The Kerslake Commission was convened to examine the lessons from the COVID-19 emergency response to rough sleeping, and to understand how the significant progress made can be embedded in the long term. 蜜桃视频’s CEO, Emma Haddad discusses the learnings of the Commission and what it means for addressing the homelessness crisis moving forward.
Since becoming the CEO of 蜜桃视频鈥檚 in 2022, I鈥檝e had the privilege of being involved in the Kerslake Commission. Founded by Lord Kerslake and my predecessor Steve Douglas, the Commission was a forum for learning the lessons from Everyone In, a pandemic initiative that brought inside significant numbers of people sleeping rough in record time and saved many lives. The Commission convened an advisory board of leading politicians and experts in housing, homelessness and inclusion health, and tasked them to draw out the lessons from the emergency response in collaboration with the wider sector.听
Without doubt,听Everyone In听was one of the most impactful rough sleeping initiatives in modern history. It led to a 37% decrease in street homelessness in the year it started. Faced with this unprecedented accomplishment, achieved at a time when rough sleeping could easily have increased and the health impacts on people rough sleeping could have been devastating, the Commission sought to understand why it was so successful and to use this learning to provide a roadmap for permanently ending rough sleeping.听
As听the Commission听has now听closed,听I would like to record my thanks to everyone who contributed to the Kerslake Commission and pay tribute to Lord Kerslake, without whom we could not have brought together such an esteemed group of experts or crafted such an insightful, long-sighted and powerful set of reports that we will continue to use in our drive to end homelessness and rebuild lives.听
In the face of rising homelessness, we will continue to push the Government to adopt the Commission鈥檚 recommendations. We have submitted the Kerslake Commission reports to the Covid Inquiry and gave evidence at its Housing and Homelessness roundtable. We will also continue to use the learnings from the Kerslake Commission as a member of the Government鈥檚 Homelessness Expert Panel, to help shape recommendations included in the Government鈥檚 National Plan to end homelessness. Here is an overview of what the Commission achieved, provided by Liz McCulloch, who led the secretariat throughout the Commission鈥檚 four-year tenure.听
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Everyone In听听
Four years on, and with the Covid inquiry completing its evidence gathering on housing and homelessness, now is a good time to reflect on what was learnt from the Commission, what impact it had on the homelessness and rough sleeping landscape and what more needs to be done.听 听
The Commission launched a call for evidence and invited stakeholders who were involved in the Everyone In initiative to give evidence on what worked well, what didn鈥檛 work well, the immediate challenges and opportunities, and how the good work could be embedded. In total it received 100 submissions from local authorities, health agencies, homelessness charities, housing associations and people with lived experience, who contributed their experiences and expertise through surveys, focus groups and bilateral meetings. 听
Lord Bob Kerslake, the chair of the Commission,听concluded from this evidence,听听
鈥淭here are many lessons to learn from the success of the Everyone In initiative but for me, the most important one is that with the right combination of government support and collaboration across, and between, the key service providers, it is possible to end homelessness and rough sleeping.听Of course,听the circumstances of the pandemic were unique 鈥� there were unused rooms available in hotels that could be drawn on for example. But it听demonstrated听beyond doubt what is possible.鈥�听
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The听Learning听
The听Everyone In听offer,听that anyone at risk of rough sleeping would have access to emergency accommodation,听meant that Local Authorities and frontline services听were听able to听quickly provide shelter,听at the point of need,听and without having to check eligibility听or verify if people were sleeping rough.听听
Previously non-UK nationals with limited or unclear entitlements had been treated as ineligible for housing听assistance听but during the pandemic they were accommodated in hotels, with support and independent immigration advice听to resolve their status. This led to an improvement in knowledge, engagement and outcomes for this group, with the crucial learning being that it is easier and more efficient to progress someone鈥檚 immigration status and explore their options when they are indoors and can then sleep听safely and听are provided with trauma informed support.听听
The central Government directive, and funding to match, helped galvanise local agencies with the common听objective听of saving lives. This led to greater strategic buy in, liberating many from process driven silo structures.听An听increased sense of shared responsibility and impetus to act meant that agencies took听responsibility for clients beyond their remit, with fewer services gatekeeping听in order to听protect oversubscribed caseloads.听
Many who had previously refused offers of support and accommodation were successfully brought in and persuaded to engage with services, in some cases for the first time.听听
Treating rough sleeping as a public health issue, rather than just a housing issue,听also听meant the response saw a substantial and increased engagement from the health听sector in rough sleeping.听It presented a unique opportunity to听work with people听who suffered听significant听vulnerabilities and听allowed health services to work with them closely and in a sustained manner.听听
Universal homelessness prevention measures听were key part of the pandemic response听as they听stemmed the flow of听people听onto the streets,听with the听evictions moratorium, 拢20听uplift听in Universal Credit and听restoration of听Local Housing Allowance rates听cited as听having the most impact.听
