Official Statistics

Rough sleeping snapshot in England: autumn 2024

Published 27 February 2025

Applies to England

© Crown copyright 2025

This publication is licensed under the terms of the Open Government Licence v3.0 except where otherwise stated. To view this licence, visit nationalarchives.gov.uk/doc/open-government-licence/version/3 or write to the Information Policy Team, The National Archives, Kew, London TW9 4DU, or email: psi@nationalarchives.gov.uk.

Where we have identified any third party copyright information you will need to obtain permission from the copyright holders concerned.

This publication is available at https://www.gov.uk/government/statistics/rough-sleeping-snapshot-in-england-autumn-2024/rough-sleeping-snapshot-in-england-autumn-2024

1. Main findings

  • The number of people estimated to be sleeping rough on a single night in autumn 2024 is 4,667. This has risen for the third year in a row, increasing 20% since 2023. However, it remains 2% below the peak in 2017 and is 164% higher than in 2010 when the snapshot approach was introduced.
  • The rate of people sleeping rough in England has increased to 8.1 people per 100,000 in the population[footnote 1]  in 2024 from 6.8 per 100,000 in 2023, though remains lower than the peak in 2017 (8.5 per 100,000). 
  • Nearly half (45%) of all people sleeping rough on a single night in autumn are in London and the South East, which is similar to previous years.
  • The largest regional increase was in London, rising from 1,132 in 2023 to 1,318 in 2024 - an increase of 186 people or 16%. The only region with a decrease was the North West of England - a decrease of 2 people.
  • Over half the increase in the number of people sleeping rough on a single night is driven by 12 local authorities (4% of all areas). In 46% of local authorities the number decreased or stayed the same compared to 2023.
  • The majority of people sleeping rough in England are male, aged over 26 years old and from the UK. This is similar to previous years. 
  • Alongside these statistics, we are also publishing the Rough sleeping data framework  which uses more frequent and more detailed management information about people sleeping rough to help us better understand how far rough sleeping is prevented wherever possible, and where it does occur it is rare, brief, and non-recurring.
  • These statistics show there were  2.2 times more people sleeping rough over the month compared to a single night, illustrating that the flow of people onto and off the street over the course of a month is significantly higher than those seen on any given night due to the dynamic nature of rough sleeping.  In December 2024 there were an estimated 7,524 people sleeping rough over the month, and 3,375 people estimated to be sleeping rough on a single night, which is 28% lower than the 2024 annual snapshot figure.  Rough sleeping numbers are usually lower in the winter due to colder weather or more temporary night shelters.

Date of next publication: We expect to publish the autumn 2025 Rough sleeping snapshot in early 2026. The date will be pre-announced on the GOV.UK publication release calendar.

Figure 1: Estimated number of people sleeping rough on a single night in autumn in England, 2010 to 2024

1.1 Introduction

This publication provides the estimated  number and age, gender, and nationality of people sleeping rough on a single night in autumn 2024. Local authorities choose a single date between 1 October and 30 November on which to base their snapshot estimate.

There are a range of factors that can affect the number of people who sleep rough on any given night, for example, the availability of night shelters, the weather, and where people choose to sleep. The date and the time chosen for the snapshot estimate can also impact the numbers. The figures in this release are therefore subject to some uncertainty and should be treated as estimates. 

The annual snapshot statistics remain our official and most robust measure of rough sleeping on a single night given they are independently verified and are published in line with the Code of Practice for Statistics though it is important to consider how they can and cannot be used, as explained below.

Alongside the 2024 snapshot statistics, we have published the latest quarterly update of the rough sleeping data framework management information, the Accredited Official statutory homelessness statistics and management information on Ukraine and Afghan homelessness pressures.

The rough sleeping data framework management information includes more timely and frequent insight on rough sleeping and the support for rough sleepers compared to the annual rough sleeping snapshot, and uses a similar collection approach to annual rough sleeping statistics, albeit without the greater verification of the annual statistics. This data framework is relevant to people working locally to reduce rough sleeping and is an important step towards driving better outcomes for vulnerable people.

1.2 Definitions

People sleeping rough are defined as:

  • People sleeping, about to bed down (sitting on/in or standing next to their bedding) or bedded down in the open air (such as on the streets, in tents, doorways, parks, bus shelters or encampments).
  • People in buildings or other places not designed for habitation (such as stairwells, barns, sheds, car parks, cars, derelict boats, stations, or ‘bashes’ which are makeshift shelters, often comprised of cardboard boxes).

The definition does not include people in hostels or shelters, people in campsites or other sites used for recreational purposes or organised protest, squatters or travellers.

Bedded down means either lying down or sleeping.

About to bed down includes those who are sitting in/on or near a sleeping bag or other bedding.

