Cabinet
Subject: Homes for everyone: homelessness and rough sleeping local delivery plan
Date of meeting: 12 November 2026
Report of: Cabinet Member for Housing
Lead Officer: Name: Corporate Director for Homes & Adult Social Care
Contact Officer: Name: Lisa Ellwood, Elizabeth Leach, Lucie Spicer, Harry Williams
Email: [lisa.ellwood@brighton-hove.gov.uk]
Ward(s) affected: (All Wards);
Key Decision: Yes
Reason(s) Key: Is significant in terms of its effects on communities living or working in an area comprising two or more electoral divisions (wards).
1.1 The council’s Homelessness and Rough Sleeping Strategy 2025–2030 was approved by Cabinet in December 2025. Developed with partners and people with lived experience, it focuses on preventing homelessness and rough sleeping, improving temporary accommodation, strengthening support for people with complex needs, and improving outcomes for children, families and young people.
1.2 The Strategy supports the Council Plan outcomes of a fair and inclusive city and homes for everyone. It also provides the local framework for responding to the Government’s national homelessness strategy.
1.3 The national strategy requires local authorities to publish an action plan by 1 December 2026 as a condition of grant funding and to keep it under review. Ministry of Housing, Communities and Local Government guidance requires the plan to include:
a) targets to improve performance;
b) local governance arrangements;
c) how local partnerships will support delivery;
d) a long-term rough sleeping partnership plan; and
e) a policy for ensuring the suitability of temporary accommodation.
1.4 This report asks Cabinet to approve and publish the Homelessness and Rough Sleeping Action Plan, the Long-Term Rough Sleeping Partnership Plan and the Suitability of Temporary Accommodation Policy, attached as Appendices 1 to 3. Together, they set the framework for delivery, performance and partnership accountability and meet the relevant grant conditions.
2.1 Cabinet agrees to adopt and publish:
· the Homelessness and Rough Sleeping Action Plans (Appendix 1)
· the Policy for Ensuring the Suitability of Temporary Accommodation (Appendix 2)
· the Long-Term Rough Sleeping Partnership Plan (Appendix 3)
2.2 Cabinet delegates to the Corporate Director, Homes and Adult Social Care, in consultation with the Cabinet Member for Housing, the authority to review and amend actions and targets contained within the Homelessness and Rough Sleeping Action Plans and Long-Term Rough Sleeping Partnership Plan for the duration of the Action Plans.
3.1 The Homelessness and Rough Sleeping Strategy 2025-2030 remains the city’s overarching strategic document for addressing homelessness and rough sleeping across the city.
3.2 The governance framework uses existing council and partnership structures to support a streamlined and coordinated approach. It provides political oversight through the council’s established decision-making arrangements and an annual report on progress.
3.3 It was created through co-production with partners and those with lived experience. Council officers led the development of the Strategy using the council’s learning organisation framework by:
· being connected with residents with lived experience, and the knowledge and expertise of partners and frontline staff;
· being confident in the development of the Strategy and action plans by using data and resident intelligence; and
· a commitment to diversity and inclusion by ensuring the Strategy includes a chapter dedicated to children, families and young people and the acute inequalities they experience in temporary accommodation
3.4 It has three ‘Priorities’ and one overarching ‘Chapter’ which sits across all three priorities:
1. Increase our effectiveness in preventing homelessness and rough sleeping
2. Improve temporary accommodation pathways and experiences
3. Improve joined-up support with our partners for people who most need help
3.5 The Strategy includes a cross-cutting Chapter which commits to tackling homelessness in children, families and young people.
3.6 The partnership’s implementation of the Strategy is beginning to change how and when residents receive help. More households are approaching the council before they become homeless, with the proportion seeking help at the prevention stage increasing from 38.7% in 2025/26 to 44.9% in the first quarter of 2026/27. Successful early intervention and prevention outcomes are forecast to increase from 554 households in 2025/26 to 662 in 2026/27.
3.7 The Strategy is also supporting a shift towards more stable and better-managed temporary accommodation. Although the overall number of households requiring temporary accommodation remains high, the proportion placed in nightly paid accommodation reduced from 26% in January 2026 to 16% in August 2026, with more households living in homes owned or controlled by the council.
