Homelessness

While rough sleeping is the most visible form of homelessness, it represents only part of the picture. Homelessness also includes people living in temporary accommodation, those experiencing ‘hidden homelessness’—such as sofa-surfing or sleeping in cars, vans, tents, sheds, or garages—as well as families and individuals in England who are owed support by local housing authorities (Source: Crisis).

The Housing Act 1996 defines a person as homeless if they either:

• have no accommodation available to occupy
• are at risk of violence or domestic abuse
• have accommodation but it is not reasonable for them to continue to occupy it
• have accommodation but cannot secure entry to it
• have no legal right to occupy their accommodation
• live in a mobile home or houseboat but have no place to put it or live in it (Source: Shelter).

Various structural, individual, and interpersonal factors can lead to homelessness or put someone at risk. These may include a lack of affordable housing, increasing housing and living costs, life events such as relationship breakdown, losing a job, and mental and physical health problems. Research indicates that homelessness can be caused by a complex interplay between these structural, individual, and interpersonal factors (Source: UK Parliament; Statutory homelessness (England): Causes and government policy) Local housing authorities collect data on the reasons individuals are experiencing homelessness.

Homelessness can often follow critical transitions such as leaving prison, exiting the armed forces, fleeing domestic abuse or leaving care. These pathways reflect deep systemic vulnerabilities, where individuals face disrupted support networks, trauma, and barriers to stable housing. The Homelessness Code of Guidance, written by the MHCLG, recognises these groups as potentially having a priority need under the ‘housing duty’ due to their heightened vulnerability.

Homelessness is both a result and a driver of health inequality. Rooted in interlinked factors such as poverty, lack of affordable housing, and life disruptions such as job loss or a decline in mental health. The combination of these factors leaves individuals facing barriers to healthcare access and exposed to disproportionately poor health outcomes. An audit carried out in 2017 found that 41% of individuals experiencing homelessness reported a long-term physical health problem and 45% had a diagnosed mental health problem (Source: LGA). The average age of death for men experiencing homelessness is 45.4, compared to 61.9 in the general population and 43.2 for women, compared to 62.9 in the general population (Source: ONS).

People experiencing homelessness face many barriers to accessing and engaging with preventative care, primary care and social care services which can mean that their health problems remain untreated until they become very severe and complex. These barriers include stigma and discrimination; lack of trust due to previous experiences; siloed and rigid appointment services; strict eligibility criteria; and lack of information sharing and appropriate communication. NICE outline that people experiencing homelessness use more acute hospital services and emergency care than the general population. When admitted to a hospital, the length of hospital stay is usually much longer because of multiple unmet needs (Source: NICE; Integrating health and social care for people experiencing homelessness).

In 2022, Homeless Link undertook a homeless health needs audit. The audit represents the needs of nearly 3,000 individuals. The findings were:

• People experiencing homelessness suffer from worse physical and mental health than the general population
• 63% of respondents reported they had a long-term illness, disability or infirmity
• The number of people with a mental health diagnosis had increased substantially from 45% in 2014 to 82% in the 2018 – 2021 cohort of respondents
• 45% of respondents reported they were self-medicating with drugs or alcohol to help cope with their mental health
• 48% of respondents had used A&E services in the last year; three times higher than the general population
• Between 2018 – 2021 a total of 38% of respondents had been admitted to hospital in the 12 months before participating in the homeless health needs audit. The most common reasons for hospital admission were related to physical health conditions (37%), mental health conditions, self-harm or attempted suicide (28%)
• For those who had been admitted to hospital nearly a quarter (24%) had been discharged to the streets
• Nutrition also presented as a challenge with a third of respondents reporting that on average they eat only one meal a day.

Experience of trauma and childhood adversity are also common in people experiencing homelessness, and the prevalence of people who are neuroatypical or have a brain injury are higher than in the general population (Source: NICE guideline: Integrated health and social care for people experiencing homelessness).

Almost two in five deaths of people experiencing homelessness were related to drug poisoning in 2021, consistent with previous years. There were an estimated 99 suicide deaths and 71 alcohol-specific deaths. Most deaths of people experiencing homelessness registered in 2021 were among men (647 estimated deaths; 87.3% of the total), consistent with previous years (Source: ONS). Crisis reported that people experiencing homelessness are nine times more likely to take their own life than the general population (Source: Crisis).