1.3 Things you need to know

  • Local authorities across England take an autumn single night snapshot of people sleeping rough. They either use a count-based estimate of visible rough sleeping, an evidence-based estimate meeting with local agencies to record those who are known to be sleeping rough or an evidence-based estimate meeting including a spotlight  count.
  • Local authorities, together with local agencies, decide which approach and date to use for their snapshot of rough sleeping. They are advised by Homeless Link  to use the approach that will provide the most accurate estimate of the number of people sleeping rough in their local authority.
  • The snapshot should take place on a ‘typical night’, on a single date between 1 October and 30 November, chosen by the local authority. The date can change from one year to the next and will not be the same for all local authorities. In some cases, this is coordinated with neighbouring local authorities to avoid double counting of people.
  • The snapshot takes place in the autumn rather than summer (when numbers are likely to be higher due to warmer temperatures ) or winter (when numbers may be lower as more temporary night shelters are set up).
  • The snapshot is collated by outreach workers, local charities and community groups and is independently verified by Homeless Link.
  • The snapshot does not provide a definitive number of people affected by homelessness in England. The term ‘homelessness’ is much broader than people sleeping rough, and can also include people who are in temporary accommodation or staying temporarily with friends or family.   
  • The snapshot does not include everyone in a local authority with a history of sleeping rough. Nor does it include everyone sleeping rough in the October to November period.  
  • Accurately estimating the number of people sleeping rough within a local authority is inherently difficult given the hidden nature of rough sleeping. For example, sleeping patterns of women experiencing rough sleeping may  not be fully captured by the snapshot, as women who sleep rough may be more hidden, transient and intermittent and not bedded down at night[footnote 2].
  • The snapshot methodology has been in place since 2010. From 1998 to 2010, local authorities who estimated that there were more than 10 people sleeping rough in their local authority were asked to conduct an annual street count . This was around a quarter of all local authorities.
  • Rough sleeping, is the most visible and dangerous form of homelessness and is caused by a mixture of interrelated structural (eg poverty, affordable housing), individual (eg relationship breakdown, mental health and substance misuse) and  interpersonal factors (eg people leaving institutions , people with no recourse to public funds)[footnote 3].
  • Our statistical practice is regulated by the Office for Statistics Regulation (OSR). 

1.4 Government support for people sleeping rough

  • Whilst we develop our new cross government strategy, the £547 million Rough Sleeping Initiative (RSI) which runs from April 2022 to March 2025 will continue its support to up to 300 local authorities across England by funding local, tailored rough sleeping services, including Housing First, outreach staff and specialist services, advice and training.

  • The Rough Sleeping Accommodation Programme (RSAP) and the Single Homelessness Accommodation Programme (SHAP) continue to provide longer term supported housing, Housing First and other housing-led accommodation with accompanying support for those experiencing homelessness or rough sleeping.
  • From 2025-26, the Rough Sleeping Prevention and Recovery Grant, (RSPARG) a consolidated rough sleeping fund aimed at tackling rough sleeping is providing a total of £186 million to local authorities across England.
  • The new streamlined funding, comprised of funding for rough sleeping services, Housing First and support for ex-offenders, is a step by the Government towards simplifying local authorities’ access to and management of rough sleeping grants.
  • The Rough Sleeping Prevention and Recovery Grant builds on past efforts, enabling the continuation of vital services for some of the most vulnerable people in our society including ex-offenders and complements the MoJ’s Community Accommodation Service (CAS3).

2. Rough sleeping snapshot

2.1 National and sub-national

The number of people estimated to be sleeping rough in England on a single night in autumn 2024 has increased for the third year in a row to 4,667, but remains just below the peak in 2017.

The number of people estimated to be sleeping rough on a single night in autumn 2024 has increased for the third year in a row to 4,667. This was an increase of 769 people or 20% increase from 2023, and an increase of 2,899 people or 164% increase since 2010, when the snapshot approach was first introduced.

This is higher than in 2019, before the COVID-19 pandemic, but remains lower (by 84 people, 2%) than the peak in 2017.

Over half the increase in the number of people sleeping rough on a single night is driven by just 12 local authorities (4% of all areas). In 46% of areas the number of people sleeping rough decreased or stayed the same compared to last year.

Figure 2.1.1: Estimated number of people sleeping rough on a single night in autumn in London and Rest of England, 2010 to 2024

In London, there were 1,318 people estimated to be sleeping rough on a single night in autumn 2024. This is an increase of 186 people or 16% from 2023 and an increase of 903 people or 218% since 2010, but a decrease of 35 people or 3% since London’s peak in 2018.

Across the rest of England, there were 3,349 people estimated to be sleeping rough on a single night in autumn 2024. This is up by 583 people or 21% from last year but down by 265 people or 7% from its peak in 2017. However, this is an increase of 1,996 people or  148% since 2010.

