Policy paper

Lived Experience Forum report and recommendations: Executive summary

Published 11 December 2025

Applies to England

Recommendations from people with lived experience for the cross-government homelessness strategy

A report for the Ministry of Housing, Communities and Local Government

Executive summary

This report presents the experiences, insights and recommendations gathered from people with lived experience of homelessness to inform the new cross-government homelessness strategy. The project was delivered through a partnership led by Revolving Doors on behalf of the National Expert Citizens Group (NECG), along with Groundswell and Justlife Foundation. The NECG’s aim is to ensure that people with lived experience of multiple disadvantage shape system change by coproducing accessible services. The project methodology involved extensive coproduction with a small “core group” of people with lived experience who debated and agreed on the principles, key themes, forum questions and recommendations, as well as co-facilitating the forums. In total, the project engaged over 30 individuals across four forums. Participants had recent or current lived experience, often having experienced multiple forms of homelessness, with many having cycled between institutions and homelessness. The participant group was notably diverse, with strong representation from groups that are “hidden” or under-represented in official homelessness statistics, especially women and people from racially minoritised groups.

Forum participants had faced desperately negative experiences. Despite this, they were forthcoming with priorities for change and solutions, powerfully demonstrating that those closest to the problem are also closest to the solution.

Main findings: systemic barriers and trauma

Several cross-cutting themes emerged, highlighting severe systemic failures.

The acute housing shortage

The entire discussion was overshadowed by the acute housing shortage, which severely impacts how people are treated. Participants emphasized a significant gulf between legislative protections and what happens in practice, largely attributing this failure to councils being overwhelmed by demand. This pressure means staff are burned out, leading to discriminatory behaviours being amplified. Participants stressed that the existing policies and legislation are not being acted on. Support often only materializes when individuals reach crisis point.

The compounding impact of trauma

The trauma experienced within the system compounds the underlying traumas that led to homelessness, creating a barrier to accessing support. Support must address root causes—mental health issues, poverty, and domestic violence - as well as the traumatizing impact of homelessness itself. Participants were clear that any support package must include mental health and wellbeing support, especially during the vulnerable transition out of homelessness. It was noted that even without pre-existing mental health issues, being homeless guarantees trauma.

Lack of agency, choice and control

The current system is characterized as reactive, focusing on short-term fixes and giving people very little choice or control. Participants felt decisions were made for them, not with them, often failing to align with their best interests. Navigating the system requires exceptional tenacity and resilience, creating a significant barrier for vulnerable individuals. People need to be supported to coproduce realistic long-term plans about building the lives they desire, otherwise they are likely to cycle back into homelessness.

Need for clear and consistent information

A clear need exists for consistent information at every stage so that people understand their rights and options. Uncertainty over rights is a major barrier, especially for those new to the country or unsure of their immigration status. The fragmentation and complexity of the system act as a barrier to information sharing between agencies, forcing individuals to tell their often traumatic stories multiple times.

Key findings from forum discussions

Prevention (Forum 1)

Homelessness could often have been prevented through better communication and information sharing between agencies, such as the police and local councils, particularly concerning domestic violence and assaults. A lack of communication also extended to planning for key at-risk groups, including people leaving prison, hospitals and the asylum system, where procedures were often not applied or delayed. Councils rarely take a preventative approach, addressing needs only once people hit rock bottom. Furthermore, participants highlighted the critical lack of suitable, good quality, and affordable accommodation which traps people in destructive patterns or unsafe living environments.

Stigma and discrimination (Forum 2)

Participants frequently faced discrimination (e.g., based on race, gender, disability or nationality) overlaid by stigma associated with their life experiences (e.g., addiction or contact with the justice system). Staff often made assumptions based on nationality, accent or how they dressed. The stigma of being on benefits severely restricts accommodation options due to landlord discrimination. The system lacks consistency; whether an individual avoids discrimination often feels like a lottery, emphasizing the need for better staff training and more staff who reflect the communities they serve.

Transitions (Forum 3)

The transition into settled accommodation is a high-risk time due to a “cliff-edge” in support. Without transitional and after-care programmes addressing practical and psychosocial needs, transitions frequently fail, leading people back to homelessness. Individuals are often forced to move according to an organization’s timeframe, not when they feel ready, resulting in isolation and a lack of skills for independent living. The model used by programmes like Changing Futures was praised for its ability to pull in multiple specialist services to take a holistic approach. To sustain tenancies, people need support to build social networks and community connections, using assets like community centres and libraries. A practical aftercare package is necessary, including grants for goods, administrative support and life skills training.