People who are experiencing rough sleeping are 17 times more likely to be a victim of violence (Source: Housing Justice). More than one in three people who are experiencing rough sleeping have been hit, kicked, or experienced some sort of violence whilst homeless.

Research shows that people experiencing homelessness have some of the highest levels of social isolation. Crisis reports that individuals in core homelessness—such as rough sleeping or temporary accommodation—often lack regular social contact, which can make it harder to access support and exit homelessness. Studies also indicate that social networks among people experiencing homelessness are often limited to others in similar circumstances, which can provide some support but may also be unstable (Source: Crisis; Homeless Link). WaveLength research notes that many people conceal their housing situation from family or friends, which can further reduce social interaction.

Housing insecurity also has adverse impacts on health and wellbeing. The Health Foundation highlights that uncertainty about housing tenure and the risk of eviction are associated with stress and poorer mental health outcomes. Frequent moves can disrupt continuity of healthcare and weaken social ties, reducing community engagement. (Source: The Health Foundation).

Affordability is a key factor in housing security. In England, private renters face higher eviction rates than social renters, and the end of private tenancies is a leading cause of homelessness. Homeowners facing repossession also experience significant psychological strain due to financial and emotional investment in their property. Legal protections vary by tenure, with private renters generally having fewer safeguards against eviction compared to social housing tenants (Source: The Health Foundation). However, the Renters Rights Bill, effective from 1 May 2026, marks a significant overhaul of the rental sector in England, providing stronger protections for tenants and abolishing no-fault evictions (Source: MHCLG).

Children experiencing homelessness are more likely to experience stress and anxiety, resulting in depression and behavioural issues. There is evidence that the impact of homelessness on a child’s health and development extends beyond the period of homelessness and can impact on educational attainment (Source: LGA). 51% of young people experiencing homelessness have been excluded from school and 57% are not in education or employment (NEET) (Source: LGA)

NICE guidance (NG214) states that the costs of homelessness to society are significant. A report by Pleace and Culhane (2016), published by Crisis, estimated the total public sector costs of a person experiencing homelessness to be as much as £38,736 per year in England (based on 2019/20 prices later applied by NICE). This estimate included the NHS costs (£4,298), mental health services (£2,099), drug and alcohol services (£1,320), criminal justice sector costs (£11,991) and homelessness services (£14,808). On average, it was estimated that preventing homelessness for 1 year would reduce the public expenditure by approximately £10,000 per person (NICE). In 2020/21, 11,580 single households were assessed as experiencing rough sleeping in England (Ministry of Housing, Communities & Local Government, 2021), and if these people were prevented from experiencing 1 year of homelessness, annual public spending would fall by as much as £115.8 million. If other forms of homelessness were included, these cost savings would be substantially higher. Given the financial implications of homelessness to society and the far worse health and social care outcomes, most interventions that address homelessness are likely to be cost effective or even cost saving from the wider public sector perspective (Source: NICE)

• The Housing Act 1996 (as amended) Part 7, is the legislation determining responses to homelessness, and includes:
  • principal criteria for determining which duties a local authority owes to a person experiencing homelessness
  • the duties to inquire into an application
  • when and how an applicant should be notified of a decision
  • main accommodation duties and how they can be discharged
  • how a decision can be challenged.
• In December 2025, the government released their strategy A National Plan to End Homelessness. The strategy outlines actions the government will take now, alongside steps that will drive change in the medium and long term to achieve the vision for:

‘homelessness to be rare because it is prevented wherever possible. Where homelessness does occur, those experiences should be brief, people should have access to support quickly and no-one should have experience homelessness more than once in their life.’

Actions include:

• Long-term sustainable change to address the root causes of homelessness: building more homes, reforming renters’ rights, and tackling poverty
• Medium-term change to support councils and public services to shift from crisis to prevention: new national targets, new duties on services, and focusing investment on prevention, where possible
• Short-term change to tackle the worst forms of homelessness: eliminating the use of B&B, increasing supply and quality of temporary accommodation, new programmes and targeted funding aimed at halving the number of people with complex needs who spend years on the street.