Table 2.1.1: Estimated number of people sleeping rough on a single night in autumn in England, London and Rest of England, 2010 to 2024

Year England % change on previous year (England) London % change on previous year (London) Rest of England % change on previous year (Rest of England)
2010 1,768 - 415 - 1,353 -
2011 2,181 23 446 7 1,735 28
2012 2,309 6 557 25 1,752 1
2013 2,414 5 543 -3 1,871 7
2014 2,744 14 742 37 2,002 7
2015 3,569 30 940 27 2,629 31
2016 4,134 16 964 3 3,170 21
2017 4,751 15 1,137 18 3,614 14
2018 4,677 -2 1,283 13 3,394 -6
2019 4,266 -9 1,136 -11 3,130 -8
2020[footnote 4] 2,688 -37 714 -37 1,974 -37
2021 [footnote 4] 2,443 -9 640 -10 1,803 -9
2022 3,069 26 858 34 2,211 23
2023 3,898 27 1,132 32 2,766 25
2024 4,667 20 1,318 16 3,349 21

2.2 Regional

Nearly half (45%) of all people sleeping rough on a single night in autumn 2024 were in London and the South East.

Rough sleeping increased in every region compared to the previous year except in the North West of England. London had the highest increase in absolute terms - with an increase of 186 people while Yorkshire and The Humber had the largest percentage increase - with an increase of 43%.

London and the South East accounted for nearly half (45%) of all the people estimated to be sleeping rough on a single night in autumn this year, which is in line with previous years.    

The North East of England is the region with the lowest number of people estimated to be sleeping rough on a single night in autumn this year, which is the same as all previous years.    

Figure 2.2.1: Regional distribution of people sleeping rough on single night in autumn 2024

The region with the largest increase in the number of people estimated to be sleeping rough on a single night in autumn 2024 was London, with 1,318 people compared to 1,132 people in 2023.

The region with the largest percentage increase was Yorkshire and Humber, up 43% from 270 people in 2023 to 385 people in 2024.

The only region to experience a decrease between 2023 and 2024 was the North West, from 369 to 367 people.

Table 2.2.1: Estimated number of people sleeping rough on a single night in autumn by region, 2023 and 2024

Area 2023 2024 Change % Change
North West 369 367 -2 -1
North East 89 124 35 39
South West 488 527 39 8
East of England 337 412 75 22
West Midlands 256 346 90 35
East Midlands 287 393 106 37
Yorkshire and The Humber 270 385 115 43
South East 670 795 125 19
London 1,132 1,318 186 16
Rest of England 2,766 3,349 583 21
England 3,898 4,667 769 20

Figure 2.2.2: Estimated number of people sleeping rough on a single night in autumn by region, 2010 to 2024 (% change 2023 to 2024 for each region highlighted)

2.3 Local Authority

Westminster was the local authority[footnote 5] with both the highest number of people sleeping rough on a single night in autumn 2024 and the largest increase from 2023.

The largest decrease in the number of people sleeping rough on a single night in autumn was in Redbridge.

In autumn 2024, the number of people sleeping rough on a single night ranged from 0 people in 12 local authorities across England to 388 people in Westminster.  The median number of people sleeping rough on a single night was 9.

Local authorities are asked to provide possible reasons for any significant changes in the numbers of people who sleep rough compared to previous years.

Westminster has consistently been the local authority with the highest number of people sleeping rough since the snapshot approach was introduced in 2010, and the 2024 estimate is the highest that has been recorded. It was also the local authority with the largest increase in people estimated to be sleeping rough, where there were 388 people in 2024, compared to 277 in 2023, which is an increase of 111 people. Westminster City Council published a statement of intent in 2023 which extends their Rough Sleeping Strategy 2017-2022. This suggests that Westminster has the highest number of people sleeping rough due to the availability of services, relatively safe and dry areas to sleep, presence of existing rough sleepers and access to drug markets.

Table 2.3.1: Local authorities with the highest estimated number of people sleeping rough on a single night in autumn 2024, compared to previous year

Local Authority 2023 2024 Change % Change
Westminster 277 388 111 40
Camden 121 132 11 9
City of London 61 86 25 41
Somerset 57 80 23 40
Bristol, City of 67 77 10 15
Brighton and Hove 52 76 24 46
Leeds 49 69 20 41
Bournemouth, Christchurch and Poole 64 63 -1 -2
Leicester 26 61 35 135
Waltham Forest 25 60 35 140

 

Figure 2.3.1: Local authorities with the highest estimated number of people sleeping rough on a single night in autumn 2024

The number of people estimated to be sleeping rough increased in 54% of local authority areas compared to 2023. Over 50% of the change in the number of people estimated to be sleeping rough was driven by 12 local authorities (4% of all local authorities).

Local authorities with the largest increases, in absolute terms, reported that these were due to a range of factors which include, but are not limited to: Severe Weather Emergency Provision (SWEP) being in place prior and during the snapshot which meant more people were asking for support who would otherwise be sleeping rough; an increase in those with restricted eligibility to public funds, including those who have left asylum support accommodation; and an increase in pressure on wider homelessness services and limited suitable available housing pathways.