3.8 The documents attached to this report in Appendix 1-3 sit alongside the strategy. These are as follows:
· The Homelessness and Rough Sleeping Action Plan includes targets and a description of how, working with partners, those targets will be achieved to support delivery of the strategy. They set out how partners are putting prevention at the heart of support and services.
· The Long-Term Rough Sleeping Partnership Plan supports delivery of the strategy's commitment to improve outcomes for people experiencing rough sleeping (with a focus on long-term rough sleeping) and strengthens coordinated support for residents with multiple and complex needs. It sets out partnership activity to reduce long-term rough sleeping and connects this to wider rough sleeping plans.
· The Suitability of Temporary Accommodation Policy supports delivery of the strategy's priority to improve temporary accommodation pathways and experiences by establishing a clear framework for ensuring suitability after assessment, including supply, procurement and allocation
3.9 Together, these documents ensure that the ambitions agreed within the strategy are translated into operational delivery, partnership accountability and measurable outcomes.
3.10 Brighton and Hove continues to experience significant housing and homelessness pressures as a city. Demand for homelessness services remains high, temporary accommodation use continues to place operational and financial pressures on the council, and some residents continue to experience multiple and complex barriers to securing and sustaining accommodation.
3.11 The council's review of homelessness identified 3,580 people experiencing homelessness in the city in June 2024, including 1,411 children. At the end of 2024, 1,928 households were living in temporary accommodation, while homelessness applications have continued to rise in recent years.
3.12 The strategy acknowledges that homelessness is rooted in wider structural and system-wide challenges and that lasting progress requires coordinated action across housing, health, social care, community safety, the voluntary sector and other partners.
3.13 The plans therefore provide a practical framework through which the council and its partners can deliver shared priorities, strengthen accountability and maintain a stronger focus on prevention and early intervention.
Homelessness and Rough Sleeping Action Plan
3.14 The Homelessness and Rough Sleeping Action Plan is the overarching delivery document for the city. Building on the priorities established within the Homelessness and Rough Sleeping Strategy 2025-2030, the Action Plan sets out the specific actions, milestones and performance measures that will support delivery over the coming years aligned with MHCLG guidance.
3.15 The plan brings together activity relating to homelessness prevention including hidden homelessness, housing options, temporary accommodation, rough sleeping services and wider support services into a single delivery framework. It establishes clear ownership of actions, supports partnership accountability and provides a mechanism for monitoring progress against agreed outcomes.
3.16 The Action Plan also identifies how partners across the homelessness and rough sleeping system will contribute to delivery and how progress will be reviewed and reported.
Long-Term Rough Sleeping Partnership Plan
3.17 The Long-Term Rough Sleeping Partnership Plan focuses on residents experiencing the most entrenched forms of rough sleeping and homelessness.
3.18 The Homelessness and Rough Sleeping Strategy recognises that people experiencing long-term rough sleeping often face multiple and interconnected challenges, including poor mental and physical health, substance use, experiences of trauma and wider social exclusion. Addressing these issues requires coordinated support across a number of organisations.
3.19 The plan sets out how housing services, health providers, community safety services, criminal justice partners, commissioned providers and voluntary sector organisations work together to reduce long term rough sleeping and improve longer term outcomes.
3.20 It establishes a shared understanding of priorities, responsibilities and partnership commitments and supports the council's wider ambition to prevent and reduce people experiencing rough sleeping – and long-term rough sleeping - across the city.
Suitability of Temporary Accommodation Policy
3.21 The Suitability of Temporary Accommodation Policy ensures suitability after assessment, including supply, procurement and allocation. It replaces the Allocation of Temporary Accommodation Policy.
3.22 Improving temporary accommodation pathways and experiences is one of the three priorities within the Homelessness and Rough Sleeping Strategy. The strategy recognises the need to improve the quality of accommodation, reduce lengths of stay and ensure households are supported to move on into settled housing as quickly as possible.
3.23 The policy supports these objectives by setting out how the council determines suitability when making placements. This includes consideration of household composition, medical needs, support requirements, affordability, accessibility and location. The policy also establishes a framework for reviewing placements where circumstances change and supports consistency, transparency and accountability in decision making.
3.24 The policy is also aligned with the emerging Brighton & Hove Temporary Accommodation Charter, developed through the Temporary Accommodation Action Group with Justlife, people with lived experience, accommodation providers and other partners.
