Joint housing protocols for care leavers: good practice advice

Question 1

1.	Introduction and summary

Accepted Answer

1.1 About this document

This good practice guidance has been produced by the Ministry of Housing, Communities and Local Government (MHCLG) Homelessness and Rough Sleeping Youth Adviser Team and the Department for Education (DfE) Care Leaver Policy Team to support local authorities to develop and strengthen joint housing protocols, enabling care-experienced young people to access and maintain suitable accommodation through coordinated, high-quality practice.

A joint housing protocol should help children’s services and housing authorities deliver their local accommodation offer to care-experienced young people and prevent homelessness. It sets out commitments that local authorities, as corporate parents, should adopt and how these will be delivered in practice.

This guidance is not issued with the status of statutory guidance. It provides information and advice drawn from good practice and offers a framework which local authorities and partners can use when developing their joint housing protocols.

In the statutory Homelessness Code of Guidance, the Secretary of State for Housing, Communities and Local Government and the Secretary of State for Education, expect that all housing authorities, children’s services authorities and other relevant departments within local authorities, develop joint housing protocols and procedures to ensure that each department plays a full role in providing united corporate parenting support to young people leaving care.

For the purposes of this guidance, the term ‘care-experienced’ is used to describe young people who may, in legal terms, be classified as Former Relevant Children or persons qualifying for advice and assistance. The term care leaver is only used when directly referring to legislative phrasing.

What this guidance does

This guidance supports local authorities and partners to:

understand the purpose of a joint housing protocol for care-experienced young people
strengthen joint working between children’s services, housing authorities and relevant partners
plan accommodation early so homelessness does not become the default route into housing
align joint housing protocols with corporate parenting responsibilities, local offers, homelessness support and relevant statutory guidance
set out clear local arrangements for accommodation pathways, contingency planning, escalation and dispute resolution
use data, young people’s feedback and regular review to improve practice and outcomes

1.2 Relevant legislation and statutory guidance

This document refers to the following legislation:

Housing Act 1996 - Part 6 (Allocations) and Part 7 (Homelessness), as amended by the Homelessness Reduction Act 2017
Homelessness (Priority Need for Accommodation) (England) Order 2002
Children Act 1989
Children (Leaving Care) Act 2000
Children and Social Work Act 2017 - sections 1, 2 and 3

The following is a list of statutory guidance that this document refers to:

The legislation and statutory guidance above should be read together. For ease of use, the key duties and expectations most relevant to joint housing protocols are summarised thematically below.

Corporate parenting duties

Corporate parenting duties provide the overarching framework for joint housing protocols. The Children and Social Work Act 2017 sets out the corporate parenting principles that local authorities must have regard to when supporting looked after children and care leavers. These include promoting wellbeing and stability, taking account of young people’s views, helping them access services, promoting high aspirations, and preparing them for adulthood and independent living.

The Homelessness Code of Guidance also emphasises the importance of housing authorities, children’s services authorities and other relevant departments working together to provide united corporate parenting support to young people leaving care. The Children’s Wellbeing and Schools Act 2026 further strengthens this approach by extending corporate parenting responsibilities to a wider range of public bodies and all government departments. From Autumn 2027, public bodies in scope will become corporate parents, with new duties requiring them to play an active role in supporting children in care and care leavers. For joint housing protocols, this means local authorities should consider how wider partners are engaged where their services, decisions or statutory functions affect accommodation planning, homelessness prevention, transition to adulthood, tenancy sustainment or support for care-experienced young people leaving custody.

Staying Close

The Children’s Wellbeing and Schools Act 2026 places Staying Close on a statutory footing, requiring local authorities to assess all care leavers under age 25 for Staying Close support. Care leavers will be offered support to find and keep a home that is safe, secure and affordable for them. The government has announced that the legislation will be enacted from 2029, making Staying Close a national duty. Before we enact the 2029 duty, Staying Close housing and support offers will be rolled out nationally, so we can ensure that care leavers feel safe and at home, have a community of people who matter to them, and – where needed - have access to light-touch mental health support. This approach will support young people to take ownership of their move to a new home, while learning life skills, making friends and building networks. Joint housing protocols should reflect how Staying Close operates locally and how it sits alongside other accommodation and support pathways, including Staying Put, supported accommodation and move-on options.

Local Offer

Local authorities are required under the Children and Social Work Act 2017 to publish a local offer setting out the services and support available to care leavers. The Children’s Wellbeing and Schools Act 2026 strengthens this framework by requiring clearer arrangements for supporting care leavers’ transition to adulthood, including how the authority will anticipate accommodation needs, cooperate with local housing authorities, and support eligible care leavers who are at risk of homelessness.

The local offer must include clear information on how care leavers are supported to access and sustain suitable accommodation, including the role of housing services and the support available across the local authority. In practice, this means the local offer and the joint housing protocol should be developed and kept under review in tandem, so that the housing commitments described to care leavers are underpinned by clear multi-agency partnership arrangements for delivery.

Local authorities should include a link to the joint housing protocol within their published local offer so that care leavers, advocates and professionals can easily access the protocol and understand the agreed local arrangements for planning and providing accommodation and support.