Table 2.3.2: Local authorities with the largest absolute increase in the estimated number of people sleeping rough on a single night in autumn from 2023 to 2024

Local Authority 2023 2024 Change % Change
Westminster 277 388 111 40
Leicester 26 61 35 135
Waltham Forest 25 60 35 140
Hounslow 14 41 27 193
Breckland 6 32 26 433

Figure 2.3.2: Local authorities with the largest increase in the estimated number of people sleeping rough on a single night in autumn 2024 compared to previous year

The number of people sleeping rough on a single night has decreased or remained the same in 46% of all local authorities, compared to last year.

The local authority with the largest absolute decrease in the number of people sleeping rough was Redbridge, where 19 people were estimated to be sleeping rough on a single night in autumn 2024 compared to 51 people in 2023.

Local authorities with the largest absolute decreases in the number of people sleeping rough reported that this was due to a range of factors including, but not limited to: more accurate reporting due to enhanced outreach activity; new and improved available accommodation including winter night shelters and wider range of available housing pathways; and the weather conditions on the night, which were very cold which may have led to some people who usually sleep rough to seek shelter elsewhere.

Table 2.3.3: Local authorities with the largest absolute decrease in the estimated number of people sleeping rough on a single night in autumn from 2023 to 2024

Local Authority 2023 2024 Change % Change
Redbridge 51 19 -32 -63
Warrington 21 3 -18 -86
Barking and Dagenham 22 6 -16 -73
Haringey 48 32 -16 -33
Ealing 53 38 -15 -28

When comparing the number of people sleeping rough on a single night in autumn across years, and between local authorities, there are a range of factors that should be considered. For example, the weather, where people choose to sleep, movement across local authority boundaries (particularly in London), the availability of night shelters and the impact of COVID-19 in 2020-21. The date and time chosen for the snapshot may also impact numbers.

Figure 2.3.3: Local authorities with the largest decrease in the estimated number of people sleeping rough on a single night in autumn 2024 compared to previous year

The following map of England details the number of people estimated to be sleeping rough on a single night in autumn 2024 in England.  

Figure 2.3.4: Map showing the estimated number of people sleeping rough on a single night in autumn 2024 in England

3. Demographics

Since 2016, we have collected data on age, gender and nationality of people sleeping rough and consistent demographic data, which used the same categories, has been available from 2017 onwards[footnote 6].

Demographic information is collected either by asking the person found sleeping rough or by referring to existing knowledge (if that person was already known). If a person refused to give, or did not want to share, their personal information, they would still be recorded as sleeping rough and demographic information including age, gender and nationality would be recorded as ‘Not known’, if unknown. If it was not possible to record demographic information, due to an individual being asleep when they were approached for example, then it was recorded as ‘Not known’.

Caution should be taken when comparing the change in the demographics of people sleeping rough compared to previous years due to the change in ‘Not known’ groups. 

3.1 Age

The majority of people sleeping rough on a single night in autumn were aged 26 and older.

The majority of people sleeping rough on a single night in autumn 2024 were aged 26 and older, the same as in previous years.

There was one person under the age of 18 found sleeping rough in 2024. Under 18s who are homeless should be provided with accommodation by Children’s Services in their local authority.

In 2024, there were 4,019 people (86% of the total) sleeping rough on a single night in autumn who were 26 or older and 227 people (5% of the total) who were between 18 and 25. The age of people sleeping rough was ‘Not known’ for 420 people (9% of the total), and 1 person was under 18.

Table 3.1.1: Estimated number of people sleeping rough on a single night in autumn by age, 2017 to 2024

Year Under 18 18 - 25 26 and over Not known Total
2017 3 366 3,846 536 4,751
2018 1 295 3,744 637 4,677
2019 6 201 3,542 517 4,266
2020 1 138 2,349 200 2,688
2021 0 112 2,111 220 2,443
2022 2 192 2,506 369 3,069
2023 1 201 3,189 507 3,898
2024 1 227 4,019 420 4,667

Figure 3.1.1: Proportion  of people sleeping rough on a single night in autumn by age, 2017 to 2024

The age breakdown of people sleeping rough was broadly similar across all regions in England.

Table 3.1.2: Proportion of people sleeping rough on a single night in autumn 2024 by age in England, London and Rest of England   

Area Under 18 18 - 25 26 and over Not known
England 0 5 86 9
London 0 5 79 16
Rest of England 0 5 89 6

3.2 Gender

The majority of people sleeping rough on a single night in autumn 2024 were male.

In 2024, there were 3,858 men (83% of the total) and 680 women (15% of the total) sleeping rough on a single night in autumn. Gender was ‘Not known’ for 129 people (3% of the total). The gender breakdown of people sleeping rough was similar across all regions in England, and was similar to previous years.

We recognise that sleeping patterns of females experiencing rough sleeping is more hidden, transient and intermittent and therefore may not be fully captured by the snapshot which requires  people to be bedded down and takes place at night. For example, women who sleep rough may sit or sleep in places which are open all night, walk all night or engage in sex work during the night  but not have anywhere to sleep during the day[footnote 2].

