Known Unknowns: What Is the True Scale of Youth Homelessness? Contents

Policy Briefing

Known unknowns: What is the true scale of youth homelessness? Contents

Introduction 4 Young people accessing homelessness services and support 5 Changes in overcrowding 7 Existing data on young people rough sleeping 8 Homelessness and housing insecurity among young people across the UK 8 Conclusion and recommendations 10 Increasing knowledge: Youth Homelessness Databank 11 The methodology aims to overcome the • Young people’s survey: a poll of 16 to Introduction existing data challenges, and includes a 25 year olds across the UK was carried number of elements: out by ComRes in order to explore rates Homeless young people are amongst the local authority.2 Even if they do present of hidden homelessness through sofa 6 most vulnerable in our society. Many themselves to their local authority, many • Secondary data analysis: a number of surfing and rough sleeping. have left home because it was more homeless young people are not covered by government datasets were analysed dangerous for them to stay than to this duty as they are considered to have including statutory homeless data, P1E Households headed by young people are leave. Some are dealing with the lasting made themselves ‘intentionally homeless’ data on homeless preventions, CORE/ included in the research but not young impact of abuse or neglect, family or are not considered to be in a ‘priority SCORE data on those accessing social people living with their own parents, i.e. breakdown or poor mental health. These need’ category. housing and CHAIN data on rough where their whole family is homeless. 5 young people need access to support and sleeping in London. a safe place to live. Beyond statutory reporting, other sources Given the complex nature of overlapping also only provide a limited picture of the • Case study work: 40 local authority datasets, it was not possible to include Unless we know the true scale of youth problem. Little data is broken down by case studies were selected according all of them in a total figure. This homelessness we cannot know how best to age in order to distinguish homelessness to a number of factors to ensure they report explores the data available and tackle it nor ensure effective allocation of in general from youth homelessness3 and were representative. These areas were highlights what more we can do to gain a funding so that young people receive the those which do are focussed on those investigated in depth and the findings better understanding of the true scale of support they need. At present, the lack of young people known to services and were then scaled up in order to fill gaps youth homelessness. coherent national data on all aspects of only in certain locations. There is great in existing data. homelessness makes measuring the true variation in data quality for different scale of youth homelessness across the UK forms of homelessness. For example a real challenge. there is no official register of temporary accommodation or its occupants; it is Young people accessing homelessness Most data currently collected by only recorded via a set of incomplete and governments across the UK relate to the overlapping datasets. services and support statutory homeless; those found eligible for help under the Main Homelessness Duty.1 Centrepoint therefore commissioned the Cambridge University’s research reveals that around 83,000 homeless young people However, statutory homelessness data Cambridge Centre for Housing and Planning have been accommodated by local authorities or homelessness services during the provide only a limited picture of the scale Research to conduct research to produce last year. of homelessness. For a homeless person an up-to-date estimate of the number of to be included in these data they need to young people aged 16 to 24 experiencing The numbers experiencing homelessness during the year were calculated as follows: have approached a local authority for help, homelessness during the course of a year.4 and to then have been formally assessed This includes all types of homelessness in and assisted. In reality, many homeless the UK, including rough sleeping, staying in people do not come into contact with their hostels and sofa-surfing with friends. NUMBER NUMBER HOMELESS AT WHO BECAME TOTAL NUMBER THE START OF HOMELESS EXPERIENCING THE YEAR DURING THE HOMELESSNESS + YEAR 2013-14 = DURING 2013-14 (i.e. on 31 March 2013) 1 This term refers to households found eligible for help under the Main Homelessness Duty, a legal duty to house homeless households placed on Local Authorities throughout Great Britain, and Northern Irish Housing Executive Ireland, by the Housing Act