Examples of accessible practice

Some local authorities have developed more accessible ways to present housing information to care-experienced young people. For example:

Surrey’s Local Offer accommodation page provides a clear example of presenting housing support in a practical, young person-facing way, including through short videos on a range of housing options and support. It brings together information on accommodation choices, Personal Adviser support, pathway planning, housing costs and help to find somewhere suitable, making it easier for care-experienced young people to understand what support is available and who can help them navigate housing decisions.
Wandsworth’s accommodation guide for care leavers is another useful example of making housing information accessible. It brings together accommodation options, housing advice and practical support in a young person-friendly booklet that care leavers and Personal Advisers can use when discussing housing choices and planning next steps.
Hammersmith & Fulham’s Housing Charter for care-experienced young people, available through its Local Offer, sets out clear accommodation commitments in a young person-facing way. It covers being prepared, securing suitable and affordable accommodation, settling safely, belonging, tenancy sustainment and ongoing improvement, including support through joint accommodation panel arrangements, private rented tenancies and early help where a tenancy becomes difficult.

Personal Advisers

The Children and Social Work Act 2017 extended Personal Adviser support to care leavers up to age 25. Joint housing protocols should set out how Personal Advisers are involved in accommodation planning, homelessness prevention, pathway planning and joint working with housing services, including for care-experienced young people aged 21 to 25.

Homelessness duties

Housing authorities have duties under Part 7 of the Housing Act 1996, as amended by the Homelessness Reduction Act 2017, to provide advice and information and to help prevent and relieve homelessness for eligible applicants. These duties are particularly relevant where care leavers are homeless or threatened with homelessness, although joint housing protocols should aim to prevent homelessness from becoming the default route into accommodation.

Protocols should explain how children’s services and housing services will identify homelessness risk early, make appropriate referrals, align Personalised Housing Plans and Pathway Plans, and provide coordinated support. They should also reflect the duty to refer, including how referrals are made, acknowledged and followed up.

The Children’s Wellbeing and Schools Act 2026 provides that care leavers in scope of the corporate parenting duty can no longer be found intentionally homeless. Protocols should explain how local areas will respond to this change in practice, including how services will continue to plan suitable accommodation and support where a care leaver is at risk of losing accommodation or has experienced accommodation breakdown.

Allocations and local connection

Joint housing protocols should explain how local allocation schemes and local connection provisions apply to care-experienced young people, including how they are supported to apply for social housing, understand eligibility and priority rules, and access practical help with registration, bidding and accepting offers. This should align with the housing and accommodation support set out in their care leaver local offer.

Protocols should also set out how housing and children’s services will work together where a young person has lived in, is placed in, or wishes to remain in another local authority area. This should include how local connection considerations will be addressed, how the parent and host authority will communicate, and how young people will be supported to understand their housing options and any implications for their accommodation pathway.

1.3 Governance, oversight and accountability

The joint housing protocol should set out how it will be governed, monitored and embedded across services to ensure it is implemented effectively and remains a live working document.

1.3.1 Governance and strategic oversight

Senior leaders across children’s services and housing will hold joint responsibility for overseeing the protocol. This includes ensuring that all commitments are delivered in practice, that corporate parenting duties are fully embedded, and services jointly own, are responsible for, and maintain the protocol. Strategic oversight could be provided through existing governance structures, such as the Corporate Parenting Board, to ensure consistency of approach and strong senior level accountability.

To enable consistent joint accountability in the delivery of the protocol, local authorities may find it helpful to include a brief roles and responsibilities section. This can help clarify which roles or services are responsible for strategic oversight and operational delivery.

Local authorities should ensure the joint housing protocol is connected to relevant local sufficiency and commissioning strategies. This will help ensure the accommodation and support pathways described in the protocol reflect current and future needs, and that learning from implementation can inform wider planning where gaps, barriers to move-on or pressure points in provision are identified.

This should include using demand forecasting to understand the likely accommodation and support needs of children approaching 18 and care-experienced young people moving between accommodation pathways. This can help local areas plan transitions earlier, identify pressure points in local provision, and avoid responding only when a placement is ending or a young person is threatened with homelessness.

The joint housing protocol should reflect how the accommodation and support needs of care-experienced young people are considered within the Local Supported Housing Strategy, required by the Supported Housing Regulatory Oversight Act 2023. Local Housing Authorities should ensure that Children’s Services are involved in the strategy’s development, oversight and review, so that the protocol is aligned with wider strategic planning for supported housing as part of a joint corporate parenting approach.

Practice example

The Hertfordshire Strategic Partnership Accommodation Board is a multi-agency forum attended by Children’s Services, Housing, commissioning and provider representatives. It provides strategic oversight of joint working arrangements to meet the accommodation needs of care leavers and young people at risk of homelessness, including 16–17-year-olds.

The Board plays a key role in overseeing delivery of the Care Leaver Joint Housing Protocol, providing a mechanism for senior partners to monitor progress, review emerging trends, and identify system-wide challenges. It supports shared accountability across services by enabling partners to review data, assess the effectiveness of current arrangements, and agree actions to address gaps or pressures in the system.