Temporary accommodation (Forum 4)

Temporary accommodation is overwhelmingly a negative experience, often exacerbating trauma, financial hardship and instability. Key impacts include:

• Insecurity: Unpredictability regarding the length of stay and frequent short-notice moves create significant distress.
• Isolation and displacement: Out-of-area (OOA) placements severely disrupt family life, schooling and community connections.
• Impact on families: Children are exposed to poor living conditions, lack of space and parental stress.
• Financial hardship: Lack of cooking facilities increases food costs, and housing benefit often fails to cover service charges, leading to debt that prevents people from passing credit checks for settled housing.
• Disempowerment: Participants consistently reported having no say in their placement or move dates, feeling sidelined and invisible. Speaking up often led to being labelled “aggressive”.
• Lack of standards: Poor conditions, including bedbugs, sewage and high exposure to substance use, were common.

Lived experience recommendations for the homelessness strategy

The following table presents a summary of key recommendations to drive systemic change. “Quick wins” are presented in bold.

Theme	Summary of recommendations
Trauma	The strategy must acknowledge trauma as a driver, and that the system compounds it. A trauma-informed approach must be embedded across all homelessness services. Peer involvement should be established and funded throughout to ensure a trauma-informed lens.
Prevention	Councils must proactively engage with council tenants at risk before a legal duty is owed. Agencies must improve information sharing to identify and support those at risk before crisis. Rental and welfare reform is needed.
First contact	Councils should provide a clear but comprehensive “one stop” rights and information guide to everyone at first contact, outlining rights, entitlements, contacts, and support services (available in multiple languages and accessible formats). Everyone presenting as homeless should have access to a support worker to provide tailored advice and signposting.
Support	Local area partnership programmes like Changing Futures, which take a multi-agency, holistic approach, need to be rolled out nationally with committed funding. Co-locate services in community spaces (hubs) so people can access all necessary support under one roof.
Staffing	Council housing teams must receive training, ideally led by people with lived experience, to build empathy and understanding for the root causes of homelessness. All staff in supported and shared accommodation must be trained and held accountable for fostering a culture of respect and preventing discrimination.
Temporary accommodation	Extend the Decent Homes Standard to all forms of temporary accommodation as soon as possible. Clear complaints mechanisms must be established and advertised. Ensure sufficient gender-specific accommodation, including LBGTQ+ inclusive options. Out of area (OOA) placements for families should end, prioritizing keeping families with children with SEND in their local area. Individuals who actively want to relocate OOA (e.g., those in recovery who have established a support network elsewhere) should be supported to do so. End the “dehumanising” and opaque bidding process by introducing clarity about the points system. Address the financial disincentive for working while in supported accommodation by establishing permitted earnings.
Transition into settled housing	Councils must coproduce structured transition plans to ensure a suitable pace for the individual. Ongoing post-move wraparound support must be provided. Turnkey-ready homes must be prioritized for first tenancies to reduce associated costs and logistics. Peer support must be offered to everyone going through the transition.
System	A rental cap linked to housing standards must be introduced to ensure housing benefit covers both rent and service charges. Housing provision must be expanded, prioritizing social housing construction. Recognize homelessness in equality frameworks to tackle implicit and explicit discrimination by employers and shift responsibility from the individual to the system.

Recommendations for lived experience input into implementation

The consultation confirmed the immense value of involving people with lived experience as partners in decision-making, leading to more effective solutions. The core group called on the government to commit to ongoing, meaningful lived experience input into the implementation of the strategy at all levels.

Long-term commitment and funding

Relationships and trust are fundamental to meaningful coproduction and require a long-haul commitment, not a quick fix. The work needs to be funded on a full cost recovery basis, with long-term contracts that enable delivery partners to fund the specialist support roles and infrastructure required.

Scrutiny and accountability

There needs to be lived experience scrutiny at both national and local levels. Funded lived experience groups should coproduce commitments and delivery plans, and regularly review progress to ensure accountability. People with lived experience need to be involved as partners in strategic, multi-agency “systems change” work, providing external impetus not held back by institutional cultures.

Accessing current insight

MHCLG needs to continue hearing from people currently in the system. Well-trained and supported peer research groups have the reach to deliver up-to-the-minute insight, acting as a conduit to people on the ground who might not engage in traditional feedback forums.

Closing the feedback loop

MHCLG must commit to closing the feedback loop on this project and all subsequent coproduction nationally and locally. Officials must feed back to participants on how their input has shaped thinking and how the strategy will be carried forward.