These strategy actions are structured around five pillars: universal prevention, targeted prevention, preventing crisis, improving emergency responses and preventing repeat homelessness.

The strategy includes useful national data and context that may be useful for commissioners, for example, information on the why people become homeless. In addition to this there is a wealth of other research, guidance and data on people experiencing homelessness that can be used to inform commissioning and strategies. Significant data is collected by local housing authorities from individuals who present to them as having a housing need. This data is published by the Ministry of Housing, Communities and Local Government (MHCLG) and includes people who are experiencing homelessness or threatened with homelessness. Chapter 6 of the Homelessness code of guidance for local authorities provides detailed definitions of people experiencing homelessness and people who are threatened with homelessness.

• The Homelessness Act 2002 requires local authorities to regularly review the levels (and predicted future levels) of homelessness in each authority area and formulate a homelessness strategy.
• The Homelessness Reduction Act 2017 granted legal duties to local authorities so every person, either homeless or at risk of homelessness, will have access to assistance irrespective of their priority need status, if they are eligible for assistance. With a focus on prevention, the Act places additional duties on local housing authorities to prevent and relieve homelessness by providing earlier assessment and assistance and a need to be proactive rather than reactive to a person’s homeless crisis.
• The Homelessness Code of Guidance contains guidance on how local authorities should exercise their homelessness functions in accordance with the Homelessness Reduction Act 2017.
• The Health and Social Care Act 2012 introduced duties on NHS bodies to reduce health inequalities. Local governments have a huge role to play in tackling health inequalities, which can be defined as unjust, avoidable differences in health outcomes across communities.
• A National Plan to End Homelessness published December 2025, sets out the Government’s long-term vision to end homelessness and rough sleeping, making sure everyone has access to a safe and secure home.
• Equality Act 2010 protects individuals from the risk of discrimination, using the nine protected characteristics as a foundation framework – age, disability, gender reassignment, marriage or civil partnership, pregnancy or maternity, race, religion or belief, sex and sexual orientation. The local authority must show they are reducing inequalities when accessing services, including healthcare for people experiencing homelessness.
• The Domestic Abuse Act 2021 provides for victims who have suffered domestic abuse. The Act includes a duty for local authorities to provide support with safe accommodation.
• The Preventing Domestic Abuse Strategy sets out a multi-agency response to support victims of domestic abuse across Lincolnshire.
• The Renters’ Right Act 2026 marks a significant overhaul of the rental sector in England, providing stronger protections for tenants and ending no-fault evictions from 1st May 2026.
• The Supported Housing (Regulatory Oversight) Act 2023 introduces new standards for supported exempt accommodation and makes changes to how this type of accommodation is regulated. The Act was passed as a response to issues with the quality of the accommodation, care and support provided in exempt accommodation.
• The Care Act 2014 details a framework in which agencies collaborate to protect children, young adults, and people with care and support needs.
• Homes for Independence is one of seven priorities in Lincolnshire’s Joint Health and Wellbeing Strategy. To implement the Priority Delivery Plan, the Health and Wellbeing Board has established a Housing Health and Ageing Well Delivery Group (HHAWDG).
  Implementing the HHAWDG’s Lincolnshire Homes for Independence blueprint and associated delivery plan will enable people with care and support needs, including people experiencing homelessness, to live independently, stay connected, and have greater choice in where and how they live.
• NICE: Integrated health and social care for people experiencing homelessness [NG214] This guideline covers providing integrated health and social care services for people experiencing homelessness. It aims to improve access to and engagement with health and social care, and ensure care is coordinated across different services. It recognises that more effort and targeted approaches are often needed to ensure that health and social care for people experiencing homelessness is available, accessible, and provided to the same standards and quality as for the general population.
• The Lincolnshire Homelessness and Rough Sleeping Strategy 2022-27 reflects the government requirement for cross-agency collaboration. The purpose of this strategy is to create a coordinated, county-wide approach to prevent homelessness and rough sleeping. Some of the key collective community objectives are:
  • To prevent homelessness in a community before it occurs, through early intervention and support. This could be through supporting someone to manage their finances better or supporting someone to find a job.
  • To reduce rough sleeping by increasing access to specialist accommodation.
  • To ensure that there is an adequate supply of housing in local areas, considering that demand may differ across different areas of Lincolnshire.
  • To promote partnership working across agencies to address complex issues of homelessness.
  • To support tenancy sustainment to ensure that repetitive homelessness is kept as low as possible.
• NHS England’s Core20PLUS5 framework recognises the barriers to accessing healthcare, and subsequent health inequalities people experiencing homelessness face, by naming homelessness as an inclusion health group within the ‘PLUS’ category. Addressing homelessness is essential to narrowing the health inequality gap—and Core20PLUS5 offers a practical lens for targeted, compassionate action.