The Commission did, however,听identify听that the prioritisation of outreach听meant听that some areas听struggled to deliver sufficient in-person,听trauma informed,听support services to help people manage this period of social isolation; this resulted in more听in anti-social behaviour and abandonments听than areas where this support was provided.听The generic approach of the response听also听meant that听services were听geared to meet the needs of people who were听in the largest cohorts 鈥� primarily听adult men.听
Moreover, though Local Authorities tried to continue an 鈥榠n for good鈥� principle, there were听fewer听move on听options听for听people听with听very high听support needs and those with who do not have access to benefits due to their听immigration status.听听
Providers and Local Authorities also found the constant bidding for different听short term听funding pots, and the multiple and lengthy monitoring requirements attached to them, were resource intensive and prevented strategic service delivery. In total, 13 different government听funding pots were听allocated听to rough sleeping听in the first year of the pandemic.听
In summary,听the learnings from听Everyone In听were听that a successful homelessness response can be defined as听low threshold, trauma-informed听joined up services that听work to听meet people鈥檚 needs when they鈥檙e inside听accommodation,听and听sufficient听investment in universal prevention measures that听stem the flow onto the streets.听Crucial for achieving this is听a听sufficient supply听of听appropriate housing, suitable for a range of needs.听听
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The Reports听
The Kerslake Commission recorded the lessons learned and produced two well researched and evidence led reports in its first year, an interim report that looked back on the lessons learnt from Everyone In and a final report that applied these lessons to craft a blueprint for ending rough sleeping. 听
The Commission urged the Government to allocate three-year funding settlements for homelessness and rough sleeping at the 2021 Spending Review to support strategic delivery and improve value for money. It also recommended that the Government increase the supply of supported housing by continuing investment in the Rough Sleeping Accommodation Programme for the duration of the Spending Review and creating more bespoke provision for women and young people. 听
The Commission听identified听that a听new rough sleeping strategy听was needed to build on the new ways of working developed during听Everyone In, setting听out clear expectations and strategic engagement with key agencies, and an听increased听focus on prevention.听It also听saw a need for an听Inter-Ministerial Group on rough sleeping to oversee the delivery of the strategy and to effectively coordinate a cross departmental approach.听
The Commission recommended that the Government should听establish a clear policy position that limiting access to benefits for non-UK nationals should stop short of causing destitution and听that听local authorities should be provided with guidance on what it means to 鈥榚xhaust all options鈥� within the law听when supporting this group.听听
It听also听recommended that the forthcoming integrated care systems should have a dedicated focus on tackling health inequalities for inclusion health populations,听which include听people experiencing homelessness and rough sleeping, to ensure听that both mainstream and inclusion health services deliver trauma informed services for this cohort.听听
The Commission also advocated for universal homelessness prevention measures 鈥� keeping听Local Housing Allowance Rates at the 30th听percentile听of local rents,听retaining听the 拢20 uplift in Universal Credit and ramping up delivery of new social rented homes.听听
The Commission continued beyond its first year to hold the Government to account on its recommendations,听producing two further听reports听that听tracked听progress,听the听challenges and risks around homelessness and rough sleeping, and the听short and听long-term priorities.听听
Issues听which have听become acute in the years since听Everyone In, and which have driven听recent听increases in homelessness,听have听been the housing affordability crisis and听an increase听in听newly granted refugees听being discharged from Home Office听accommodation听into homelessness.听In its听reports, the Commission articulated that urgent action was needed to restore Local Housing Allowance rates to the 30th听percentile, which had been frozen since April 2020, and听that听the听move on period for newly granted refugees听should be increased听from 28 to 56 days.听听
The Commission also advised on the priorities of the听next听administration, making the case in听its听reports听that significant investment in social housing听and听housing-based support was needed听to move towards a preventative approach. The report itself was promoted online by the former shadow deputy prime minister Angela Raynor.听
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The results听
In the lead up to the 2021 Spending Review, the Commission submitted its evidence to the former Minister for Rough Sleeping (Eddie Hughes), who used this to make a convincing case to Government that the homelessness sector needed a longer-term funding settlement. The allocation of a three-year Rough Sleeping Initiative funding settlement marked a departure from annual rounds of funding that had taken place since 2018. 听
This call to action for a new rough sleeping strategy was also taken up, with the previous Government publishing a refreshed strategy in 2022 that put a greater focus on rough sleeping prevention and published it as a cross-departmental strategy.听 听
The strategy provided new capital and revenue funding to continue the Rough Sleeping Accommodation Programme for the duration of the spending review, renamed as the Single Homelessness Accommodation Programme. This delivered much needed supported housing for people with higher levels of support need and young people. 听
The strategy sought to develop an 鈥榚xhaust all options鈥� approach for non-UK nationals who are rough sleeping, which cemented a presumption of providing support for people with restricted eligibility due to their immigration status. New common practices have now emerged that have seen local authorities commission immigration advice beds for people with unclear and limited entitlements, so that their status can be resolved within accommodation, though further work is needed to prevent destitution among people with limited and unclear entitlements. 听
