Operating principles for night shelters
Source: gov.uk (2025-01-03)

Operating principles for commissioners and providers of night shelters for people experiencing rough sleeping.

Night Shelter Operating Principles 2024 Review

Who is this advice for

This advice is for all night shelter providers and front line staff and volunteers working in night shelters. It may also be useful for other individuals or organisations working with, or within, night shelters.

Introduction

This guide replaced the COVID-19 operating principles for night shelters, which was withdrawn in March 2022. This document is reviewed annually by the Rough Sleeping Delivery Team at MHCLG and this version was published in 2025.

It is intended to be used in conjunction with other broader guidance documents, including People with symptoms of a respiratory infection including COVID-19 (https://www.gov.uk/guidance/people-with-symptoms-of-a-respiratory-infection-including-covid-19) and Living safely with respiratory infections, including COVID-19 (https://www.gov.uk/guidance/living-safely-with-respiratory-infections-including-covid-19).The past 4 years have seen a wave of transformation in the way that non-commissioned services support rough sleepers. We have seen the positive impact of secure, single-room accommodation on how people feel about their time spent in emergency shelters and their chances of moving on to secure long-term accommodation.

There are extensive benefits of partnership working between non-commissioned services and local authorities. As we continue to move further beyond a national response to the COVID-19 pandemic, the way we support people sleeping rough will adapt further and community and faith groups will be a core part of this.

In July 2022, the government launched the £13 million Night Shelter Transformation Fund (https://www.gov.uk/government/publications/night-shelter-transformation-fund-round-2-prospectus/night-shelter-transformation-fund-prospectus), which made new funding available for non-commissioned night shelters and community projects to transform the way they support rough sleepers.

The Night Shelter Transformation Fund provides funding opportunities for non-commissioned community and faith groups to develop their provision for people sleeping rough. Funding has accelerated provision of single room accommodation. Additionally, it has supported developments in workforce training, setting up specialist support services, implementing befriending schemes and community reconnection work, and legal support.

The government maintains its position that providers of night shelters should prioritise providing single room accommodation options where possible.

However, we know that local circumstances may mean there are occasions where a provider decides to put in place communal models to prevent people sleeping rough, particularly in extreme weather, particularly after liaising with the local authority. It is important to liaise with the local authority to understand the wider picture of homelessness provision in the area and therefore have the greatest impact on protecting lives during cold weather.

People sleeping rough are more likely to be exposed to cold and more likely to experience significant effects from this exposure because of underlying health conditions. They are less able to take preventive measures to protect themselves. Night shelters offer key support in extreme weather.

The principles recommend that providers of night shelters with a communal sleeping model seek advice from their local Director of Public Health (DPH) (https://www.gov.uk/government/publications/role-of-the-director-of-public-health-in-local-authorities/directors-of-public-health-in-local-government-roles-responsibilities-and-context) prior to opening. Your local DPH and health protection team (https://www.gov.uk/health-protection-team) will be able to advise on reducing the risk of communicable diseases in shelter settings and community projects.

As a working principle, communal sleeping arrangements should only be considered where it is justified by levels of rough sleeping need and the lack of available single room accommodation.

Communal sleeping arrangements should be established in partnership with the local authority, with dialogue between the shelter and local authority on referral processes and ongoing support for guests. Considerations should be made that prioritise the health and wellbeing of those who access these provisions.

We hope that these principles offer a common starting place for all community and faith led organisations who are supporting people sleeping rough. The work that faith and non-commissioned organisations undertook during the pandemic and after continues to be commendable and materially contributes to lives saved.

This document has 4 main sections:
- Part 1: Maintaining public health principles in night shelters
- Part 2: Supporting individuals within your service
- Part 3: Engaging with local health services
- Part 4: Principles for maintaining a high-quality night shelter
We welcome feedback and suggestions on how these principles could be developed. If you have thoughts you would like to share, please email: xxx@xxx.xx (mailto:xxx@xxx.xx)

Part 1: Maintaining public health principles in night shelters

This guidance has been drafted with advice and input from the UK Health Security Agency (UKHSA). This guidance sets out advice on how night shelters can operate more safely, based on public health principles which can be applied to many public health risks, including respiratory infections.

Guidance is available for people with symptoms of a respiratory infection, including COVID-19 (https://www.gov.uk/guidance/living-safely-with-respiratory-infections-including-covid-19). We recognise that aspects of this advice such as self-isolation may be challenging within night shelters.