Lincolnshire is made up of seven district/borough councils, all of which have unique characteristics and include urban, rural and coastal areas. Due to the diverse nature of the county, there are several challenges that all the council’s face and some that are exclusive to one or two district areas (Source: Lincolnshire Homelessness and Rough Sleeper Strategy).

Local Authority Housing Statistics (LAHS) is an annual data collection returned by local authorities in England. The statistics cover a range of topics on local authority housing, split into various sections, including the housing register, which shows the number of households on the waiting list for social housing in each district area. The data can be accessed here: Local authority housing data – GOV.UK

Local housing authorities also have a duty to collect data from individuals who present to them as having a housing need (including those experiencing homelessness or at risk of homelessness) and submit this to the MHCLG quarterly. This data is referred to as H-CLIC data and is available at housing authority level and greater. The data is aggregated and published here: Tables on homelessness – GOV.UK

District housing authorities are also responsible for collecting data on the numbers of people estimated to be sleeping rough in Lincolnshire. This is published here: Dashboards on rough sleeping – GOV.UK.

All Lincolnshire’s housing authorities report an increase in the number of people that are approaching them for help and the number of people with complex and/or multiple needs, which may include mental and physical ill-health and substance use issues.

The Rough sleeping snapshot in England: Autumn 2024 shows that South Holland estimated the highest number of people experiencing rough sleeping in a single night and North Kesteven the lowest. The estimated numbers of people experiencing rough sleeping in each district area are detailed below.

City of Lincoln: Lincoln is home to a large university, which significantly influences the availability of accommodation. House prices, particularly in the historic uphill cathedral area, are high compared to other parts of Lincolnshire, and the private rental market is very strong, leading to elevated rental costs. The city offers a wide range of services and accommodation options. However, the movement of people experiencing rough sleeping into Lincoln can contribute to increased demand on local services, thereby creating additional pressures on those services to respond effectively to need (Source: Lincolnshire Homelessness and Rough Sleeper Strategy).

In 2024, there were 14.1 households per 1,000 on the housing register, a significant decrease from 2015 when the figure was 28.4 per 1,000. The average rate of households on the register in the East Midlands was 17.4 per 1,000 in 2024 (Source: Live tables on rents, lettings and tenancies – GOV.UK).

The Rough sleeping snapshot in England: Autumn 2024 shows that Lincoln City estimated that 21 people were experiencing rough sleeping on a single night. This represents 20.3 people per 100,000 of the population which was significantly higher than the East Midlands estimated average of 7.9 people per 100,000 of the population.

Boston Borough: Boston as a borough, has a high level of migrants, including Eastern European, workers creating a diverse population of cultures. The area has significant agricultural employment attracting seasonal workers and high levels of poor-quality housing but with disproportionately high rents. The borough has seen an increase in individuals who have no recourse to public funds, causing additional issues (Source: Lincolnshire Homelessness and Rough Sleeper Strategy).

In 2024, there were 16.5 households per 1,000 on the housing register in Boston Borough, a significant decrease from 2015 when the figure was 33.8 per 1,000 (Source: Live tables on rents, lettings and tenancies – GOV.UK)

The Rough sleeping snapshot in England: Autumn 2024 shows that the estimated number of people experiencing sleeping rough on a single night in Boston borough was 17. This represents 23.8 people per 100,000 of the population. This was significantly higher than East Midlands average of 7.9 people per 100,000 of the population.

