A whole-government approach that focuses on prevention rather than crisis relief should underpin the approach to ending homelessness in England, a ground-breaking evaluation recommends.

The analysis, commissioned by the previous Government, represents the first time a  government anywhere in the world has set out to understand the systemic impact of its policies and interventions across all public services in relation to homelessness.

The Systems-wide Evaluation of the homelessness and rough sleeping system was led by the Centre for Homelessness Impact, and its delivery partners Cordis Bright and RSM UK Consulting, working with the Ministry of Housing, Communities and Local Government (MHCLG). 

Its first report with preliminary findings, published by MHCLG, found:

• The majority of government activity and expenditure is on crisis relief, rather than prevention and delivered at a level which does not create system-level improvements 

• There are significant competing policy priorities within national government

• There is some good evidence of strong local partnership working on homelessness and rough sleeping but there is room for improvement
• Despite rising demand and numbers, the main homelessness and rough sleeping programmes were viewed as making a positive impact

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Some of its conclusions have already influenced the thinking of the Government, including a recommendation that consolidating funding and programmes is likely to improve effectiveness and flexibility.

MHCLG announced in December its intention to consolidate grants for rough sleeping and single homelessness (the Rough Sleeping Initiative, Housing First funding, and the Accommodation for Ex-Offenders Scheme) into a single Rough Sleeping Prevention and Recovery Grant.

Its other conclusions are to highlight the importance of taking a whole-government approach to ending homelessness, and to emphasise the need to build confidence in taking a preventative approach and encourage better local partnership working to prevent homelessness.

The report also called for better evidence of what works and for a focus on improving outcomes, rather than measuring outputs as is often currently the case. 

The Systems-wide Evaluation was commissioned in October 2023 to address a shortage of robust evidence on the effective structural and systemic actions that may be needed to tackle the drivers of homelessness and rough sleeping in the UK. The Centre for Homelessness Impact was appointed to lead the work after an open tendering process.

The research brief included a requirement to evaluate the operation and impact of three of the system’s main interventions: the Rough Sleeping Initiative, Homelessness Prevention Grant and the Rough Sleeping Accommodation Programme. However, the research also sought to determine how the delivery of the programmes was influenced by system-wide factors.

The analysis also included a review of 30 major homelessness and rough sleeping policies and programmes funded by different government departments and other funders. 

Research included interviews with senior officials from six government departments, including MHCLG. Fieldwork involving further interviews and focus groups was undertaken with five local authorities and their delivery partners to understand how the homelessness and rough sleeping system functions on the ground in different contexts. The local authorities, which were chosen to reflect a geographical mix, were Bournemouth, Christchurch and Poole, Herefordshire, Manchester, Southend-on-Sea, and Westminster. 

A detailed systems map of the homelessness and rough sleeping system was developed by reviewing existing maps, conducting workshops with experts, and refining the map based on feedback. The map shows the number and strength of the connections between the different parts of the system as a means of demonstrating where to focus and where interventions may have the most impact.

Ligia Teixeira, Chief Executive of the Centre for Homelessness Impact, said: ‘This evaluation of how complex systems and structures across government impact on homelessness is the first of its kind. By using scientific research methods, overseen by experts from across the world, we hope it can chart a path towards better prevention of homelessness within all public services, not just the homelessness sector.’  

Dr Natalie Savona, Principal Consultant at Cordis Bright, said: ‘With CHI’s leadership, it is hugely satisfying to know that the insights we have generated will be instrumental in shaping MHCLG’s policies and practices to prevent and address homelessness more effectively. We look forward to our continued work with people with lived experience of homelessness, local and national stakeholders, and our consortium partners, to ensure the evaluation’s optimal impact across the homelessness and rough sleeping system.’

Jenny Irwin, a partner at RSM Consulting, said: ‘Our Research and Evaluation team at RSM Consulting are delighted to have been involved in the Phase 1 research of the system-wide evaluation of homelessness and rough sleeping. This important research provides insights into the complexities of homelessness and rough sleeping and lays the groundwork for informed decision-making across government.’

The Systems-wide Evaluation is continuing its work. Projects have included a ‘deep dive’ to evaluate the relationship between the criminal justice system and homelessness and an examination of the inter-relation between the asylum and immigration and homelessness for families and single people. Further reports will be published in due course.

The Systems-wide Evaluation is continuing its work. Projects have included a ‘deep dive’ to evaluate the relationship between the criminal justice system and homelessness and an examination of the inter-relation between the asylum and immigration and homelessness for families and single people. Further reports will be published in due course.

The report with the interim findings of the Systems-wide Evaluation is published on MHCLG’s website.

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