Vulnerable people remain trapped in unsafe supported housing in England more than two years after landmark legislation was passed, amid growing warnings that delays are costing lives and damaging communities.
Campaigners say deaths are continuing in poorly regulated accommodation because the Supported Housing Act has still not been fully implemented, despite receiving royal assent over two years ago. The law, which applies to England and Wales, was intended to tackle widespread abuse within the so-called exempt supported housing sector.
Exempt accommodation allows landlords to claim higher housing benefit rates in exchange for providing support to vulnerable residents. However, critics say the system has been exploited by rogue providers who generate large profits while offering substandard housing and little or no meaningful support.
Supported housing is commonly used for people leaving prison, individuals with substance dependency, survivors of domestic abuse, and those living with mental health conditions who require help to live independently. Without proper regulation, placing highly vulnerable people together in unsuitable shared housing can worsen addiction, fuel violence and antisocial behaviour, and place further pressure on emergency services.
Although the government launched a consultation on new regulations earlier this year, it has yet to publish its response. Campaigners fear that full implementation could still be years away, leaving local authorities without clear national standards or enforcement powers.
Bob Blackman, the Conservative MP who introduced the legislation, has warned that the prolonged delay has left the sector in limbo. He said the absence of clear national regulation has allowed rogue landlords to expand rapidly while councils attempt to manage the problem independently. He urged ministers to accelerate implementation of the act, which would introduce minimum standards, licensing schemes and a national advisory panel to oversee supported housing.
Housing charity Crisis has reported serious conditions within exempt accommodation, including severe overcrowding, infestations, lack of basic facilities, and intimidation of residents who attempt to raise concerns. While the passage of the act prompted some poor providers to exit the sector, charities say vulnerable people remain exposed because the law’s powers have not yet taken effect.
In cities such as Birmingham, where there are an estimated 30,000 exempt accommodation places, entire residential areas have been transformed. Family homes have been converted into large house shares to maximise housing benefit income, often with little oversight. Five major providers dominate the local market, all of which have been judged non-compliant by the Regulator of Social Housing.
The human cost of inaction is becoming increasingly clear. Research by the Museum of Homelessness documented 36 deaths in exempt accommodation during 2024 across just 10 local authorities. Because most councils do not systematically collect this data, campaigners believe the true figure is significantly higher.
The lack of reliable data is itself a major concern. Without accurate records of how many exempt properties exist or who lives in them, local authorities struggle to identify risks or intervene effectively. Some councils have attempted to introduce local controls, but campaigners argue these measures are insufficient without a national regulatory framework.
Administrators overseeing a recently collapsed provider, Midland Livings CIC, reported serious incidents including intimidation of tenants, unlawful entry into properties, theft of household goods and diversion of funds. Security guards were reportedly employed to protect residents following repeated disturbances.
The Ministry of Housing, Communities and Local Government has acknowledged the pressures facing the sector, linking them to wider failures to build enough safe and affordable homes. The department said supported housing reform is a priority and confirmed that implementation of the Supported Housing Act is expected to begin next month. Ministers have also announced additional funding to support vulnerable residents and said new measures will ensure providers properly assess the mix of people housed in their properties.
Campaigners, however, warn that further delays could continue to place lives at risk and allow exploitation to persist within one of England’s most vulnerable housing sectors.