South Holland shares many characteristics with Boston with a high proportion of agricultural employment and migrant workers. Wages are low which presents affordability challenges. There are many employment opportunities in the neighbouring city of Peterborough. Having seen an increase in housing development, accommodation is still unaffordable to those in need which has led to an increase in people experiencing rough sleeping (Source: Lincolnshire Homelessness and Rough Sleeper Strategy).

In 2024, there were 8.0 households per 1,000 on the housing register in South Holland, this is an increase from 2015 when the figure was 4.5 per 1,000 (Source: Live tables on rents, lettings and tenancies – GOV.UK).

The Rough sleeping snapshot in England: Autumn 2024 shows that the estimated number of people experiencing rough sleeping on a single night in South Holland was 24. This represents 24.5 people per 100,000 of the population. This was significantly higher than the estimated average for the East Midlands at 7.9 per 100,000 of the population.

East Lindsey comprises both coastal and rural areas, presenting challenges of seasonal employment and access to services. The coastal towns of Skegness and Mablethorpe have increased numbers of people who are experiencing rough sleeping during the summer months. The area is also appealing to the elderly population, which presents challenges finding suitably adapted accommodation (Source: Lincolnshire Homelessness and Rough Sleeper Strategy).

In 2024, there were 11.6 households per 1,000 on the housing register in East Lindsey, this is a decrease from 2015 when there were 13 households per 1,000 (Source: Live tables on rents, lettings and tenancies – GOV.UK).

The Rough sleeping snapshot in England: Autumn 2024 shows that the estimated number of people experiencing rough sleeping on a single night in East Lindsey was 17. This represents 11.7 people per 100,000 of the population. This is higher than the East Midlands average of 7.9 people experiencing sleeping rough per 100,000 of the population.

North Kesteven is popular with developers for new housing and new business parks attract business owners. This has impacted on the affordability of housing. North Kesteven has one of the lowest rates of rough sleeping and has seen an increase in economic activity over recent years. Sleaford has lower house prices compared to other Lincolnshire districts, but fewer accessible services (Source: Lincolnshire Homelessness and Rough Sleeper Strategy).

In 2024, there were 22.6 households per 1,000 on the housing register in North Kesteven, this is an increase from 2015 when there were 14.5 households per 1,000 (Source: Live tables on rents, lettings and tenancies – GOV.UK).

The Rough sleeping snapshot in England: Autumn 2024 shows that the estimated number of people experiencing rough sleeping on a single night in North Kesteven was 1. This represents 0.8 people per 100,000 of the population. It is significantly lower than the East Midlands average of 7.9 people per 100,000 of the population.

West Lindsey has one of the lowest levels of people experiencing rough sleeping across Lincolnshire but with high levels of deprivation in some parts of the largest town of Gainsborough. House prices are lower in Gainsborough compared with the other market towns in the district, but in contrast the villages on the Lincoln border present housing affordability challenges. Low turnover of social housing and lack of private rented housing presents issues with availability of suitable housing to rent (Source: Lincolnshire Homelessness and Rough Sleeper Strategy).

In 2024, there were 25.1 households per 1,000 on the housing register in West Lindsey, this is an increase from 2015 when there were 19.6 households per 1,000 (Source: Live tables on rents, lettings and tenancies – GOV.UK).

The Rough sleeping snapshot in England: Autumn 2024 shows that the estimated number of people experiencing sleeping rough on a single night in West Lindsey was 3. This represents 3.1 people per 100,000 of the population and is lower than the East Midlands average of 7.9 people per 100,000 of the population.

South Kesteven has two main towns, Grantham and Stamford, which have very different housing markets and issues. Grantham has a higher level of deprivation and high numbers of people experiencing rough sleeping with a variety of housing options. Stamford, in contrast, has very high house prices in comparison to other parts of Lincolnshire, creating affordability issues.

In 2024, there were 6.4 households per 1,000 on the housing register in South Kesteven, this is a significant reduction from 2015 when there were 21.1 households per 1,000 (Source: Live tables on rents, lettings and tenancies – GOV.UK).

The Rough sleeping snapshot in England: Autumn 2024 shows that the estimated number of people experiencing sleeping rough on a single night in South Kesteven was 8. This represents 5.5 people per 100,000 of the population and is lower than the East Midlands average of 7.9 people per 100,000 of the population.