Putting principles into action

Due to their shared facilities and airspaces, night shelters can present higher levels of risk in the transmission of infections. We have learnt a great deal from the pandemic that can be applied when managing public health risks in homelessness settings. Many organisations will have incorporated these learnings into routine practice. The following guidance includes simple, applicable principles that help organisations stay in control of infection.

Where a night shelter has communal sleeping arrangements, the following actions are even more important to minimise spread of disease and protect service users from health risks linked to cold weather.

Strengthen services and facilities

In advance of cold weather, identify which buildings, rooms or services are at risk of cold temperatures or mould, and apply public health principles to manage potential health risks arising from this for service users.

During periods of adverse cold weather, consider adjusting provision of services, for example by extending opening hours for your shelter, to provide extra daytime protection.

Let fresh air in

Make sure you let plenty of fresh air into any shelters. You can do this by uncovering vents and opening doors and windows.

Good air circulation is important because when a person infected with a respiratory viral infection, such as COVID-19, speaks, coughs or sneezes, they release small particles that contain the virus which causes the infection. These particles can be breathed in by another person. The more fresh air that is brought inside, the quicker any airborne virus will be removed from the indoor space.

Limiting close contact if have you have symptoms of a respiratory infection

Staff, volunteers, and service users are advised to avoid contact with people they do not usually live with if they have symptoms of a respiratory infection and have a high temperature or do not feel well enough to carry out normal activities.

Staff and volunteers who have symptoms of a respiratory infection and a high temperature, or who do not feel well enough to carry out their normal activities, should be encouraged to stay at home until they no longer have a high temperature (if they had one) or they no longer feel unwell. This will help to reduce the risk of catching or spreading COVID-19 and other respiratory infections.

There is further advice available in the guidance for people with symptoms of a respiratory infection, including COVID-19 (https://www.gov.uk/guidance/living-safely-with-respiratory-infections-including-covid-19). There is also separate guidance available for the small number of people whose weakened immune systems (https://www.gov.uk/government/publications/covid-19-guidance-for-people-whose-immune-system-means-they-are-at-higher-risk/covid-19-guidance-for-people-whose-immune-system-means-they-are-at-higher-risk) means they are at higher risk of serious illness from COVID-19, despite vaccination.

Wash your hands

Service users, staff, and volunteers should wash their hands with soap and water or use hand sanitiser regularly throughout the day. Regular hand washing is an effective way to reduce the risk of catching illnesses.

Service users, staff, and volunteers should wash their hands:
- after coughing, sneezing or blowing their nose
- before they eat or handle food
- after touching surfaces used by many others, such as handles, handrails and light switches
- after using shared areas such as kitchens and bathrooms
- after arriving in a new setting from outside of the night shelter
Along with hand washing, providers should regularly clean their surroundings and encourage service users to cover their nose and mouth when coughing or sneezing.

Vaccination

We know that airborne viruses like COVID-19 and flu are more prevalent in winter. Vaccinations should be planned ahead of time to reduce risks to yourself and others.

Many individuals experiencing homelessness or rough sleeping are either themselves immunosuppressed or have a health condition which makes them vulnerable to infections, or they are regularly in close contact with someone who is at higher risk from infections.

In addition, people experiencing homelessness or sleeping rough may be eligible for a COVID-19 autumn vaccine and flu vaccine due to their age (65 years and over) or clinical condition (as laid out in the Immunisation Green Book’s chapters for COVID-19 (https://www.gov.uk/government/publications/covid-19-the-green-book-chapter-14a) and Influenza (https://www.gov.uk/government/publications/influenza-the-green-book-chapter-19)).

For operational expediency and in line with public health recommendations, wherever possible COVID-19 and flu vaccines should be administered at the same time. Providers should make every effort to support people to become fully vaccinated against COVID-19.

Where vaccination is outreached, and it is not feasible to assess eligibility (for example due to high levels of undiagnosed or unrecorded chronic disease), some vaccination teams may choose to offer vaccines as a universal offer to maximise coverage and uptake in eligible groups.

Find further information and guidance about supporting people to take up the vaccine (https://homeless.org.uk/knowledge-hub/supporting-covid-19-vaccine-access-toolkit/).

