Should the police have a role in preventing homelessness?

The cost-of-living crisis, fuelled by global political instability in the aftermath of Covid-19, has significantly increased the number of households in England facing statutory homelessness. Despite the Homelessness Reduction Act (2017) mandating local councils to assess and provide temporary accommodation, the limited availability of short-term housing forces many to live transiently on the streets, in hostels, shelters and makeshift dwellings.

The last government’s Rough Sleeping Strategy (2018) was designed to address crises like this by absorbing new flows of rough sleepers and transients. However, recent data reveals a year-on-year increase of 25 per cent (2021/22) and 27 per cent (2022/23) in these numbers. Critics argue that the effectiveness of the policy may have been overestimated and suggest that the complex needs of people who are rough sleeping require more than just funding mechanisms. The current initiative seems reactive rather than proactive, highlighting the need for comprehensive and sustained strategies to tackle rough sleeping effectively.

Why are the police so involved?

The last government's commitment to repealing the Vagrancy Act of 1824, which criminalises begging and rough sleeping, initially seemed like a step forward. However, homelessness advocacy groups are frustrated by proposals to replace it with legislation that might expand police powers and introduce more punitive measures against people who are rough sleeping. Despite agreeing in principle that begging and rough sleeping should not be criminalised, my research proposes that police involvement remains necessary.

• Recommendation: addressing serious crimes

There is a growing awareness of the links between begging, rough sleeping and serious crimes such as modern slavery, exploitation and fraud. Less severe crimes like petty theft, public obstruction, trespassing and illegal substance possession are also often associated with these activities. While the police can rely on other statutory powers to address these crimes, fully decriminalising begging and rough sleeping could hinder the detection and investigation of related criminal activities. This connection highlights the need for continued police involvement to effectively manage these ancillary issues.

• Recommendation: managing anti-social behaviour

Begging and rough sleeping are often correlated with anti-social behaviours, especially when they involve aggression or harassment, alarm or distress to the public. These terms can be subjective, making it easy to generalise all begging and rough sleeping as anti-social behaviour. Police records of such incidents often reflect this bias. For instance, laws under the Environmental Protection Act (1990) may affect people experiencing homelessness if their belongings or places of rest are deemed nuisances due to smells or noisy companion pets.

• Recommendation: combating care avoidance

Recent research indicates that many people experiencing street homelessness exhibit 'care avoidance,' shunning healthcare and housing support due to their complex needs. The previous government stated that outreach services are already at full capacity and that expanding police powers regarding begging and rough sleeping could help deter this avoidance behaviour. The idea is that increased police involvement might encourage people experiencing homelessness to engage with available support services more effectively.

How can outreach services guide the police to help homeless individuals?

I argue that the reliance on police enforcement to address issues related to homelessness must prioritise the vulnerability of homeless individuals during incidents. While the government acknowledged this in its review of the Vagrancy Act (1824), implementing these principles can be challenging for police who are trained to follow specific procedures. To improve responses, my research offers suggestions on how police can work more effectively with outreach services by focusing on the following strategies:

• Recommendation: creating multi-agency task forces

Police and outreach services should form multi-agency task forces where outreach services are the central points of engagement. Homeless individuals often face stigma and trust issues, making it crucial for outreach services to guide police interactions. Outreach services can present scenarios and best practices for engaging with people experiencing homelessness, especially when serious crimes are suspected. My research indicates that even situations resembling organised begging can be cultural rather than exploitative necessitating careful discernment.

• Recommendation: recognising vulnerability in public spaces

While maintaining public safety and order is essential, it is important to recognise that people experiencing homelessness lack the privileges of a private space. Outreach services can help police understand that those involved in anti-social behaviours or public disturbances are not inherently perpetrators but vulnerable individuals. Police must consider this vulnerability to ensure proportionality and accountability in their actions.

• Recommendation: understanding care avoidance

Care avoidance should not be seen as a choice that needs deterring. People exhibiting care avoidance live in a 'hegemonic' state— a complex social existence that they did not choose. Police and outreach services must collaborate to comprehend these nuances, going beyond merely directing individuals to services. Addressing complex needs requires a comprehensive approach to recovery, recognising the capabilities and freedoms of homeless individuals.

My research shows that by embracing these strategies, police and charities can join forces to offer a more empathic and effective lifeline to those experiencing homelessness.

Melissa Jogie is the Institutional Research Culture Lead at the University of Roehampton, a UKRI Policy Fellow (What Works Network), a British Academy Innovation Fellow and a Director of the Diversifying Leadership (Advance HE).