In 2019 Development Plus undertook research commissioned by the City of Lincoln Council and produced a report on Lincoln Homelessness. The research aimed to tell the stories of people who were sleeping rough and/or causing anti-social behaviour in the city. The research project sought to identify:

• Circumstances that led to that individual’s current situation
• What would they want out of a person-centered project
• What services do they already access
• What services don’t they access and the reason why (e.g. barred/existing client history etc.)
• What services have they accessed in the past (positive experiences may no longer be available)
• What were their aims and aspirations for the future, and how did they think they could achieve these
• Did they have a fixed abode. If so, why weren’t they using it and what would encourage them to use it. If enforcement was part of an ultimatum, how would this make them feel.

The research offered the following recommendations:

• Practical support such as day storage lockers for belongings and clear signage and visual aids for homeless services and SWEP (Severe Weather Emergency Protocol) alerts.
• Simplifying access, such as creating a single point of contact for homelessness support and signposting and streamlining homeless pathways.
• Providing consistent support, for example, assigning a dedicated mentor/support worker to accompany individuals through their journey.
• Providing facilities for taking prescribed medication safely and managing withdrawal.
• Offering training in life skills (budgeting, cooking, socialising) to aid transition into accommodation.
• Addressing the “falling through the net” group who avoid or cannot access services.
• Introducing a mediator between people experiencing homelessness and the police to encourage crime reporting.
• Establishing a regular, reliable location where help can always be accessed.

Lincolnshire’s seven district councils are the local housing authorities and have statutory duties regarding homelessness, housing advice, allocations of social housing, planning, and new housing provision.

As evident from the needs identified above, tackling homelessness requires a partnership response to firstly, prevent it occurring and secondly, to reduce reoccurrences. Multiagency work includes the Housing, Health and Ageing Well Delivery Group (HHAWDG) and the creation of a Homelessness and Rough Sleeper Strategy for Lincolnshire.

The Housing Health and Ageing Well Delivery Group (HHAWDG) is a subgroup of the Lincolnshire Health and Wellbeing Board. The HHAWDG is attended by representatives of Lincolnshire County Council, all district councils, NHS Lincolnshire Integrated Care Board (ICB), NHS Trusts, Lincolnshire Police, social housing providers, third sector, Department for Work and Pension (DWP), and others.

Partners have funded increased capacity within Public Health Intelligence allowing the Team to deliver a shared housing intelligence role that will improve knowledge and understanding of the causes and effects of insecure homes and homelessness.

The Lincolnshire Homelessness Strategy Partnership monitors the workstreams identified in the Homelessness and Rough Sleeper Strategy. Action groups are aligned to each priority. A manager is in post to coordinate actions across the Lincolnshire Housing Partnership. Partnership working has resulted in tangible improvements to homelessness services and to the accessibility of universal services that people experiencing homelessness, or people at risk of homelessness may need to access.

Successes specific to the Lincolnshire Homelessness Partnership include:

• A No Recourse to Public Funds Protocol, to tackle the challenges that immigration presents locally
• Reviewing the severe weather protocol and analysis of what this means for those who are homeless
• Expanding the strategy pathways to include women and offenders
• Piloting a new countywide duty to refer with the probation service
• Reviewing the care leavers protocol
• Reviewing the prison leavers protocol
• Developing a protocol for hospital discharge
• Conducting a Specialist Accommodation Review for the complex needs’ cohort through the Housing Advisor Programme
• Building relationships with registered providers and partners.