Find further information about eligibility for the COVID-19 vaccine and how to get the COVID-19 vaccine. (https://www.nhs.uk/conditions/covid-19/covid-19-vaccination/getting-a-covid-19-vaccine/)

Find further information about eligibility for the flu vaccine and how to get the flu vaccine. (https://www.nhs.uk/live-well/seasonal-health/keep-warm-keep-well/?wt.mc_id=flu_what_P&wt.tsrc=ppc&gclid=EAIaIQobChMIt_i84uq2ggMVSeTtCh24AwVbEAAYASAAEgLGb_D_BwE&gclsrc=aw.ds)

Part 2: Supporting individuals within your service

COVID-19 testing

There is detailed advice on outbreak testing, and on the management of people who have a positive test result, in the guidance on outbreaks in prisons, refuges and other higher-risk accommodation settings (https://www.gov.uk/guidance/covid-19-outbreaks-in-prisons-refuges-and-other-higher-risk-accommodation-settings).

COVID-19 lateral flow device (LFD) tests for testing during a suspected acute respiratory infection (ARI) outbreak are no longer available from UKHSA. During a suspected outbreak of acute respiratory infection, settings can contact their local health protection team (HPT) who may, as part of outbreak management, undertake a risk-based assessment to advise whether testing using polymerase chain reaction (PCR) is required.

People who are at higher risk of severe outcomes from COVID-19 may be eligible for COVID-19 treatments (https://www.nhs.uk/conditions/covid-19/treatments-for-covid-19/) if they become unwell. Individuals who are eligible for access to free LFD tests should have been made aware of eligibility for COVID-19 treatments by their doctor, specialist or will have received a letter before June 2023. People who are eligible for COVID-19 treatments and have symptoms of acute respiratory infection should take a LFD test immediately and follow the guidance for people who are eligible for COVID-19 treatments (https://www.nhs.uk/conditions/covid-19/treatments-for-covid-19/).

Under Regulation 4A of The Health Protection (Notification) Regulations 2010 (https://www.legislation.gov.uk/uksi/2010/659/regulation/4A?view=plain), settings are still required to report positive, negative and void LFD test results where they have assisted residents/ clients to take an LFD.

To support settings in being able to meet their Regulation 4A duty, the UKHSA multiple registration spreadsheet (https://www.gov.uk/government/publications/organisation-testing-registration-record-of-users) is available to report COVID-19 LFD test results and can be used to report results of LFD tests that have not been provided by UKHSA.

It is important to note that the registration of a positive COVID-19 LFD test result will not lead to a COVID-19 treatment being prescribed. To support residents and clients to access COVID-19 treatments, follow the guidance issued by the NHS (https://www.nhs.uk/conditions/covid-19/treatments-for-covid-19/).

Self-isolation

Staff and volunteers with symptoms of a respiratory infection, and who have a high temperature or do not feel well enough to go to work or carry out normal activities should try to stay at home and avoid contact with other people until they no longer have a high temperature (if they had one) or they no longer feel unwell.

If they have taken a COVID-19 test and it is positive they should try to stay at home and away from other people for 5 days after the day they took their test.

If possible, service users with symptoms of a respiratory infection should be provided with single room accommodation in the night shelter or alternative accommodation. Where is this not possible, individuals should be supported to keep their distance from other people and to wear a face mask while they have symptoms.

See further guidance for people with respiratory infection (https://www.gov.uk/guidance/people-with-symptoms-of-a-respiratory-infection-including-covid-19).

GP registration

It is important that service users in your care are encouraged and supported to register with a local GP. As well as increasing access to general healthcare, this will enable vaccination if eligible.

It is free to register with a GP in England. Patients wishing to register do not need to provide proof of identity, immigration status or address.

NHS guidance on how to register with a GP surgery (https://www.nhs.uk/NHSEngland/AboutNHSservices/doctors/Pages/NHSGPs.aspx) clearly outlines that a practice cannot refuse a patient because they do not have proof of address or immigration status.

Community and faith groups can support individuals to register with a GP by helping them to provide a form of identification, this is not essential, but it is helpful to do so. Guidance on registering with a GP as a homeless person (https://assets.nhs.uk/prod/documents/how-to-register-with-a-gp-homeless.pdf) (PDF, 352 KB)

Part 3: Engaging with local health services

Speak to your local Director of Public Health

A positive relationship with your local Director of Public Health (DPH) is beneficial to your organisation and the people you work with. Your local DPH is responsible for ensuring that public health is at the heart of their local authority’s agenda and will be able to provide expert advice to support staff, volunteers, and service users to stay healthy and protect them from threats to their health.