3.25 The Charter aims to establish shared expectations for safe, suitable and well-managed temporary accommodation, including clear information for residents, respectful and trauma-informed services, effective safeguarding, access to support and consistent provider standards.
3.26 The council supports these principles and is working with partners to understand how they can be applied consistently and proportionately across different types of temporary accommodation.
3.27 This will include using the forthcoming procurement of block-booked temporary accommodation to set clear quality, service and contract-management expectations for providers, while continuing to drive standards through the management, inspection and improvement of accommodation owned or controlled by the council.
3.28 The Homelessness and Rough Sleeping Strategy recognises that homelessness cannot be addressed by a single service or organisation acting alone and highlights the importance of partnership working in delivering lasting change.
3.29 The plans have therefore been developed through engagement across the homelessness and rough sleeping system. Internally, engagement sessions and workshops have been undertaken with council services involved in homelessness prevention, rough sleeping, temporary accommodation, housing, commissioning, adult social care, children’s services, public health and related service areas.
3.30 Alongside this, the council has engaged with partners across the homelessness and rough sleeping system, including health organisations, commissioned providers, voluntary and community sector organisations and other statutory partners. This has included workshops and learning sessions with frontline workers, people with lived and living experience, and partners within the Homelessness and Rough Sleeping Working Group.
3.31 This engagement has shaped the priorities, actions and governance arrangements in the plans and supports a shared, whole-system approach, including lived and living experience, to preventing homelessness, reducing rough sleeping and improving outcomes for residents.
Connection to the new Rough Sleeping Programme
3.32 The Government’s new Rough Sleeping Programme aims to ensure that everyone experiencing rough sleeping receives a meaningful offer of accommodation and/or support by Christmas, with more intensive support for people experiencing longer-term rough sleeping.
3.33 The council supports the programme, which builds on the city’s existing rough sleeping services and complements the plans and policies set out in this report.
3.34 A further report setting out the city’s response to the Rough Sleeping Programme will be presented to Cabinet in December 2026.
Governance and accountability
3.35 Strong governance is integral to delivery of the Strategy and supporting plans. The framework uses existing council and partnership structures to support a streamlined and coordinated approach.
3.36 Cabinet will provide political oversight through the council’s established decision-making arrangements and receive an annual report on progress.
3.37 The People Overview and Scrutiny Committee will receive annual updates on delivery of the Strategy through the supporting plans.
3.38 The Homelessness and Rough Sleeping Partnership Board meets quarterly and provides strategic oversight across the homelessness and rough sleeping system. It brings together partners from housing, health, community safety, commissioned services, the voluntary and community sector and people with lived experience to monitor agreed priorities and actions.
3.39 The Homelessness and Rough Sleeping Working Group meets at least monthly, and every two weeks where required. It coordinates delivery across the three priorities and cross-cutting chapter of the Strategy.
3.40 The Working Group brings together council teams and partners from housing, health, community safety, commissioned services and the voluntary and community sector, including representatives of people with lived experience, to oversee progress against agreed actions and timescales.
3.41 Related programmes and service developments will be coordinated through the Working Group so that they contribute to the Strategy and supporting plans.
3.42 The Health and Wellbeing Board provides strategic oversight where homelessness intersects with health inequalities, prevention, mental health, public health and the wider determinants of health.
3.43 The Adult Safeguarding Board provides oversight and challenge on safeguarding responsibilities and coordinated support for adults experiencing homelessness who may have care and support needs.
3.44 Operational delivery will continue through existing service, commissioning and partnership arrangements, with actions reflected in service plans and partnership work programmes where appropriate.
3.45 Subject to Cabinet approval, the plans will guide delivery across the city and provide the basis for performance monitoring, partnership accountability and reporting.
4.1 The alternative option of taking no action and continuing to rely solely on the Homelessness and Rough Sleeping Strategy 2025–2030 was considered. This is not recommended because the Strategy is the overarching strategic document and does not, on its own, provide the detailed actions, targets, partnership plan and temporary accommodation suitability framework required for delivery or meet the identified national publication requirements.
4.2 Deferring approval to allow further development or consultation was also considered. This is not recommended because the documents build upon the priorities and commitments already established through the Strategy, which was informed by public consultation, partner engagement and input from people with lived and living experience. Deferral would also place the council’s ability to publish by 1 December 2026 at risk.