The voluntary, community and social enterprise sector plays an active role in Lincolnshire. The support provided by charities and volunteers ranges from community groups providing warm food, to larger charities providing accommodation and specialist support. Some examples include:

• In Lincoln, the YMCA provides 170 units of accommodation, support and meals. They also provide comprehensive support services such as life skills training to empower individuals to rebuild their lives and enable long term stability.
• In Lincoln, The Nomad Trust (YMCA) provides 22 units of emergency accommodation, support, and meals.
• In Lincoln, Project Compass offers support to people experiencing homelessness and links them with services such as housing and substance use services. They offer somewhere safe and warm for people to rest, phone use/charging station, clean clothes, appointment reminders and food bank referrals.
• In Boston, Centrepoint provides drop-in support and guidance, signposting, use of a shower, emergency food parcels, daily activity sessions and furniture.
• In Skegness, The Storehouse provides a warm space available for people to attend the Skegness Wellbeing Hub. This hub supports people who are struggling both mentally and physically in the community and ensures they are not alone. The Storehouse also acts as a foodbank and is specifically for those in the community who receive either accommodation or floating support from Framework.
• East Lindsey District Council have installed accommodation pods in Skegness to help reduce homelessness and support vulnerable residents. Each sleeping pod is a secure, waterproof shelter and a pathway toward a more permanent housing solution to individuals in crisis, with a bed, chemical toilet and charging facilities all included inside. The pods are designed to help people who have been rough sleeping and have complex needs, making hostel-style accommodation unsuitable. The pod scheme will also receive a host of wraparound services, including health, housing and employment support to help individuals rebuild their lives.
• Lincolnshire’s Housing Related Support (HRS) service offers short term support for vulnerable adults who are homeless, or at risk of becoming homeless, and have substance use and /or mental health concerns. The service helps them deal with the issues that led to their current situation and develop skills to live independently. Support is offered in various locations, including hostels, people’s own homes and within the community. The current service is commissioned via Lincolnshire County Council and is delivered by the Lincolnshire Housing Related Support Partnership, which is made up of Framework Housing, Amplius (formerly Longhurst Group), The Salvation Army and Nacro.
• The Lincolnshire Migration Partnership oversees and co-ordinates activity across an increasing number of resettlement programmes, seeking to ensure that migrants arriving in the county are supported and accommodated. The partnership is alert to the risks of these individuals becoming homeless and has identified measures to ensure effective advice and support is provided. In Lincolnshire, emphasis of this migration partnership is currently placed on the Ukraine response. The partnership comprises of Lincolnshire County Council alongside Lincolnshire’s seven district councils, designed to ensure that local communities can provide a safe and warm welcome to migrants that arrive from Ukraine to Lincolnshire. Part of this looks at ‘host accommodations’ where local people can come forward to help if they have space in their current place of residency for Ukrainian migrants, usually for a certain amount of time. This is recognised nationally as the ‘Homes for Ukraine’ campaign.

The views of stakeholders, residents or key parties regarding the topic/issue.
(Views collected through active engagement with wider partners and stakeholders. Contributions can be in wide range of formats including surveys, focus groups or meetings with stakeholders).

The Homelessness Act 2002 requires that all local authorities with responsibility for housing carry out a review of homelessness in their respective district areas and publish a strategy based on the findings of the review. It is also required that the strategy is kept under review and consultation occurs with other local or public authorities and voluntary organisations before modifying or adopting a strategy. To develop the Lincolnshire Homelessness and Rough Sleeper Strategy a series of focus groups, one-to-one meetings and a survey collected feedback, which enabled the strategy to meet the aims of the seven district councils and stakeholders.

The priorities in the Lincolnshire Homelessness and Rough Sleeper Strategy were chosen to reflect the issues highlighted throughout the consultation process with stakeholders, and the challenges faced going forward. The priorities are:

1. Prevent: Identify those that are at risk of becoming homeless as early as possible and through the Duty to Refer prevent homelessness or rough sleeping
2. Protect: Identifying the most vulnerable, ensuring individuals are safe from harm, and have access to support and services to maintain their health and wellbeing
3. Partnership: Strengthen and maintain relationships to bring together resources and knowledge to prevent and relieve homelessness
4. Place: Ensure accommodation is both available and suitable for those that need it and explore opportunities to increase the supply of accommodation
5. Plan: Take a proactive, joined up and flexible approach to tackling rough sleeping and homelessness and explore funding opportunities to ensure we meet the needs of all client groups.

When commissioning services and/or applying for funding, Lincolnshire County Council engage with stakeholders and people who use services to ensure service provision meets the needs of those requiring assistance. Feedback from people who use services and stakeholders is gathered on all new initiatives and/or potential changes to services.

