, in particular. As other hon. Members have acknowledged, it also reflects a complex set of issues that lead to people sleeping rough.

The issue of veterans was a high priority for the previous Government. I have to note the work of the former Member for Plymouth Moor View, Johnny Mercer, in driving forward the so-called Operation FORTITUDE, which set up a direct and guaranteed route out of rough sleeping for any veteran who required it.

[Tom Hayes]

Will the hon. Member acknowledge that many of the Labour local authorities he was just referencing are in densely urban areas, which, according to research into homelessness, tend to have larger numbers of homeless people? Will he recognise that those authorities, like Conservative authorities, have been significantly starved of funding in recent years, to the point that council leaders, both Conservative and Labour, have been crying out for relief from Government? Will he also acknowledge that, with the starvation of many of our public services, people who are sleeping rough could otherwise often have received support earlier, but because they did not they now have to sleep rough—and that that is the fault of the Conservative Government?

[David Simmonds]

It is not an excuse. It is clear when we look at the performance of local authorities in that respect, and in particular in respect of the effectiveness of the many measures introduced following the Homelessness Reduction Act sponsored by my hon. Friend the Member for Harrow East (Bob Blackman), that the authorities that were good at everything demonstrated that they were also good at reducing the number of people who were sleeping rough. Those of a more questionable performance standard, however, did not demonstrate that they could step up to the plate, despite being provided with additional resources.

Seeking to make a political point rather glosses over the complexity of the matter, as highlighted by many hon. Members. I will finish my point around veterans. We know, according to the current snapshot, that around 3% of those sleeping rough are thought to be veterans of our armed forces. Providing a specific guarantee, with a freephone number and an online portal, so that accommodation that met their requirements could immediately be found for anybody in that situation, was an important example of how that particular group can be addressed.

It is also interesting to reflect that the snapshot data consistently shows that those sleeping rough tend to be older adults aged over 26; that they are overwhelmingly male, although I acknowledge that female rough sleeping is sometimes hidden; and that the numbers recorded are very small—in some years, zero—for people under the age of 18. That goes to the complexity of the issues highlighted by a number of hon. Members. It is not simply a matter of a lack of supply.

We know about the complexities around addiction, domestic violence, patterns of previous accommodation by local authorities that have ended with difficulties with landlords, issues of settled status—or lack of it—and immigration circumstances. All those factors contribute to the complex set of reasons that affect an individual who should be able to access help from a local authority. Like many other hon. Members, I have sat through homelessness interviews with constituents who seek that help and accessing it can be incredibly difficult when a number of those complicating factors come together.

How is the issue to be tackled? From 2010 to the most recent election, a number of measures were introduced. I refer to the Homelessness Reduction Act, which sought to give both additional duties and powers to local authorities to work with those at serious risk of becoming homeless—not just to prevent rough sleeping but to stop people from being placed in substandard temporary accommodation that did not fully meet the needs of their household.

More recently, we saw the introduction of “Ending rough sleeping for good” in 2022, which was a £2.4 billion multi-year programme aimed at bringing to an end, as far as possible, rough sleeping on the streets of our country. Although that was clearly not a matter of law, it was a significant and important Government programme. Many hon. Members participated actively in the debates on that and brought their views to bear on shaping a programme that included the rough sleeping accommodation programme, with an additional 6,000 units of accommodation aimed at bringing people in off the streets.

As I move to a conclusion, I will share some reflections on my time in local government. The snapshot is beginning to be taken in a consistent way, so we have a reasonably good idea of at least the trends, if not the detail, of the numbers that may be sleeping rough. One of the challenges, however, is that the snapshot always takes place around the same period in autumn. We know that the numbers of people sleeping rough in our country tend to be higher in the summer when the weather is better and that the numbers decrease as winter comes on.

One major factor that the rough sleeping snapshot is not readily able to capture is the availability of temporary accommodation in night shelters and short-term shelters set up, for example, by churches and other charities and voluntary organisations. We know that they are incredibly important for those who have not found assistance for whatever reason in the statutory sector.

My local authorities have contracts with local charities that open up those shelters when the weather begins to turn cold; they staff them and provide beds, heating, food and showers. In the spring, those services are unwound, and that means that some of those people are either back on the streets or, if the service is performed as we would hope, they have been found a pathway into a job and into more permanent housing.

The consequence of that patchwork provision still means that we do not always have a clear idea of the number of people in that situation because they genuinely have nowhere to go on that occasion; many who may have been booked accommodation by a local authority instead choose, typically because of addiction, to be on the streets with others who share their addiction rather than to use that accommodation. That is frequently cited as a major issue with the operation of the Homelessness Reduction Act. This is a complex issue. The numbers overall in our country are small, and they are declining.

[Tom Hayes]

The hon. Gentleman made valid points about using a street count to determine the number of people sleeping rough. Does he therefore agree that the numbers of those recorded as sleeping rough over the past 14 years are the tip of the iceberg and that the vulnerability, often in urban areas, is far higher?

[David Simmonds]

That reinforces my point. We have gone from a situation under the previous Labour Government in which there was no counting at all. There was no serious effort to understand the numbers of people sleeping rough on our streets. As a councillor, I was responsible for some of that period for housing and social care; rough sleeping was one of those major challenges that was simply put in the too-hard-to-deal- with box.