1.3.2 Accountability, monitoring and review

The joint housing protocol should be clear that care-experienced young people’s accommodation and support needs should be planned through effective pathway planning, sufficiency arrangements and joint working between services, rather than through avoidable homelessness presentations. For looked after children approaching 18, this planning should be informed by the required pathway planning and review arrangements, including the oversight role of the Independent Reviewing Officer. To ensure senior leaders have clear visibility of the number of care-experienced young people requiring homelessness assistance, the protocol should include a commitment to regularly reviewing quarterly and annual Homelessness Case Level Information Collection (H-CLIC) data as part of local accountability and improvement arrangements. This includes analysis of:

the number of care leavers owed a prevention or relief duty. For example, this data can be found within the latest quarterly H-CLIC publication in the detailed local authority-level tables (Tab A3)
the proportion whose last settled accommodation was a looked after child placement. For example, this data can be found within the latest quarterly H-CLIC publication in the detailed local authority-level tables (Tabs A2P and A2R)
patterns in repeat presentations or accommodation breakdowns. For example, this can be identified through analysis of H-CLIC and local service data

Joint scrutiny of H-CLIC data across housing and children’s services, shared ownership of data quality, and the use of journey analysis alongside lived experience can support learning, strengthen protocols and improve joint practice. Regular reporting of these trends should inform decision making, support early identification of risks, and help ensure that changes in practice lead to measurable improvements in outcomes for care-experienced young people.

The protocol should include clear arrangements for regular review and continuous learning, including an agreed implementation date and annual review cycle, and include the views of care experienced young people. Each service will be responsible for monitoring how the protocol is applied in practice, identifying issues early, and ensuring that learning informs future updates. The protocol should remain dynamic and responsive, maintained as a living reflection of shared corporate parenting commitments and joint working in practice.

1.3.3 Equality, diversity and inclusion

In line with the Public Sector Equality Duty, local authorities will ensure that the protocol is applied fairly and consistently, taking account of the diverse needs and vulnerabilities of care-experienced young people, by assessing the impact of decisions and ensuring that practice promotes positive outcomes for all groups.

1.4 Workforce development

The joint housing protocol should be treated as a core operational document for staff across housing and children’s services. It should be understood through the lens of shared corporate parenting responsibilities, so that decisions about accommodation, homelessness prevention and support are made with the needs, rights and best interests of care-experienced young people at the centre.

The protocol should set out how workforce development will be supported, including:

induction for new housing, children’s services and relevant partner staff, so they understand the purpose of the protocol and how it should inform day-to-day practice
regular joint training or briefings on local processes, roles, responsibilities and escalation routes
updates when relevant legislation, statutory guidance, local procedures or accommodation pathways change
opportunities for housing, children’s services and commissioned providers to learn together from practice
use of audits, case reviews, complaints, data and young people’s feedback to identify learning and improve practice
clear arrangements for communicating changes to the protocol across relevant services

1.5 Young people’s voices, lived experience and co‑production

Young people’s lived experience should shape the development, review and improvement of the joint housing protocol, including learning from those who have faced challenges accessing or sustaining accommodation. The protocol should set out how young people’s feedback will be gathered, acted on and reported back so that co-production is visibly embedded.

1.5.1 Involvement in development and review

Care-experienced young people should be involved in drafting, reviewing and updating the protocol, including through participation structures such as Children in Care Councils and other young people’s forums.

1.5.2 Embedding lived experience

Feedback from young people should inform strategic decision-making and operational improvement, helping services prioritise relationship-focused and supportive approaches.

Services should jointly review cases where accommodation outcomes have not been satisfactory, including where young people have required homelessness assistance or experienced accommodation breakdown, and use this learning to improve the protocol.

Example of embedding lived experience in service development

West Sussex County Council has embedded lived experience at the centre of its approach to developing and implementing its joint housing protocol for care leavers. Care-experienced young people were actively involved throughout the development process, working alongside the Leaving Care Service to review the existing offer, share their experiences of housing transitions, and identify where improvements were needed. This included structured opportunities for young people to contribute their views through established participation forums and direct engagement in shaping the protocol.

This approach has continued beyond initial development. Young people have played an active role in implementation, including contributing to a housing conference and wider collaboration events with housing partners. Their input has helped strengthen shared understanding across services and ensured that the protocol reflects the realities of young people’s experiences.

The protocol is also made accessible through the local offer, including a direct link to the document, helping care leavers and professionals to easily access information on housing support and entitlements.

This ongoing involvement has supported continuous improvement, with learning from lived experience informing both strategic decisions and practical changes to services, helping to deliver more responsive and effective support for care leavers.

1.5.3 Accessibility and transparency

Local authorities should ensure the protocol is accessible to young people, including a link in the published local offer and other young person-friendly formats and platforms. This helps care-experienced young people understand what support they can expect and reinforces trust and accountability between young people and corporate parents.

Question 2

2. Areas to cover in a joint housing protocol

Accepted Answer

This section sets out headings and contents that might be included within a joint housing protocol and can be used as a practical checklist for local authorities and partners working together to develop a protocol.

The list is not exhaustive, and authorities may wish to add or take away from the suggested headings according to local arrangements. Local authorities may wish to align headings or content with the updated local offer requirements on housing and accommodation.

2.1 Introduction

This section should set out the background, purpose and priorities of the joint housing protocol.