2 Robinson & Coward (2003) Hidden homelessness: your place, not mine. London: Crisis

3 Homeless Link (2013) Young and homeless 2013. London: Homeless Link 5 A note on data: CORE refers to the Continuous Recording of Lettings and Sales in Social Housing in England whilst SCORE refers to the Scottish Continuous Recording System. CHAIN is the Combined Homelessness and Information Network within which information 4 Clarke, A., Burgess, G., Morris, S. & Udagawa,C. (2015) Estimating the scale of youth homelessness in the UK. Cambridge: Cambridge about rough sleepers in London is recorded Centre for Housing and Planning Research. Available online: www.centrepoint.org/83000 The figures produced by this research differ from those already published regarding homelessness, in that they aim to include all types 6 ComRes interviewed 2,011 young people aged between 16 and 25 in the UK online between the 13th and 21st October 2014. Data were of homelessness, and aim to include the number of young people experiencing homelessness in the UK across a whole year, rather weighted to be representative of young people in the UK aged between 16 and 25 by age, gender and region. ComRes is a member of than simply a one night count the British Polling Council and abides by its rules

4 5 Number homeless at the start 25s was estimated based on case study local As the research made conservative estimates where assumptions were necessary, this of the year authorities undertaken in each country. It is a minimum estimate and it is likely that in reality more homeless young people access should be noted that the number of non- support across the UK. This reveals the worryingly high numbers of young people who used To estimate the number of homeless young statutory homeless in Scotland would be homelessness services across the UK in 2013-14. people at the start of the year, the research expected to be lower because the category drew on statutory homeless data and of ‘priority need’ has been abolished. This Total using homelessness services during 2013-2014 case study work to estimate the number means that in Scotland more homeless of statutory and non-statutory homeless people should fall under the statutory young people. homelessness figures. Scotland: 12,107 Whilst the number of statutory homeless Number who became homeless households is published for all parts of the Northern Ireland: 3,025 UK, the number of non-statutory households during the year was estimated based on other data sources. Figures on the number of young people England (excluding London): 46,265 In England, this drew mainly on Homeless accepted during a year as statutory homeless Link data which shows the number of are published for England, Wales, Scotland Wales: 4,133 available hostel spaces. Case study work and Northern Ireland. Figures for those confirmed that hostels were almost always who become homeless and enter homeless London: 17,711 full and oversubscribed, so figures for the accommodation but are not assessed as numbers of bed spaces have been used as a statutory homeless were estimated from proxy for the numbers living in hostels at any i) CORE/SCORE data, which provides data UK Total: 83,241 one time. As neither of these sources can on people accommodated by registered be broken down by age, the proportion of providers of social housing, and ii) from homeless people aged 16 to 24 was estimated case study work across 40 local authorities, based on other data sources including which investigated how many homeless CORE and SCORE. In Scotland, Wales and young people are housed by non-registered Northern Ireland there is no equivalent of the providers who do not submit to CORE, and to Changes in overcrowding Homeless Link data on hostel spaces, so the estimate the extent of double counting when numbers of non-statutory homeless under people move between providers. The research revealed changes in 386,079 (as the number of 16 to 24 year housing pressures faced by young olds also increased). In Wales the rate Rest of Northern UK London Wales Scotland people, with changes in overcrowding increased 3% to 54,230 and for the England Ireland Total levels since 2001. Overcrowding rest of England the rate also increased Statutory is defined as having insufficient 3% to 862,014. Scotland and Northern Number homeless 8,489 4,633 705 2,796 275 16,898 bedrooms compared to family size. Ireland saw decreases of 5% and 3% 7 homeless at provision Families should have enough bedrooms respectively. Therefore young people in the start of Other so that no two people have to share England and Wales are more likely to be the year homeless 3,656 13,647 621 147 112 18,183 a room unless they are a couple, both living in overcrowded housing than they provision under 10, or both under 16 and of the were ten years ago. Statutory same sex. Number homeless 3,590 10,810 1,785 8,321 2,346 26,852 Data on rough sleeping is very limited who became provision Analysis of census data reveals a mixed across the UK, potentially masking the homeless Other picture, but suggests that rates of scale of the problem and making it more during the overcrowding are increasing in many difficult to address. This is despite the year homeless 1,976 17,175 1,022 843 292 21,308 provision areas. The data for London showed that last government’s No Second Night Out Total using homelessness the proportion of 16 to 24 year olds in initiative which aims to ensure that 17,711 46,265 4,133 12,107 3,025 83,241 services during 2013-14 an overcrowded household increased by no rough sleeper has to sleep out for Source: Various: See full report See Various: Source: 6% between 2001 and 2011, increasing more than one night after having made