5.1 The Action Plan, which includes the Long-Term Rough Sleeping Partnership Plan, and the Suitability of Temporary Accommodation Policy, are building on the priorities, chapter and commitments agreed to within the strategy and outlining how partners will work together to deliver these commitments. Consultation was considered for the Suitability of Temporary Accommodation policy, with consultation from legal, and it was determined that public consultation would not be required as there would be a high level of knowledge needed to review, and the policy replaces an existing policy, the allocation of temporary accommodation policy.
5.2 The Homelessness and Rough Sleeping Strategy Partnership Board includes members with lived and/or living experience, the Homelessness and Rough Sleeping Strategy Working Group has a representative from Common Ambition, and there is close co-production with the Common Ambition Lived Experience group to ensure lived and living experience of homelessness is centred.
5.3 The plans and policies have been developed through engagement with partners and people with lived and living experience, focused on how the council and its partners can improve residents’ experience.
6.1 The recommendations in this report do not seek approval for additional budget provision. Delivery of the Homelessness and Rough Sleeping Action Plan, Long-Term Rough Sleeping Partnership Plan and Suitability of Temporary Accommodation Policy will be managed within existing approved budgets, confirmed external funding allocations and current resources.
6.2 Delivery will be subject to the availability of funding. Grant-funded activity must be managed in accordance with the relevant grant conditions, agreed outcomes and funding timescales. The service will maintain appropriate financial oversight and evidence delivery, as non-compliance could put current or future funding at risk.
6.3 Any additional costs arising as individual actions and delivery arrangements are developed, including temporary accommodation, commissioning, procurement or service changes, will require separate financial assessment and approval before any commitments are entered into. Unless alternative funding is identified and formally approved, any additional costs or emerging pressures will need to be contained within existing service and directorate budgets, with mitigating action identified where required.
6.4 The financial position, including grant spend, delivery risks and any impact on budgets, will be monitored through monthly Targeted Budget Management reporting. Any forecast variance or funding risk must be reported promptly and managed in accordance with the council’s financial governance arrangements.
Name of finance officer consulted: Ferrise Hall Date consulted (09/10/26):
7.1 The council has already approved the overarching Strategy and this report provides the framework for its implementation. The council may tailor the locally developed plans to meet local need, provided that decisions are reasonable, comply with the public sector equality duty and do not breach the Human Rights Act. The plans cannot replace the council’s housing allocations policy and should align with it where the objective is to provide sustainable, long-term social housing. Some activity will be grant funded and the relevant conditions must be reflected in delivery arrangements.
7.2 Homelessness legislation requires any offer of temporary accommodation to be suitable. Suitability is defined through both legislation and case law. The previous policy focused particularly on out-of-area placements, which can be lawful and may sometimes still be required. Clearer definitions in the new policy will support transparent and consistent decisions, but the council will need to act in accordance with its published policy. The policy should therefore remain clear, retain appropriate flexibility and be reviewed regularly as circumstances change. It also supports the council’s wider work to increase supply and improve accommodation quality.
Name of lawyer consulted: Simon Court Date consulted (29/10/26):
8.1 Failure to publish and deliver the Action Plan, Long-Term Rough Sleeping Partnership Plan and Suitability of Temporary Accommodation Policy by 1 December 2026 would result in Brighton & Hove City Council becoming non-compliant with grant funding conditions.
8.2 Failure to publish and deliver the Action Plan, Long-Term Rough Sleeping Partnership Plan and Suitability of Temporary Accommodation Policy by 1 December 2026 would reduce transparency and strategic oversight, increase operational and governance risks, and weaken the council’s and its partners’ ability to demonstrate effective delivery of homelessness and rough sleeping services against the Homelessness and Rough Sleeping Strategy 2025-2030.
8.3 The Action Plan, Long-Term Rough Sleeping Partnership Plan and Suitability of Temporary Accommodation Policy build on the Homelessness and Rough Sleeping Strategy 2025-2030 which recognises the wider impact of homelessness on health, safeguarding, education, employment and life opportunities.