As part of shared corporate parenting responsibilities, children’s services and local housing authorities should recognise their joint accountability for ensuring care‑experienced young people achieve the best possible housing outcomes, experience smooth transitions from care, and maintain stable accommodation.

The protocol should demonstrate an aspirational and collaborative approach to meeting the housing needs of care experienced young people, with a clear focus on preventing homelessness and housing instability. It should have strong links with the local offer and set out how housing and children’s services will work together as corporate parents, including clear roles and responsibilities at each stage of a young person’s journey.

Local authorities may wish to include a short joint foreword or statement from senior leaders – for example, Directors of Children’s Services and Housing Services or relevant elected members – to underline shared commitments and expectations of their corporate parent responsibilities and collaboration. They may also wish to include a short foreword or reflection from a care-experienced young person, where this has been developed meaningfully and with appropriate support, to help ensure that lived experience shapes the tone and priorities of the protocol from the outset.

Examples from practice

Some local authorities have used forewords to strengthen the opening of their joint housing protocol and make shared ownership visible from the outset. A foreword can help explain why the protocol matters, set expectations for partnership working, and reinforce that supporting care-experienced young people to access and sustain suitable accommodation is a shared corporate parenting responsibility.

In Dorset and Barnet, senior leaders from children’s services and housing jointly endorse the protocol through a shared foreword. This helps signal that the protocol is jointly owned and that accountability for delivery sits across the wider local authority and its partners.

Gloucestershire County Council opens its protocol with a foreword from a Care Experienced Champion, reflecting on their journey from care to independent living and the importance of receiving the right support at the right time. The protocol also notes that care-experienced young people were involved in its development alongside housing and leaving care practitioners.

Local authorities may wish to consider whether a joint foreword from senior leaders, a contribution from care-experienced young people, or a combination of both would help demonstrate shared ownership, corporate parenting commitment and the role of lived experience in shaping the protocol.

Other areas to include in the Introduction:

arrangements for monitoring and review of the protocol
a list of key contacts responsible for delivering the protocol, probably in the form of appendices which should be reviewed annually and updated as personnel change

2.2 Transition planning for care-experienced young people before they leave care

The protocol should set out how Children’s Services and Housing Services work together to support planned and successful transitions into adulthood. Planning should begin early, be tailored to individual needs, and informed by young people’s views.

Areas that local authorities should consider including:

Steps to ensure successful transition planning prior to the young person’s 18th birthday and 28 days before each accommodation move, involving young people, carers, advocates and others with responsibility for providing services and support, as part of the transition from a care placement to living independently.
Recognition that care-experienced young people have varying needs and levels of maturity and will not all be ready to manage alone at a certain age. Planned moves into independence should take account of individual needs and any support available. The role of Social Workers, the Personal Adviser, and other practitioners and trusted adults who support the young person, in the transition process, including care planning and Looked After Child review meetings.
The role of the Independent Reviewing Officer and Looked After Child reviews in working with the young person to plan and agree accommodation and support pathways when they have left care which may include:
The local accommodation options for care-experienced young people, including Staying Put and Staying Close (where available).
- living away at university and needing vacation accommodation
- living in supported lodgings arrangements
- living in semi-independent or supported housing
- sharing a house with other people
- living in a self-contained social housing or private rented tenancy
- returning to live with family
- accommodation attached to a Higher Education Institution ( including holiday provision)
Whether there is local practice of post-18 IRO’s to provide transition and stability oversight.
Planning for accommodation when young people move on from Staying Put or Staying Close arrangements into other settled independent accommodation and how these plans are managed.
Arrangements that are in place to review and plan housing options for care-experienced young people. This could be delivered through a joint/multi-agency panel which reviews the needs of children as they approach 18, to plan for appropriate post-18 accommodation and support.
The contribution to joint planning that is made by key services such as Adult Social Care, mental health services, housing related support providers, the Youth Offending Service and the National Probation Service.

2.3 Helping care-experienced young people to prepare for independent living

Preparing care-experienced young people for adulthood is a core corporate parenting responsibility. Young people who are well prepared emotionally, practically and financially are more likely to sustain accommodation and avoid homelessness.

The joint housing protocol should align with the local offer requirements to explain how local services support young people to develop the skills, confidence and capabilities needed for independent living, including financial literacy, tenancy readiness and access to practical support before, during and after accommodation moves.

The protocol should set out local arrangements for:

preparation programmes and tenancy readiness - how young people access structured or accredited programmes, including pre-tenancy training, independent living skills, budgeting, welfare benefits and tenancy rights and responsibilities
assessing readiness for independent living - how readiness is assessed and how any additional support needs are identified before decisions are made about accommodation options
support before, during and after moves - what practical and emotional support young people can expect when moving, including early check-ins, help to settle in, out-of-hours support and clear review points
relationships and support networks - how services support young people to build and maintain relationships with family, carers, peers and wider support networks, including access to relationship-based approaches such as Lifelong Links where available
support for carers, residential staff and providers - how foster carers, residential staff and accommodation providers help young people prepare for independent living, and how this contribution is supported and monitored
out-of-area and custody arrangements - how care-experienced young people living out of area or in custody will be supported to access preparation for independence programmes

2.4 Accommodation and support options for care-experienced young people

This section should outline the accommodation and support options available to care-experienced young people and how they are accessed, and align to the new requirement within the local offer guidance. Options should be explored early so young people have time to understand what is available, consider the implications of different routes, and make informed choices based on their needs, aspirations and readiness for independence.