Table 3.2.1: Estimated number of people sleeping rough on a single night in autumn by gender, 2017 to 2024

Year Male Female Not known Total
2017 3,965 653 133 4,751
2018 3,937 642 98 4,677
2019 3,534 614 118 4,266
2020 2,277 377 34 2,688
2021 2,079 322 42 2,443
2022 2,539 464 66 3,069
2023 3,214 568 116 3,898
2024 3,858 680 129 4,667

Figure 3.2.1: Proportion of people sleeping rough on a single night in autumn by gender, 2017 to 2024

Table 3.2.2: Proportion of people sleeping rough on a single night in autumn by gender in England, London, and Rest of England

Area Male Female Not known
England 83 15 3
London 80 14 5
Rest of England 83 15 2

3.3 Nationality

The majority (63%) of people sleeping rough on a single night in autumn 2024 were from the UK. This is the same as in previous years.

The largest increase in people sleeping rough on a single night were those from the UK, whereas the largest percentage increase was for those people from outside the EU.  

The majority (2,956 or 63%) of people sleeping rough on a single night in autumn 2024 were from the UK, while 765 people (16% of the total) were EU nationals and 495 people (11% of the total) were from outside the EU. The nationality of 451 people (10% of the total) was ‘Not known’.

There were 2,956 people from the UK estimated to be sleeping rough on a single night in 2024 compared to 2,420 in 2023, which is an increase of 536 people, or 22%. The overall proportion has increased from 62% in 2023 to 63% in 2024.

There were 765 EU nationals estimated to be sleeping rough on a single night in 2024 compared to 718 people in 2023, which is an increase of 47 people or 7%. The overall proportion has decreased from 18% in 2023 to 16% in 2024.

There were 495 people from outside the EU and UK estimated to be sleeping rough on a single night in 2024 compared to 336 in 2023, which is an increase of 159 people or 47%. The overall proportion has increased from 9% in 2023 to 11% in 2024.

There was also an increase in the number of people sleeping rough whose nationality was ‘Not Known’ compared to 2023, rising from 424 in 2023 to 451 in 2024, which is an increase of 27 or 6%.

Table 3.3.1: Estimated number of people sleeping rough on a single night in autumn by nationality, 2017 to 2024

Year UK EU Non-EU Not known Total
2017 3,396 760 193 402 4,751
2018 3,013 1,048 153 463 4,677
2019 2,735 937 151 443 4,266
2020 1,922 472 128 166 2,688
2021 1,633 497 110 203 2,443
2022 1,966 632 179 292 3,069
2023 2,420 718 336 424 3,898
2024 2,956 765 495 451 4,667

Figure 3.3.1: Proportion of people sleeping rough on a single night in autumn by nationality, 2017 to 2024

Of the 1,318 people sleeping rough in London in 2024, 494 (37%) were from the UK, 368 (28%) were EU nationals and 241 (18%) were from outside the EU and the UK. The nationality of 215 people (16%) was ‘Not known’.

Across the rest of England, 2,462 people estimated to be sleeping rough on a single night in autumn were from the UK (74%), 397 people were EU nationals (12%), 254 people were from outside the EU and the UK (8%) and for 236 people (7%) nationality was ‘Not known’.

Table 3.3.2: Proportion of people sleeping rough on a single night in autumn by nationality and region in England, London and Rest of England

Area UK EU Non-EU Not known
England 63 16 11 10
Rest of England 74 12 8 7
London 37 28 18 16

Table 3.3.3: Change in the number of people sleeping rough on a single night in autumn from 2023 to 2024

Nationality 2023 2024 Change % change
UK 2,420 2,956 536 22
EU 718 765 47 7
Non-EU 336 495 159 47
Not Known 424 451 27 6
Total 3,898 4,667 769 20

4. Snapshot approach

The majority of local authorities (92%) used the same approach for their rough sleeping snapshot as they did last year.

Most local authorities used an evidence-based meeting for their rough sleeping snapshot, which is similar to previous years.

Local authorities, in conjunction with local agencies, decide which approach to use for their snapshot of rough sleeping. They are advised to use the approach that will most accurately reflect the number of people sleeping rough in their local authority and will provide an estimate that best meets the local context. There are different approaches a local authority can decide to use, this includes:

  • A count-based estimate which is the number of people seen sleeping rough in the local authority on a ‘typical night’ - a single date chosen by the local authority between 1 October and 30 November.
  • An evidence-based estimate meeting which is an evidence-based assessment by local agencies, leading to a single snapshot figure that represents the number of people thought to be sleeping rough in the local authority on a ‘typical night’ - a single date chosen by the local authority between 1 October and 30 November.
  • An evidence-based estimate meeting including a spotlight count which is the same as an evidence-based estimate meeting, but with one of the evidence sources also including a street count, which might not be as extensive as the count-based estimate but has taken place after midnight on the ‘typical night’.