8.4 They provide a joined-up approach to deliver against the Homelessness and Rough Sleeping Strategy and, by extension, improve outcomes for residents that contribute to the Council’s ambitions for healthy, inclusive and resilient communities, underpinned by the commitments to be fair and inclusive, work in partnership and make best use of resources.
8.5 Without them, there is a risk that the Council and partners do not successfully deliver against the Homelessness and Rough Sleeping Strategy 2025-2030.
8.6 Agreement with the recommendations would enable the Council to publish the Action Plan, Long-Term Rough Sleeping Partnership Plan and Suitability of Temporary Accommodation Policy by 1 December 2026 which resolves the risk of non-compliance with MHCLG grant conditions.
8.7 The Council’s commitment to being a Learning Organisation aligns with the requirement to ensure Action Plans are updated regularly to ensure they are responsive to learnings by the council, partners and those with lived and living experience. The recommendation for Cabinet to agree that the Corporate Director, Homes and Adult Social Care has the authority to review and amend targets contained within the Homelessness and Rough Sleeping Action Plans in consultation with the Cabinet Member for Housing for the duration of the Action Plans mitigates and resolves this risk.
9.1 The Equality Impact Assessment for the Suitability of Temporary Accommodation Policy (Appendix 4) identifies both positive impacts and areas requiring continued attention. The policy provides a clearer and more consistent framework for assessing suitability and requires decisions to consider each household’s circumstances, including disability and health needs, accessibility, safeguarding, children’s education, caring responsibilities, affordability, employment and access to support networks. This should support fairer and more transparent decisions, particularly for households whose needs may otherwise be less well met.
9.2 The assessment also recognises that the policy is likely to have a greater impact on disabled people, women, Black and racially minoritised households, households with children, survivors of domestic abuse, care leavers, migrants and refugees, and other households with additional vulnerabilities. Limited availability of suitable temporary accommodation can affect access to schools, healthcare, employment, community connections and support networks, particularly where a household needs an adapted property, a larger home or accommodation in a specific location. The policy cannot remove these supply constraints, but it seeks to reduce their impact through individual assessments, reasonable and inclusive adjustments, case-by-case decisions and reviews where circumstances change.
9.3 The assessment therefore recommends that the policy proceeds, with its safeguards applied consistently and its impact kept under review. In line with the policy, the council will continue to record a suitability assessment for every placement and monitor suitability reviews, complaints, customer feedback, safeguarding concerns and out-of-area placements to identify any disproportionate effects. This evidence will inform the annual review of the policy and Equality Impact Assessment, or an earlier review if significant issues emerge, with any required changes reflected in service improvement plans.
9.4 The recommendations will also be taken forward through the Homelessness and Rough Sleeping Action Plan and related programmes to increase the supply, quality and range of temporary accommodation, including homes suitable for families, disabled people and households with specific support needs. This is important because a wider range of accommodation will improve the council’s ability to match households to homes that meet their assessed needs and reduce the risk of disadvantage caused by limited options. The Equality, Diversity and Inclusion Business Partner and Manager approved the assessment, describing it as comprehensive and proportionate, with appropriate mitigation and no requirement for substantial reworking or additional evidence gathering.
10.1 The Action Plan, Long-Term Rough Sleeping Partnership Plan and Suitability of Temporary Accommodation Policy are expected to have a positive sustainability impact through supporting healthier, safer and more secure living environments for residents experiencing or at risk of homelessness.
10.2 By improving access to suitable accommodation, reducing rough sleeping and strengthening partnership working, the proposals contribute to social sustainability, community wellbeing and improved life outcomes. The plans may also provide indirect benefits to the local economy through supporting residents to maintain accommodation, access support services and improve housing stability. There are no significant direct implications identified in relation to energy use, waste, water consumption or biodiversity.
10.3 We open an emergency weather shelter, also known as Severe Weather Emergency Protocol (SWEP) when either the temperature is predicted to drop below 0 degrees Celsius, when there is an amber weather warning, and this also includes heatwaves. These have been stood up with increasing frequency and are expected to continue to do so as part of our planning to ensure we are responding to meet people’s needs during extreme weather. When SWEP is triggered, the Street Outreach Service will be out on the streets of the city directing people to shelter. SWEP provides shelter for all people experiencing rough sleeping and venues are made available to meet demand.