The protocol should also explain how options will meet the needs of care-experienced young people with specific vulnerabilities or circumstances, so that placements are safe, appropriate and responsive to individual needs.

The options might include:

Staying Put: This enables care-experienced young people to remain with their former foster carer when they leave care. Where both the young person and their former carer wish to continue living together, the local authority is under a duty to support this arrangement, including financially. The protocol should outline the assessment process which determines suitability for ‘staying put’, the support – including financial support – provided to facilitate this, and how the placements are continually reviewed post 18 to ensure planned moves as and when needed.

Staying Close: The Children’s Wellbeing and Schools Act 2026 places Staying Close on a statutory footing, making it a national duty from 2029. Staying Close supports eligible care leavers moving on from care placements such as residential care and semi-independent accommodation to maintain relationships with trusted adults and access practical support as they transition to adulthood. The protocol should set out how Staying Close operates locally, including eligibility, support available, how arrangements are planned and reviewed, and how it links with other accommodation and move-on pathways.

Commissioned supported accommodation: Care-experienced young people who do not Stay Put or Stay Close may need supported accommodation before moving to a settled tenancy. The protocol should describe the types of provision available locally, who they are for, expected length of stay, support levels, referral routes and move-on planning. Types of provision may include:

24 hour staffed short stay units
24 hour supported accommodation for care-experienced young people with complex needs
semi-independent and dispersed accommodation with visiting support
supported lodgings
specialist accommodation for particular support needs or circumstances
retained accommodation for care-experienced young people being released from custody

Semi-independent and independent accommodation: The protocol should explain how semi-independent, supported living and independent accommodation are commissioned, quality assured and matched to young people’s needs and risks, including how supported accommodation standards apply for 16- and 17-year-old looked after children and care leavers.

Training/taster flats: Short term training flats can help care-experienced young people test and gain a sense of the responsibilities that come with independent living, and experience the reality of living alone, which may identify other challenges such as loneliness, isolation and accessing support.

Living with family: Some care-experienced young people choose to live with immediate or extended family. The protocol should set out how suitability, safety and sustainability are assessed, what support is available to the young person and family, and how contingency planning will reduce the risk of homelessness if arrangements break down.

Support for young parents: Protocols should also include the specialist accommodation available to care-experienced young people with children or who are pregnant, how they are supported to access this accommodation and longer term move-on options.

Suitability of accommodation

Local authorities must ensure that accommodation provided for care leavers is suitable for their needs. The protocol should explain who assesses suitability, how decisions are made and reviewed, and how young people can raise concerns or challenge decisions with advocacy support where appropriate. Relevant suitability guidance is set out in Children Act 1989 care planning guidance and the Homelessness Code of Guidance. Key considerations include:

Accommodation should be matched to need, including risk, support requirements, location, affordability and the young person’s ability to sustain the placement or tenancy.
Bed and breakfast accommodation is not suitable for care leavers and should only be used in exceptional circumstances as a last resort, with senior oversight, active monitoring and a clear plan to move the young person to suitable accommodation as quickly as possible.
Protocols should set out how suitability concerns are escalated and how young people can access advocacy, complaints or review routes.
Protocols should also reflect relevant quality standards for supported accommodation used for 16- and 17-year-old looked after children and care leavers.

Referral routes

The protocol should explain how access to supported accommodation is managed, including referral routes, prioritisation, matching to vacancies, and the role of any single point of contact or gateway. Local authorities, providers and partners should seek to avoid duplicated assessments and make the process as seamless as possible for young people.

2.5 Joint contingency planning

Effective contingency planning helps care-experienced young people avoid homelessness, rough sleeping and avoidable accommodation breakdown. The joint housing protocol should set out how Children’s Services, Housing Services, commissioned providers and relevant partners will identify risk early, act quickly, and work together to sustain accommodation wherever possible.

Contingency planning should focus on situations where a care-experienced young person’s accommodation may be at risk, including where there are concerns about rent arrears, anti-social behaviour, relationship breakdown, provider withdrawal, eviction, safeguarding risk, or a planned placement ending without a suitable move-on option. Arrangements should be particularly clear for care-experienced young people who may have complex needs, limited informal support, previous placement instability, or experience of the criminal justice system.

The protocol should set out local arrangements for:

early warning signs or trigger points that require joint review
how concerns are shared between housing, children’s services, providers and the Personal Adviser, with the young person’s consent where required
how the Pathway Plan and any accommodation or support plan will be reviewed where accommodation is at risk
the role of multi-agency panels, placement panels or other local forums in reviewing higher-risk cases
the support that can be put in place to sustain accommodation, including mediation, restorative work, budgeting or tenancy support, increased floating support, practical help, or adjusted support arrangements
how decisions to evict, withdraw accommodation or end a placement will be reviewed and escalated before final action is taken
when senior oversight is required from both housing and children’s services
how a managed move or alternative suitable accommodation will be planned if the current arrangement cannot be sustained

Where eviction, withdrawal of accommodation or placement breakdown is being considered, the protocol should encourage joint senior review before a final decision is taken. This should test whether all reasonable steps have been taken to sustain the accommodation, whether additional or adjusted support could make the arrangement suitable, and what the impact of accommodation loss would be on the young person’s welfare, stability and future housing outcomes.