In 2024, 248 local authorities (84%) used an evidence-based estimate meeting or an evidence-based estimate meeting including spotlight count for their rough sleeping snapshot and 48 local authorities (16%) used a count-based estimate.

Figure 4.1: Approach used by local authorities for their rough sleeping snapshot over the last 10 years

As in previous years, most local authorities used an evidence-based estimate meeting for their 2024 rough sleeping snapshot. More local authorities supplemented their evidence-based estimate meetings with a spotlight count compared to 2023. However, we do not know how this compares with earlier years as, although this approach was available, only a distinction between evidence-based estimate meetings and count-based estimates were recorded and published at the time.

Table 4.1: Approach used by local authorities for their rough sleeping snapshot, 2023 and 2024

Approach 2023 2024
Count-based estimate 59 48
Evidence-based estimate meeting 76 76
Evidence-based estimate meeting (inc. spotlight count) 161 172
Total 296 296

Local authorities can change approach [footnote 7]  from year to year but any decision to do so must be guided by whether it will produce the most accurate figure. Homeless Link, who independently verified the rough sleeping snapshot, ask for details of this decision-making as part of the verification process to ensure any changes meet the guidance. If the reasons given for an approach change were deemed unsatisfactory, then the local authority snapshot figure would not be verified. Further information about verification is available in the technical report.

There are several reasons why a local authority may change from an evidence-based estimate to a count-based estimate or vice versa from year to year. For example, a local authority may change from an evidence-based estimate to a count-based estimate if there are a lack of local agencies with intelligence about where people are sleeping rough or if agencies refuse to share their data, making it difficult to form an accurate estimate. A local authority may change from a count-based estimate to an evidence-based estimate if there are new sleep sites which are inaccessible or unsafe to access, which would not be included in a count-based estimate.

The 2018 Rough Sleeping Initiative  impact evaluation found that local authorities changing their approach to measuring rough sleeping from count-based estimate to evidence-based estimate and vice versa, was unlikely to account for the fall in rough sleeping seen in these local authorities. A more detailed analysis of the rough sleeping snapshot over time was carried out to examine the possible effects of local authorities changing their snapshot approach. This is available in the technical report.

Figure 4.2: Percentage of local authorities that changed approach for their rough sleeping snapshot to previous year

5. Consultation with local agencies 

63% of local authorities consulted five or more agencies for their snapshot estimate.

The majority of local authorities involved the police, voluntary sector and outreach teams for their snapshot estimate.

Local authorities consult local agencies, such as the police, voluntary sector and outreach teams to discuss what intelligence they have about rough sleeping locally to check if there are any factors that might affect the choice of a ‘typical night’ for the estimate. Furthermore, the local authority should involve those local agencies that have the most accurate information about who is sleeping rough. Every local authority reported that they had consulted with at least one type of local agency, and 63% reported that they had consulted five or more different groups.

The involvement of local agencies is an essential element of the rough sleeping snapshot. It ensures transparency about how the snapshot was carried out and enables Homeless Link to speak to independent local agencies as part of the verification process. Homeless Link will not verify the process where no local agencies, or only those that are part of or commissioned by the local authority, are involved.

This year all local authorities (296) provided figures that were verified by Homeless Link. This means the guidance has been followed properly by all local authorities when conducting their snapshot estimate. Further information about verification is available in the technical report. 

Figure 5.1: Number of agencies consulted by local authorities for their rough sleeping snapshot 2024

In 2024, nearly all local authorities involved outreach workers, the police and voluntary sector in their rough sleeping snapshot. The majority of local authorities also involved substance misuse teams, mental health teams and faith groups.

Figure 5.2: Local partners most commonly involved in the 2024 rough sleeping snapshot

6. Technical notes

6. 1 Data tables, interactive dashboard and technical report

Seven accompanying tables are available alongside this release. These include the number of people sleeping rough, demographic information (i.e. age, gender, nationality), the snapshot approach used, and any consultations that took place with local agencies. An interactive dashboard and infographic enables users to explore trends in rough sleeping since 2010. A technical report explains in more detail how the rough sleeping data is collected and provides an assessment of data quality and data limitations.  

6.2 Data quality and limitations

These statistics provide a way of estimating the number of people sleeping rough across England on a single night in autumn and assessing change over time. Accurately estimating the number of people sleeping rough within a local authority is inherently difficult given the hidden nature of rough sleeping. Furthermore, there are a range of factors that can impact on the number of people seen or thought to be sleeping rough on any given night. For example, the availability of night shelters, the weather, and where people choose to sleep. The date and the time chosen for the snapshot estimate can also impact the numbers.

Homeless Link have been funded by Ministry of Housing, Communities and Local Government (MHCLG) since 2010 to provide guidance to local authorities who conduct the snapshot of rough sleeping and to independently verify all local authorities’ snapshots. For more information about the quality assurance processes, data limitations and the role of Homeless Link please see the technical report.