7 Clarke, A., Burgess, G., Morris, S. & Udagawa,C. (2015) Estimating the scale of youth homelessness in the UK. Cambridge: Cambridge in absolute terms from 285,290 to contact with services. Centre for Housing and Planning Research. Available online: www.centrepoint.org/83000

6 7 When the poll data were scaled up to Existing data on young people rough sleeping reflect the wider population, an estimated 1.3 million young people Data on rough sleeping tend to be based on sleepers. The latest count from autumn aged 16 to 24 have slept rough during rough sleeping counts and estimates, which 2014 showed that 2,744 people slept rough the past year. only provide a snapshot of a single night. in England, which was a 14% increase since 9% of young people surveyed have They also tend not to record age, making the previous year and a 55% increase since experience of sleeping in one of the The research also explored the extent it impossible to establish how many young 2010. Whilst these estimates are a useful ‘outside’ places in the last year. This of sofa surfing across the UK, which people are sleeping rough. indicator of trends over time, they do not includes on the street, in carparks was defined as staying with a friend provide a truly comprehensive understanding or parks because they had nowhere or extended family member on their London remains a key focus for rough of the scale of the problem and cannot be else to go. floor or sofa because the respondent sleeping and the CHAIN database, broken down by age. DCLG only collects data had nowhere else to go. This captures maintained by St Mungo’s Broadway, is a key in England. In Scotland the previous housing 26% of young people surveyed have the instability of individuals staying source of data. People who are seen bedded circumstances of those assessed under the experience of sleeping in any of the in circumstances that are not suitable down by outreach workers across the Capital homeless persons’ legislation is recorded, but unsafe places9 cited because they accommodation on a long-term basis, are contacted and recorded as verified rough in Northern Ireland and Wales data on rough had nowhere else to go. 17% had and so excludes those cases where sleepers on the database. In 2013/14, 762 sleeping is particularly scarce. done so in the past year. they may have their own room. young people aged 25 or under were seen rough sleeping in London: an increase of Therefore across the UK current data does 5% on the previous year.8 It must be noted not give us a clear picture of how many 10 that this figure does not include individuals young people are sleeping rough. sample bias and even if the sample did staying in places not accessed by outreach over-represent homeless young people, workers so this number does not cover all The poll of young people across the UK, these figures are much higher than young people rough sleeping. conducted by ComRes, estimates the true expected and may suggest that the true scale. 17% (345) of the 2,011 young people scale of youth homelessness is higher Beyond London, the Department for surveyed said that they had slept rough than official figures suggest. To explore Communities and Local Government (DCLG) during the last year. If this percentage was this further, this type of survey should be 35% of young people surveyed have also produces snapshot figures based on scaled up to reflect the wider population, an repeated to test the validity of these results experience of sofa surfing, with 18% information provided by local authorities, estimated 1,277,546 young people aged 16 with a larger sample size. of those who had sofa surfed having including street counts and information from to 24 have slept rough during the past year. done so for over three months. voluntary agencies in contact with rough The survey only reveals limited information about the reasons for sleeping rough or sofa surfing. The main reasons why young if the poll results are reflective of the whole people sofa surf relate to negative home Homelessness and housing insecurity among population of young people, as many as 2.5 environments (16%) or parents being million young people may have experienced unable or unwilling to house them (12%). young people across the UK homelessness or housing insecurity – in the There were also substantial numbers form of either rough sleeping or sofa surfing indicating that they had sofa surfed - at some point during the year, with 300,000 because friends or extended family had The survey of young people across the UK As there is no single universal definition of facing these problems at any one time. been unable or unwilling to house them provides a clearer picture of the national rough sleeping, the research categorised (10%), because a tenancy ended through scale of homelessness, particularly rough people as having ever slept rough if These figures are shockingly high. no fault of their own (9%), or because of a sleeping and sofa surfing which are often they had slept in a number of locations Significant efforts were made to reduce split from a partner (9%). hidden forms of homelessness. including sleeping on the streets, in parks, or other open spaces but also those who 9 Young people were asked if they had experience of sleeping in an unsafe place including in a car, a car park, a park or other open have slept in cars, squats, tents, abandoned space, a squat, a tent, an abandoned building, a night bus or on the streets. buildings or a night bus because they had 10 Efforts were made to reduce bias by ensuring that the sample was representative of the wider population, the survey had a generic nowhere else to stay. title and was not presented as a homelessness survey. The respondents of the poll were recruited through generic sources that should not over-represent homeless young people, such as through banks and a student focussed website. The dropout rates were broadly in 8 CHAIN data provided by St Mungo’s Broadway line with other surveys conducted by ComRes