Where the loss of accommodation cannot be avoided, housing and children’s services should agree a joint plan to secure alternative suitable accommodation without delay. This should include support before, during and after the move, named lead officers, review points, and contingency arrangements to reduce the risk of repeat breakdown. Local areas may wish to use the senior oversight template at Annex B to support this process.

Example from practice: tenancy sustainment and early escalation

Haringey’s protocol provides a useful example of how contingency planning can involve the wider range of partners needed to support tenancy sustainment, including those responsible for tenancy management, housing support and escalation where risks emerge.

It sets out that when a care-experienced young person moves into a council or housing association tenancy, relevant teams should be aware of their care leaver status so that additional support and safeguards can be offered where needed. Where issues such as rent arrears or anti-social behaviour arise, the Young Adults Service, housing officers and tenancy management services are expected to work jointly to respond early and agree a plan to sustain the tenancy.

The protocol also includes arrangements for multi-agency meetings where a tenancy is at risk, and for eviction-related decisions to be reviewed through local panel or senior oversight arrangements before final action is taken. This provides a helpful example of how joint housing protocols can set out practical steps for identifying tenancy risks early, involving the right partners, and considering alternatives such as additional support, managed moves or a return to supported accommodation where this would prevent homelessness.

2.6 Care leavers leaving custody

Care-experienced young people leaving custody may need carefully coordinated support to secure suitable accommodation on release and avoid homelessness or rough sleeping. The protocol should set out how children’s services, housing services, Personal Advisers, probation, youth justice and other relevant partners identify needs early and plan accommodation before release.

The Children’s Wellbeing and Schools Act 2026 adds a requirement to set out housing support for those leaving custody within the local offer, and extends corporate parenting responsibilities to a wider range of public bodies, with implementation expected from Autumn 2027. Local authorities should consider how justice partners are engaged in planning and support for care-experienced young people during custody and through transition back into the community.

Areas that local authorities may wish to address within the joint housing protocol include:

early identification of care-experienced young people in custody and timely notification to children’s services and housing services
joint pre-release planning, including assessment of accommodation and support needs well before release
support for young people aged 21 to 25 to access or re-engage with leaving care services, including Personal Adviser support
how the duty to refer operates where a care-experienced young person is threatened with homelessness on release
suitable accommodation options on release, including supported housing, specialist provision and arrangements to hold or prioritise placements where appropriate
continuity of support after release, including how Personal Advisers, probation or youth justice staff and housing services will work together
cross-boundary arrangements where returning to the home authority is unsafe or inappropriate

The HM Prison and Probation Service’s Care Experience Matters guidance sets out beneficial practice for prisons, probation and local authorities to provide consistent and appropriate support to people with care experience during custody and following release. Local authorities should have regard to this guidance when developing joint housing protocols and consider how learning from wider good practice can be embedded locally to improve outcomes for care experienced young people.

2.7 Care-experienced young people living outside their parent authority area

The joint housing protocol should set out how the local authority will support care-experienced young people who are living, or wish to live, outside their parent authority area. This may include young people who are placed out of area, are settled in an existing foster or residential placement, move for education, employment or training, wish to live near family or former carers, or cannot safely return to their home area.

Local authorities should seek to ensure that care-experienced young people living outside the area can access, as far as reasonably practicable, support consistent with the commitments in the local offer. Where this is not possible, the authority should clearly explain what support will remain available, any limitations, and how the young person will be helped to access local services in the area where they live.

The protocol should make clear that out-of-area arrangements should be planned wherever possible and should not rely on homelessness services as the default route to secure accommodation. Planning should begin early, involve the young person, and be informed by their Pathway Plan, support needs, safety considerations, local connections, and views about where they want to live.

Parent authority considerations

The protocol should set out how the responsible parent authority will:

support care-experienced young people to make informed decisions about living out of area, including clear information about the support that will continue to be provided and the support available locally
engage early with the host authority, with the young person’s consent, to explore accommodation options, local services and any relevant housing processes
ensure the Personal Adviser remains involved in accommodation planning, pathway plan reviews, tenancy sustainment and any homelessness prevention activity
share relevant information with the host authority, with consent, to support coordinated planning and avoid gaps in support
support access to suitable accommodation, including by managing expectations about housing options, availability and local connection requirements
agree how contact will be maintained between the Personal Adviser, host authority and relevant local services
put contingency arrangements in place where an out-of-area placement, tenancy or informal living arrangement is at risk of breakdown

Where a care-experienced young person is accommodated out of area under a homelessness duty, the placing housing authority should also ensure any statutory notification requirements to the host housing authority are met.

Host local authority considerations

The joint housing protocol should also set out how the local authority will respond when care-experienced young people from other areas need housing advice, homelessness assistance or wider support locally.