The strategy听also听set out an ambition to ensure that the new听Integrated Care Systems听took account of the health and social care needs of people sleeping rough in their area, a crucial learning from the pandemic. Overall, this ambition has failed to听materialise听in the face of听competing听pressures in the NHS, and听more work is needed to听ensure that听inclusion health groups听are being prioritised听given听they听face the most severe public health inequalities.听听
The Commission used its annual reports on homelessness to continue to influence the听previous听Government, eventually securing the restoration of the Local Housing Allowance rates to the 30th听percentile at the 2023 Autumn Statement, ending a four-year freeze on housing benefit.听
In December 2025,听the current听Government published an updated听strategy titled: A National Plan to End Homelessness.听This included a new 鈥榙uty to collaborate鈥�;听to address the needless homelessness that we see from people leaving hospitals,听prisons听and asylum accommodation through joining up how government agencies work together.听
Following the Commission鈥檚 call for urgent action on听asylum accommodation, the听decision in the Home Office in 2024 to听run a pilot increasing听听the move on period for newly granted refugees to 56 days, this听was a听very听positive step, but听unfortunately听听the decision听was reverted听听in late 2025听with the 56 day pilot ending on 31 January 2026听
The听Government鈥檚 decision to听establish听an Inter-Ministerial Group on homelessness, chaired by the听Secretary of State for听Housing, Communities and Local Government,听is a welcome development that will drive progress across Government to tackle the root causes.听The announcement听last听year that听the Government听is听implementing听the biggest cash injection to social and affordable housing in 50 years is听progress听but听the commitment to build 180,000 social rented homes over a decade falls short of the Commission鈥檚 recommended goal of building 900,000 homes听over this period. Further investment is also needed in听supported housing and听housing-based support, so that people have the support they need to听maintain听a tenancy and prevent a fall into homelessness.听
In terms of policy, huge steps were made in the repealing of the Vagrancy Act (1842) which criminalised rough sleeping, and the听finalising of the听long-awaited听Renters Reform Act听– coming into effect in 2026听鈥� which听will end听Section 21 no fault evictions.听
More needs to be done to address the once again rising tide of homelessness, with the Commission calling for collaboration across government, with sustainable and joined up funding programmes which are outcome led and听facilitate听partnership working across the sector.听听听
The lasting impact听
What made the Commission impactful was its ability to bring together cross-sector partners听to have听a coherent voice on the changes needed to tackle homelessness. We would not have been able to do this work without our advisory board members and the听wider voluntary sector who听generously contributed their听expertise听to its work. Our thanks also go to听ministers and听officials at MHCLG who听actively engaged in the Commission.听听
But most of all, we could not have done the Commission without the vision and leadership of Lord Kerslake and Steve Douglas. They were both inspiring, compassionate and tenacious individuals who leave behind a legacy of change and we have immense gratitude for their contributions. 听
Though听the听Everyone In听initiative took place in a unique time in history, its lessons and principles听remain听evergreen.听The Commission has given us a road map to end homelessness and rough sleeping and in听many听ways the work has only just begun, though the challenges are not insurmountable.听What听Everyone In听showed us is that where听there鈥檚听the will, we can end homelessness for good.听听
Moving into 2026, the New Economics Foundation, 蜜桃视频鈥檚 and the Peabody Trust have听established听a two-year Kerslake听Research听Fellowship, to continue the essential work of improving outcomes in homelessness,听housing听and social housing, developing policy for secure, genuinely affordable, and听high-quality听homes.听
The legacy of the Kerslake Commission on Rough Sleeping and Homelessness is an evidenced road map to ending rough sleeping, and the work that will continue to develop solutions which will make this a reality.听听
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Cllr Louise Gittins, Chair of the LGA said:听鈥淭he commission should be proud of the work it has done to address a hugely complex and听important area. Looking at homelessness, its drivers, and solutions, in the broader context of the Covid-19 pandemic, was a major feat. Many of the original commitments that have been taken forward and achieved since its foundation are vital work for those experiencing homelessness, and the remaining recommendations are needed now more than ever in the face of increasing demand and stretched resources. The learning from the commission should form a valuable evidence base for the upcoming cross-departmental homelessness strategy.听
听鈥淯nder the stewardship of Lord Bob Kerslake, who demonstrated a huge commitment to public service, this commission鈥檚 dedication and focus brought real progress and improvement for people, communities and local government alike.鈥�听
Alistair Smyth, Director of Policy and Research听at the NHF, said:听鈥溾��Everyone In鈥� showed what can be achieved with political will, the right resources, and a commitment to working in partnership to provide safe, secure homes and support for people听experiencing homelessness. The Kerslake Commission rightly recognised the power of this collaborative approach during the pandemic and the need for this work to continue. Successful partnership working between housing associations, local authorities and health services, alongside further investment for wider homelessness prevention, is vital in ending homelessness and ensuring everyone has a safe place to call home. We look forward to the publication of the Government鈥檚 homelessness strategy later this year which can build on the work of the Commission by setting out a long-term approach to preventing and reducing homelessness.鈥�听