8 9 However, we do not know how and why than young women to have sofa surfed. Nine young people stopped sleeping rough or out of ten of those who have ever been in sofa surfing. Whilst it is unlikely that all these the care of a local authority or had a social young people would need support from the worker as a child said they had done so. Increasing knowledge: state to address the problems they face, it Those without British citizenship or who Youth Homelessness Databank does suggest that many are facing housing were disabled were also significantly more insecurity and are unable to access housing likely to report having sofa surfed. that meets their needs. This therefore The Youth Homelessness Databank is a Google funded underlines the need to urgently address the The analysis also explored whether it two-year digital innovation project that is building two housing shortage facing this age group. was possible to identify which groups of key digital tools for the youth homelessness sector. young people were more likely to report The overall shortfall of sub-market sofa surfing as having been a negative The first tool is a Data Dashboard that The Data Dashboard is the practical independent units for households headed by experience. Young people with a degree will collate, measure and display youth implementation of this research. young people is estimated to be 140,344 at were more likely to report sofa surfing as a homelessness data from multiple Where so far data analysis has 11 present, projected to be 146,696 by 2021. positive experience, suggesting that more sources such as national government, focussed on providing estimates, vulnerable young people with less secure local authorities, charities and housing the Databank team aims to visualise The research suggests that some groups employment or educational arrangements providers. The data will help all of us and open up current and new data, are more likely to sofa surf than others. were more likely to find sofa surfing better understand numbers of young as it is generated. In July 2015, Young men were substantially more likely detrimental to their wellbeing. people experiencing homelessness, on-going Youth Homelessness why young people become homeless Databank research into local and the impact of services region by authorities and youth homelessness Conclusion and recommendations region. The Dashboard will be the first providers will be published, allowing of its kind – an open data resource for all to see the ‘flow’ of young people the whole of the UK, helping to build in the Youth Homelessness system. These research findings show that the number of young people experiencing the weight of evidence necessary to A final Data Dashboard will be live homelessness or failing to access the housing they need is much higher than create real change. from January 2016. official figures suggest. It also highlights the importance of collecting coherent, national data on youth homelessness. This is essential if the true scale of youth homelessness is to be understood and funding allocated effectively so that homeless young people receive the support and safe accommodation they urgently need. The second tool will be a web or mobile app for young people who have left Centrepoint’s youth homelessness services, where they can share stories All local authorities must accurately The Government should centrally collate with each other and society. As well as being a resource for young people, track the scale of need so that it can be data from local authorities about the this will also help us to better understand the longer term outcomes for more effectively addressed number of young people receiving young people who have experienced homelessness such as: housing related support services – as Central and local government should was previously available through the • What happens when people leave services? work together to ensure that all Supporting People database homelessness data must be collected • Do the services work? in a way that can be broken down by The sector needs to work together to • What are the needs that still exist? age, including homelessness prevention compile sector wide data about the statistics collected by local authorities young people they support, building on The app will be co-designed by Centrepoint young people to ensure we the positive steps that are being made create something that is both useful and easy to use. The Department for Education should with the Youth Homelessness Databank update the Children In Need (CIN) census to include data on homelessness so that homeless young people who are supported by children’s services can be identified To find out more about the Youth Homelessness Databank, visit www.centrepoint.org.uk/databank

11 Clarke, A. & Burgess, G. (2012) Mapping the number of extra housing units needed for young people

10 11 Centrepoint Head Office, Central House, 25 Camperdown Street, London E1 8DZ Tel 0800 23 23 20 Fax 0845 466 3500 www.centrepoint.org.uk