This should include:

how the authority delivers its statutory duty to provide tailored housing advice to care-experienced young people living in the area
how the host authority will work with the responsible parent authority, with consent, to involve the relevant Personal Adviser in assessments, pathway plan reviews and, where applicable, Personalised Housing Plans
how care-experienced young people from other areas can access relevant local support, including any elements of the local offer or duty support from the leaving care service
how the host authority will work constructively with the parent authority to explore accommodation and support options, particularly where a young person presents in crisis or following placement breakdown
how concerns will be escalated where there is delay, disagreement, risk of homelessness or uncertainty about responsibilities between authorities

2.8 Accommodation options for care-experienced young people aged 21 to 25

The protocol should explain how care-experienced young people aged 21 to 25 can access accommodation and support, recognising that some may re-engage with services after a period of limited contact or may have changing support needs. This should include how they can access or re-engage with Personal Adviser support, how accommodation and support needs will be reassessed, and how services will support access to suitable accommodation, advocacy and tenancy sustainment. The protocol should also explain how services will plan for changes in support and entitlements as a young person approaches age 25, including the end of the Shared Accommodation Rate exemption and the intentional homelessness exemption where relevant. This may include a planned review before the young person turns 25, clear advice on any changes to benefit or housing entitlements, transition planning with adult services where relevant, and agreed arrangements for ongoing tenancy sustainment or other support.

2.9 Move on accommodation

A joint housing protocol should set out the types of settled accommodation available for care-experienced young people, how each is accessed, and the support provided to help a young person settle in and manage their home.

Many local housing authorities continue to offer a local authority or registered provider tenancy to some, or all care-experienced young people. Where this is the case, the protocol should explain how children’s services and housing services will work together so that access to social housing is planned, transparent and linked to the young person’s readiness and support needs.

The protocol might include:

how care-experienced young people are supported to apply for social housing, including help with registration, evidence, bidding and accepting offers
when young people can join the housing register, when they can begin bidding, and any local arrangements that allow early registration before they are ready to move
how priority is awarded within the allocation scheme and how this supports timely move-on into settled accommodation
how the allocation scheme reflects the regulations that care leavers under 25 must not be disqualified from accessing social housing because they do not have a local connection
how the housing needs of care-experienced young people placed in another authority area, and who wish to remain there, will be considered
how care-experienced young people who have moved away, for example for university, will be supported if they wish to return to their home authority
how readiness to manage a tenancy is assessed and agreed, including links to any tenancy readiness or preparation programmes
what tenancy sustainment and floating support will be available, particularly in the first months of a tenancy
what practical move-in support is available, such as furniture, white goods, window and floor coverings, or enhanced lettings schemes

Private rented sector accommodation

The private rented sector can provide a suitable move-on option for some care-experienced young people and, in some areas, may be the predominant pathway to independent living due to wider housing supply constraints. The protocol should set out how this pathway will be supported and made sustainable.

The Renters’ Rights Act 2025 introduces reforms to the private rented sector, including measures to strengthen the security and stability of tenancies. Protocols should set out how housing and children’s services will work together to ensure a shared understanding of these changes and that care-experienced young people are supported to understand their rights and responsibilities.

In local authority areas where private sector tenancies are offered as settled housing for care-experienced young people the protocol might include:

access routes, rent in advance, deposit schemes, approved landlord lists, landlord forums and landlord engagement
affordability, suitability and property standards, including how properties are quality checked and how care-experienced young people are helped to understand tenancy responsibilities
tenancy sustainment, early risk notification and joint response where rent arrears, anti-social behaviour or other risks to the tenancy arise
support for care-experienced young people who source private rented accommodation independently, including advice, advocacy and links to tenancy support where needed

*The Shared Accommodation Rate (SAR) limits the level of housing costs available to care leavers through housing benefit or universal credit to the cost of a room in a shared house. All care leavers are exempt from SAR until they reach the age of 25.

Home ownership

The joint housing protocol should remain aspirational and recognise that, for some care-experienced young people, longer-term housing aspirations may include home ownership. While this may not be an immediate option for many young people leaving care, the protocol can set out how services will support young people to build financial capability, understand longer-term housing choices and access appropriate advice as their circumstances change.

Where relevant, the protocol could signpost to current national or local home ownership options, such as shared ownership or other first-time buyer support available at the time, while recognising that schemes and eligibility criteria may change.

2.10 Support to prevent and relieve homelessness

The joint housing protocol should set out how housing and children’s services will work together where a care-experienced young person is homeless, threatened with homelessness, or at risk of rough sleeping. This section should complement the contingency planning arrangements in section 2.5 by focusing on the statutory homelessness framework and the joint action needed where homelessness duties may apply.

Early intervention and homelessness prevention

The protocol should set out the early intervention tools and joint working arrangements in place where a care-experienced young person is threatened with homelessness, ensuring that risks are identified early and acted upon in a coordinated way.