Accommodation

• A shortage of all social housing means that most areas of Lincolnshire have long waiting lists and there is a heavy reliance on private lettings which are often unaffordable.
• There is a shortage of suitable longer-term and affordable general accommodation for single people across Lincolnshire. Providing access to appropriate accommodation is crucial to break the cycle of homelessness that many experience.
• There is a shortage of emergency access accommodation for people newly experiencing rough sleeping which limits opportunities to get people housed quickly and prevent them from becoming entrenched.
• Temporary accommodation pressures – across Lincolnshire’s districts, there is a limited availability of temporary housing. This, over time, has led to reliance on bed and breakfasts and hotels. These are often unsuitable for long stays and don’t fit people’s needs. For rural areas, this problem is exacerbated due to the lack of this type of accommodation in the locality.
• Provision for single people with high support needs – There is a notable gap in accommodation for individuals who cannot cope with conditions in hostels due to trauma, mental health, or behavioural challenges. While providers like the YMCA and the Lincolnshire Housing Related Support Partnership offer supported housing, capacity is limited, and demand continues to exceed supply.
• Lack of move-on pathways – Individuals in temporary or supported accommodation face significant barriers to transitioning into stable housing. The shortage of affordable tenancies and tailored support undermines efforts to sustain progress and independence.
• Emergency accommodation during Lincolnshire’s Severe Weather Emergency Protocol (SWEP) activation which is triggered during extreme weather – emergency accommodation capacity is stretched during these periods. With the increasing frequency and severity of such events, the risk to life for people experiencing entrenched rough sleeping is growing.
• Rising living costs are making housing increasingly unaffordable for many, and this trend is expected to continue. As a result, demand for social housing will grow, placing additional pressure on already stretched resources. A proactive, multi-agency approach is essential to identify individuals at risk early and connect them with financial advice and support services before their situation escalates.

Access to services

• Lincolnshire Partnership Foundation Trust (LPFT) recently identified a need for an assertive outreach model in their mental health provision to support people who are experiencing homelessness.
• Homelessness and NRPF (No Recourse to Public Funds) – there remains an urgent need for a coordinated national solution for individuals experiencing homelessness who are excluded from statutory safety nets due to immigration status. At present, local responses vary and often depend on discretionary powers, which can make it challenging to provide consistent support and clear pathways to shelter or assistance.
• Multi-agency panel consistency – vulnerable adults who need coordinated support, particularly those with complex needs, can experience differences in how multi-agency panels operate. These variations may include differing thresholds for engagement, varied application of strengths-based approaches, and the absence of standardised processes for escalation or review.
• Support for drug and alcohol use – gaps across the county in assertive outreach for people experiencing homelessness who are affected by substance use continue to limit recovery outcomes. Assertive outreach is only currently available in Lincoln, Boston and East Lindsey and is funded through temporary grant funding.

Private rented sector

• A need to ensure access to safe and secure accommodation in this sector from social letting agencies; and to explore mechanisms for accreditation, safety checks and inspections.
• A need to know how many landlords are leaving the sector, and why, and what can be done to prevent this to secure an adequate supply of homes.
• A need to work with landlords to prevent evictions, and to provide debt and financial advice.

Health partnerships

• Strengthening collaboration with mental health services could help improve access to support for individuals, whether they have a formal diagnosis or not, and enable a more joined-up approach for those with both mental health and substance use needs.
• There is value in exploring more proactive and tailored support for people with mental health challenges who find it difficult to engage with mainstream services.
• There is a need for a greater geographical scope of locally centered health services for people experiencing homelessness as these services are currently only available in Lincoln City.

Research

• Develop a robust evidence base on the current state of housing in Lincolnshire.
• Map all homelessness services in Lincolnshire, including eligibility criteria.
• Analyse the number of individuals who become homeless due to untreated health conditions.
• Conduct comprehensive research on homelessness and adult care needs, including return-on-investment studies.

All the challenges above are highlighted in the Lincolnshire Homelessness and Rough Sleeper Strategy. Opportunities to increase the provision of accommodation, to expand support services and develop homelessness initiatives will be progressed through partnership action groups. A partnership approach shows commitment to the Government’s vision that homelessness should be rare, brief, and non-recurring.