You can find your local DPH (https://wedph.adph.org.uk/publicdirectory/s/).

You can find out more about the role of a DPH (https://www.gov.uk/government/publications/role-of-the-director-of-public-health-in-local-authorities/directors-of-public-health-in-local-government-roles-responsibilities-and-context).

Keep up-to-date with the latest guidance on Gov.uk and report outbreaks

UKHSA is responsible for keeping the public protected from infectious diseases. They aim to detect outbreaks of infectious disease rapidly. One way that this work can be supported is by contacting your local Health Protection team (https://www.gov.uk/guidance/contacts-phe-health-protection-teams) if an incident or outbreak is suspected.

Advice on communicable diseases can also be sought from local Health Protection Teams (https://www.gov.uk/guidance/contacts-phe-health-protection-teams).

Part 4: Principles for maintaining a high-quality night shelter

Night shelters play a vital role in delivering support for people across England. Over recent years, we have seen the positive impact of secure, single-room accommodation on how people feel about their time spent in emergency shelters and the improved outcomes for moving on to secure long-term accommodation.

There is a wealth of good practice within the community and faith sector, and these further principles have been drawn up in consultation with the key nationwide sector networks, Housing Justice and Homeless Link.

Housing Justice’s Quality Assessment Framework (QAF) (https://housingjustice.org.uk/night-shelters/quality-assessment-framework) provide a unique service development tool designed specifically for non-commissioned, faith and community night shelters and emergency accommodation providers. As the only framework tailored to this part of the sector, the QAF is a tool to help organisations develop and enhance their services, ensuring they meet evolving best practices while supporting positive outcomes for guests, staff, and volunteers. This guidance is informed by best practice outlined in the QAF.

Focusing on outcomes

The service is time-limited emergency accommodation focused on helping people experiencing homelessness to long-term sustainable accommodation. This means:
- most service users will stay for a short time only
- the service has staff who do case-work with service users and support them through their stay and towards their onward move, building links with local service providers and the local authority
- the service operates on the principle that they do not want guests they helped this winter to have to use the service next winter
- the service consults with people with lived experience and develops the strengths and skills of the people it serves
- where possible, emergency accommodation is offered on a single-room, 24-hour accessible model
- safeguarding is prioritised within the service – more information on safeguarding (https://www.local.gov.uk/publications/adult-safeguarding-and-homelessness-briefing-positive-practice)
Strong governance

Strong governance is integral to delivering high quality and impactful services. You should aim to ensure:
- the service is well managed and has robust governance to oversee performance, strategy, and financial and risk management
- the service is innovative and inclusive and keeps its service users at the heart of its work
- the service is willing to play a role in the national networks such as Housing Justice and Homeless Link and be part of the conversation about the direction of the sector
Working in partnership

When working in partnership consider how the service:
- works closely in partnership with other local faith and community groups
- links service users in with local community based services
- links with local colleges, training and employment services
Local authority housing and homelessness services

A key relationship in every local authority is with local housing options and homelessness services. Regardless of whether or not you are commissioned by the local authority or not – shelters should work towards ensuring:
- the service works in close partnership with the local authority and other homelessness services and avoids unnecessary duplication or competition with other agencies
- the services play a demonstrable role in preventing and reducing rough sleeping in the local area
- the referral process is coordinated with the local authority and other agencies so that the night shelter plays a clear role in the local pathway for rough sleepers
- the arrangements for helping service users to find move-on accommodation users should also be similarly aligned so that as many people as possible have options of where to move to when they leave the shelter – this should include options for move-on where individuals are not eligible for homelessness assistance and welfare support
Local support agencies and statutory services

The following is a non-exhaustive list of local support agencies and statutory services that you should consider building partnership or close working relationships with to support the outcomes of people accessing your night shelter:
- GP and other local primary care services
- Local authority public health team
- Dentist, optician, podiatrist
- Homeless health inclusion services
- Mental health services
- Drug and alcohol services
- Registered immigration advice
- DWP and Job Centre Plus
- Prison and probation services
- Social care teams