10.4 We will remain as flexible as possible and adapt to the needs of people experiencing rough sleeping during extreme weather to ensure vulnerable people experiencing rough sleeping are cared for, not just in extreme weather, but throughout the year.
11. Health and Wellbeing Implications:
11.1 The Action Plan, Long-Term Rough Sleeping Partnership Plan, and Suitability of Temporary Accommodation Policy are underpinned by the wider Homelessness and Rough Sleeping Strategy, which was developed with Public Health input. Collectively, these documents are expected to have a positive impact on health and wellbeing by supporting people to access safe, suitable accommodation and the wider services needed to improve outcomes and prevent homelessness.
11.2 The priorities and ways of working in these documents contribute positively to several wider determinants of health. By improving access to stable and suitable housing, they support healthy housing and help reduce the negative physical and mental health impacts associated with homelessness and housing insecurity. The long-term partnership approach promotes stronger healthy places and communities, encouraging coordinated support across housing, health, and voluntary sector services to improve wellbeing and social inclusion.
11.3 The plans also support access to education and skills, fair employment and good work, and transport through joined-up support that helps individuals sustain accommodation and engage with services, training, employment opportunities, and local communities. In addition, by securing and maintaining suitable accommodation, individuals are better placed to access essential services and meet basic needs, including access to affordable and nutritious food.
11.4 Overall, they are expected to have a positive impact on health and wellbeing by addressing the wider social determinants of health, reducing the harms associated with homelessness and rough sleeping, and supporting people to achieve greater stability, independence and improved quality of life.
12. Procurement implications
12.1 The Strategy relates to a number of contracting arrangements for supporting those experiencing homelessness and rough sleeping. These are referenced in the council’s annual procurement plan or specific reports to Cabinet.
13. Crime & disorder implications:
13.1 The Action Plan, Long-Term Rough Sleeping Partnership Plan, and Suitability of Temporary Accommodation Policy, together with the wider Homelessness and Rough Sleeping Strategy, are expected to have a positive impact on crime and disorder. By supporting the prevention and relief of homelessness, reducing rough sleeping, and improving access to suitable accommodation and support services, these plans and policies help address some of the underlying factors associated with vulnerability, exploitation, anti-social behaviour, and involvement in crime.
13.2 The partnership approach promotes greater collaboration between housing, community safety, health, criminal justice, and voluntary sector partners, enabling earlier intervention and more coordinated support for individuals with complex needs. The Suitability of Temporary Accommodation Policy also seeks to ensure that accommodation placements are appropriate to individual circumstances, helping to safeguard residents and support positive outcomes.
13.3 Overall, the plans and policies are expected to contribute to safer communities by reducing the risks associated with homelessness and rough sleeping, improving stability for vulnerable residents, and strengthening multi-agency responses to prevent and address crime, anti-social behaviour, and exploitation.
14.1 Cabinet is recommended to approve the Homelessness and Rough Sleeping Action Plan, the Long-Term Rough Sleeping Partnership Plan and the Suitability of Temporary Accommodation Policy. Together, these three documents translate the Homelessness and Rough Sleeping Strategy 2025–2030 into clear actions, measurable outcomes, partnership responsibilities and governance arrangements.
14.2 Approval will strengthen accountability for preventing homelessness, reducing rough sleeping and improving temporary accommodation pathways. It will enable compliance with grant funding conditions which requires the documents to be published by 1 December 2026.
14.3 Cabinet is therefore asked to adopt and publish the three documents, which together form the Action Plan, and delegate responsibility for their implementation, including the review and amendment of Action Plan targets in consultation with the Cabinet Member for Housing, to the Corporate Director for Homes and Adult Social Care.
Supporting Documentation
1. Appendix 1: Homelessness and Rough Sleeping Action Plans
2. Appendix 2: Policy for Ensuring the Suitability of Temporary Accommodation
3. Appendix 3: Long-Term Rough Sleeping Partnership Plan
4. Appendix 4: Equality Impact Assessment on Policy for Ensuring the Suitability of Temporary Accommodation
1. Cabinet Report on Brighton & Hove City Council Homelessness & Rough Sleeping Strategy December 2025: Homelessness and rough sleeping strategy 2025 to 2030.pdf
2. Brighton & Hove City Council Homelessness & Rough Sleeping Strategy: Homelessness and rough sleeping strategy 2025 to 2030