The Office for Statistics Regulation (OSR) which is the regulatory arm of the UK Statistics Authority completed a compliance check of the Rough sleeping snapshot statistics against the Code of Practice for Statistics. This review considered the value, quality and trustworthiness of these statistics in relation to the Code.

6.3 Revisions policy

This policy has been developed in accordance with the UK Statistics Authority Code of Practice for statistics and the Ministry of Housing, Communities & Local Government Revisions Policy. There are two types of revisions that the policy covers:

Non-scheduled revisions

Where a substantial error has occurred as a result of the compilation, imputation or dissemination process. The statistical release, live tables and other accompanying releases will be updated with a correction notice as soon as is practical.

If a local authority notifies MHCLG of an error in the information they have submitted after publication of the release, a decision on whether to revise will be made based upon the impact of any change and the effect it has on the interpretation of the data.

Scheduled revisions

There are no scheduled revisions for this release.

6.4 Uses of the data

The data in this statistical release provide evidence on the prevalence of and trends in rough sleeping in England.

Within MHCLG they are used:

  • For ministerial briefing and correspondence, Parliamentary Questions, Freedom of Information Act cases and to answer public enquiries.
  • As background to policy development.
  • For monitoring policy, allocating resources, performance monitoring and to support bids for funding from the Treasury.

Outside of MHCLG users include:

  • Local housing authorities for monitoring progress, planning and commissioning services to prevent and tackle rough sleeping.
  • Other government departments (e.g. Department for Health and Social Care, Public Health Outcomes Framework).
  • The voluntary sector and academics to monitor and evaluate housing policy and for campaigning and fundraising purposes.

  • EU bodies to compare homelessness across Europe (e.g. FEANTSA Overview of Housing Exclusion in Europe).

  • If there are any substantial changes to the collection or publication of the Rough sleeping snapshot then these have to be considered by the Central Local Information Partnership Housing subgroup. CLIP enables the central and local government to work together to deliver an efficient, effective, minimally burdensome information infrastructure for policy development, implementation, service delivery, monitoring and reporting.

6.5 Devolved administration statistics

The devolved administrations publish their own statistics on homelessness which contain information on rough sleeping:

  • The Scottish Government publishes figures on the number of households applying to the local authority for assistance under homelessness legislation who say they have slept rough the previous night or have reported their housing situation as ‘long term roofless’.
  • The Welsh Government publishes management information on persons placed into temporary accommodation and rough sleepers.
  • The governing legislation for homelessness in Northern Ireland is the Housing (Northern Ireland) Order 1988 (as amended). Unlike the other three UK nations, housing is allocated by the Northern Ireland Housing Executive (NIHE), which covers the whole of Northern Ireland, rather than by local authorities. In Northern Ireland, statistics on homelessness are obtained from the NIHE. They carry out an annual street count in Belfast in partnership with other local agencies and homeless organisations.

Comparing between UK countries

The figures are not directly comparable between countries as they have a different methodology, coverage and are carried out at different time periods. ONS published a report and an interactive tool on the comparability and coherence of existing UK Government data sources on homelessness. ONS have also published a report on rough sleeping in the UK.

Pre-release access

The pre-release access list gives details about the officials who have 24 hours pre-release access to the Department’s rough sleeping statistics prior to publication.

The rough sleeping statistics do not provide a definitive number of people or households affected by homelessness in England. The term ‘homelessness’ is much broader than people sleeping rough. It is difficult to provide an accurate estimate of all homelessness across England. Data used to compile any estimate is collated from different datasets, which sample different subsets of the population over different time frames. Any estimate of homelessness in England will collate datasets that are not discrete from one another, which means some individuals may have been included more than once in the estimated total.

Statutory homelessness

MHCLG also collect and publish quarterly statistics on the broad characteristics and circumstances of households owed a statutory homelessness duty. This includes households who approach the council for help with housing who are sleeping rough. The Statutory Homelessness statistics includes some, but not all, of the people provided with accommodation in response to COVID-19 through the ‘Everyone In’ support. Not all individuals assisted through ‘Everyone In’ would have been owed a homelessness duty. Any individual not owed a homelessness duty would not be part of the local authority case level data submission to MHCLG and therefore would not be included in the Statutory Homelessness statistics. People sleeping rough will only be recorded in these statistics if they have made an application that has been accepted by the local authority.

Rough sleeping data framework management information

MHCLG also collects and publishes management information to better understand how far rough sleeping is prevented wherever possible, and where it does occur it is rare, brief, and non-recurring.

This management information provides more timely information about people sleeping rough but uses a similar collection approach to annual rough sleeping statistics, albeit without the greater verification of the annual statistics.

Management information for London boroughs is pre-populated via the Combined Homelessness and Information Network (CHAIN).

Alongside this year’s snapshot statistics, we are also publishing the latest quarterly update of Rough Sleeping Data Framework management information, up to December 2024.