This could include:

a clear statement that homelessness services should not be used as a planned route to secure accommodation following the end of a care placement
trigger points for early referral to housing services, including where there is a risk of placement breakdown, tenancy breakdown, relationship breakdown or a young person being asked to leave
how children’s services will review and update the Pathway Plan where a young person is identified as being at risk of homelessness
how housing, children’s services, advocacy and other relevant professionals or trusted adults will work together to assess housing and support needs
how early intervention activity will inform the Personalised Housing Plan, including suitable accommodation and support options
tenancy sustainment or floating support, particularly at the start of a tenancy or where a crisis may put accommodation at risk
landlord liaison, including providing Personal Adviser contact details with the young person’s consent so that issues can be addressed early
use of Alternative Payment Arrangements where appropriate
mediation, restorative work or family support where a tenancy, placement or return home is at risk of breaking down
budgeting support where a young person is struggling to manage rent or other costs;
placement panels or other multi-agency forums to track and review young people in supported accommodation, particularly those at higher risk of eviction
clear escalation arrangements where the risk of homelessness increases or interventions are not effective

Joint working to deliver homelessness duties

Where a care-experienced young person is eligible for assistance and is homeless or threatened with homelessness within 56 days, the local housing authority will need to consider whether a prevention or relief duty is owed under homelessness legislation. The protocol should explain how housing and children’s services will work together to deliver these duties in a way that reflects corporate parenting responsibilities and the young person’s wider support needs. It may be useful to refer to Chapter 22 of the Homelessness Code of Guidance when developing this section.

The protocol should include arrangements for:

how children’s services will meet the statutory duty to refer, with consent, where a care-experienced young person may be homeless or threatened with homelessness, including how referrals are made, acknowledged and followed up
how housing services will notify and involve children’s services, with consent, where a care-experienced young person approaches the housing authority for homelessness assistance
timely sharing of relevant information, with consent, about the young person’s care status, support needs, accommodation history and Pathway Plan
how housing, children’s services, advocacy and other trusted professionals will work together to assess housing and support needs
how Personalised Housing Plans and Pathway Plans will be developed, aligned and reviewed together, including suitable accommodation and support options
involving the Personal Adviser, advocate or other trusted professional in assessments and planning
identifying suitable accommodation options and support to sustain them
escalation to senior leaders where there is disagreement, delay, risk of rough sleeping, or a risk that homelessness duties may be brought to an end
ensuring that young people understand their rights, responsibilities and routes to advocacy or review

Priority need

Under homelessness legislation, certain care leavers have a priority need for accommodation. This includes young people aged 18, 19 or 20 who were looked after between the ages of 16 and 18. The Homelessness Code of Guidance is clear that this applies whether or not the young person qualifies for leaving care services from children’s services.

For care leavers aged 21 or over, priority need is not automatic. Housing authorities must assess whether the person is vulnerable as a result of having been looked after, accommodated or fostered. In carrying out this assessment, housing authorities should take account of the guidance in Chapter 8 and Chapter 22 of the Homelessness Code of Guidance, including the length of time the person was looked after, the reasons they were looked after, the time since they left care, whether they have been able to obtain and maintain accommodation, and the support networks available to them.

Housing authorities should take particular care when assessing whether a care leaver aged 21 or over is vulnerable. This should include consideration of whether, if homeless, they would be at particular risk of exploitation, abuse or involvement in offending behaviour as a result of their care experience.

The joint housing protocol should set out how housing and children’s services will work together to support priority need assessments for care leavers aged 21 or over. This should include arrangements for sharing relevant information, with consent, about the young person’s care history, support needs, vulnerabilities, accommodation history and existing support networks. Personal Advisers, advocates and other trusted professionals should be involved where appropriate, so that assessments are informed by a full understanding of the young person’s circumstances.

Where there is a potential that a care leaver does not have a priority need, the protocol should set out how services will jointly plan next steps. This should include clear arrangements for ongoing accommodation and support, escalation where needed, and contingency planning to reduce the risk of repeat homelessness, deterioration in the young person’s circumstances or rough sleeping.

Intentional homelessness

The joint housing protocol should reflect that from 30 September 2026, an intentional homelessness decision cannot be made where the applicant is a care leaver in scope of the corporate parenting duty. The exemption does not apply retrospectively. The housing authority must consider if the cause of their current homelessness took place from 30th September 2026, and if at that point they were an exempt care leaver. An exempt care leaver will not benefit from the exemption if the cause of their current homelessness occurred before 30th September 2026; whereas a person who was an exempt care leaver on becoming homeless after the effective date will not be intentionally homeless.

The protocol should instead set out how housing and children’s services will work together to support care leavers where there is a risk of accommodation loss or where homelessness occurs. This should include:

how services will take all reasonable steps to prevent the loss of accommodation where a care leaver is at risk, including early identification of issues and coordinated support
arrangements for escalating concerns to senior leaders in housing and children’s services where a care leaver’s accommodation is at risk due to their actions or wider circumstances
how housing and children’s services will work together to agree crisis and contingency accommodation arrangements where the loss of accommodation cannot be prevented.
how services will work together to identify and plan for care leavers approaching age 25, to avoid a cliff edge in support. This should include early review of accommodation, support needs and tenancy sustainment arrangements before statutory leaving care support comes to an end, recognising that the risk of repeat homelessness or rough sleeping may increase if support reduces or ends without a clear transition plan
how senior leaders from housing and children’s services will jointly review and agree future accommodation and support plans, ensuring:
- a clear understanding of the reasons for the loss of previous accommodation
- that appropriate support is in place to meet the care leaver’s needs
- that accommodation is suitable and sustainable
- that there are planned review points to support the success of the placement

2.11 Dispute resolution

The protocol should set out clear routes for escalation and resolving disputes between services where there is disagreement about the support and accommodation provided to a care-experienced young person, including where they may be homeless or threatened with homelessness.