Rough sleeping questionnaire

MHCLG published the initial report on the rough sleeping questionnaire (RSQ), which represents one of the largest survey data collections on people who sleep rough ever attempted in the UK. The report provides insights into the experiences of people who have slept rough, including their support needs and vulnerabilities, experiences of homelessness and use of public services, as well as an estimate of the fiscal cost associated with someone who sleeps rough.

Hidden homelessness

MHCLG produce other statistical releases that can help build up the wider homelessness picture. For example, the English Housing Survey publishes data on the number of people sofa surfing and concealed households in England, which are additional adults in a household who wanted to rent or buy but could not afford to do so.

Combined Homelessness and Information Network (CHAIN)

The Combined Homelessness and Information Network (CHAIN) is a multi-agency database recording information about people seen rough sleeping by outreach teams in London. CHAIN is managed by Homeless Link, a London-based homeless charity and is used by organisations working with people sleeping rough in London. Information is recorded onto the CHAIN database by people who work directly with people sleeping rough in London (e.g. workers in outreach teams, day centres, hostels and resettlement teams). CHAIN does not cover ‘hidden homeless’ groups, such as those who are squatting or staying in inaccessible locations to outreach workers.

The CHAIN data, which is published quarterly and annually, is not directly comparable to the single night snapshot estimates presented in this release. The CHAIN data most similar to the single night snapshot provides a total count of all individuals seen sleeping rough by outreach teams in London on at least one night during the October to December 2024 quarter. Whereas the MHCLG single night snapshot for autumn 2024 shows the number of people seen or thought to be sleeping rough on a single night between 1 October and 30 November 2024. The CHAIN database also records more detailed demographic information about people sleeping rough.

Although the CHAIN database provides more information about the flows and characteristics of people sleeping rough in London, MHCLG’s Rough sleeping snapshot provides a way of estimating the number of people sleeping rough on a single night and measuring change over time. CHAIN data quality is influenced by the number of outreach workers active on any one night. A local authority which does not have a commissioned outreach team may appear to have fewer rough sleepers than an adjacent borough which does have an active outreach service.

Data from the CHAIN database is used to pre-populate MHCLGs Rough sleeping data framework management information, which is collected monthly and published on quarterly basis.

Hostels and support services

Homeless Link publishes an Annual Review of Single Homelessness support, which includes information about the number of hostels and shelters in England and available bed spaces, as well as the support and services available to single people who become homeless in England.

8. User engagement and enquiries

8.1 User engagement   

MHCLG also holds quarterly rough sleeping data forums with local areas to consult on any changes regarding the monthly management information and keep areas up to date about new data requirements or improvements related to rough sleeping.

MHCLG is also part of the cross-government housing and homelessness group, which enables analysts across the devolved nations working on homelessness to collaborate and learn from each other. The Government Analysis Function provides the latest homelessness statistics work programme summarising the MHCLG initiatives, as well as those happening in the rest of the UK.

Users are encouraged to provide feedback on how these statistics are used and how well they meet user needs. Comments on any issues relating to this statistical release are welcomed and encouraged. Please contact roughsleepingstatistics@communities.gov.uk if you have any feedback or comments.

See the Ministry’s engagement strategy to meet the needs of statistics users.

8.2 Enquiries

Media

Telephone: 0303 444 1209

Email: newsdesk@communities.gov.uk

Statistical enquiries

Telephone: 0303 444 2623 or 2238

Email: roughsleepingstatistics@communities.gov.uk

Responsible Analysts: Jon White & Emma Boomaars

Information on Official Statistics is available via the UK Statistics Authority website.

Information about statistics at MHCLG is available via the Depatment’s website.

  1. Calculated using ONS mid-2023 population estimates. ↩

  2. Solace Women’s Aid (May 2024) Women’s Rough Sleeping Census 2023 report - https://www.solacewomensaid.org/wp-content/uploads/2024/05/FINAL-2023-WRSC-report-10-May-20241.pdf ↩ ↩2

  3. MHCLG (2019) Causes of homelessness and rough sleeping feasibility study - GOV.UK ↩

  4. Snapshot estimates for 2020 and 2021 were impacted by the range of measures introduced by the government to protect people during the COVID-19 pandemic. ↩ ↩2

  5. In 2023, the unitary authorities Cumberland, Westmorland and Furness, North Yorkshire, and Somerset were formed. The authorities that they are comprised of have been retired and their previous rough sleeping figures have been aggregated. ONS have a list of all restructures since 1995 ↩

  6. 2016 totals included an option for ‘Not known’ but not all local authorities were able to provide exact numbers of these ‘Not known’ responses. Therefore, this information is not comparable with later years. ↩

  7. Only approach changes from a “Count-based estimate” to “Evidence-based estimate” or “Evidence-based estimate” to a “Count-based estimate” were considered as a change in approach. “Evidence-based estimate” to “Evidence-based estimate including spotlight” (or vice versa) were not recognised as a change in approach. We did not routinely collect and report information about evidence-based estimates including spotlight counts before 2018 despite this approach being available - these were all classified as estimates. ↩

Back to top