Severe Weather Emergency Protocol (SWEP) for rough sleepers

Introduction 

Rough sleeping is the most extreme and visible form of homelessness, yet many rough sleepers do not qualify under homelessness law as being eligible for assistance. This may be because they have run out of options for the types of accommodation we can offer. Regardless, during extreme weather, we will look to provide all individuals rough sleeping with shelter for the night.

Severe weather

We need to provide appropriate responses for people sleeping rough during severe weather, and especially in the winter months. Severe weather conditions are not just limited to the effects of cold, but can include high wind, heavy rain, snow, and heatwaves, which can all increase the risk of harm. It should never be assumed that people sleeping rough have become resilient to severe weather - if anything, the risk of harm and death from exposure is higher, as their health may already be suffering.

• Cold: Extreme cold can cause serious health problems and death for those who are exposed overnight or for lengthy periods of time. Historically, SWEP provision was triggered when the forecast was 0°C or below for three days. It is now best practice to take a common sense approach, where any forecast approaching zero is considered; the impact of rain, snow and wind chill are taken into account, and the 'feels like' temperature is checked, along with conditions underfoot (eg ice). There are benefits to offering support for temperatures that are above freezing but can be just as harmful, and for maintaining this support over longer periods.
• Wind: High winds can lead to an increased risk of injury through uprooted trees, falling walls, dislodged pieces of roofing and other debris. We consider the location of local rough sleeping sites and the potential for harm from gale force winds. This is a particular issue for rural areas where people are, for example, sleeping in tents.
• Rain: Heavy or sudden prolonged rain can lead to flooding and landslides. People sleeping under bridges, on riverbanks or near the sea, streams or canals may be particularly at risk, but there may be less obvious flood risks, for example from drains or gullies. Standing water, puddles and flooding may continue to be a risk after rainfall has stopped. As well as increased risk of drowning, being stuck in the rain and unable to change out of wet clothes/shoes afterwards can lead to a range of health problems. There is also an increased risk of loss or damage to belongings such as identification documents.
• Heatwaves: People sleeping rough may find it difficult to source drinking water and sun protection, increasing risks around dehydration, sunburn, and sunstroke. Needs are likely be more urgent during daylight hours, so a different approach to SWEP may be appropriate eg free water and sunscreen, cool daytime spaces, and links to healthcare.

The aim of the provision provided 

• to prevent loss of life
• to reduce rough sleeping to as near to zero as possible
• to engage with entrenched rough sleepers with a local connection who would normally be resistant to coming inside
• to engage rough sleepers who do not have a local connection with relocation services

Who can access SWEP

SWEP operates outside usual eligibility and entitlement frameworks that govern access to housing. It should be accessible to everyone, including those who may otherwise be excluded from services: people with no recourse to public funds, people who may have previously been banned, and those with no local connection. There will be some individuals who, due to risk, may be extremely difficult to place under SWEP. We will log all attempts to find these individuals somewhere safe to sleep.

Where possible we will work with partners to identify and target people known to be sleeping rough, as opposed to sofa surfing, where housing support is needed but there is not an immediate risk of harm as they are already indoors.

Activation and deactivation 

Local conditions such as wind chill, snow on the ground, severe rain, and flooding, along with other extreme weather conditions that may be predicted, will be taken into account when considering SWEP activation/deactivation.

Activation

It is activated if the Met Office tells our Civil Contingency Unit (CCU) that where will be weather at a minimum temperature of 0°C (or below) for three or more nights in a row. Our CCU will then pass the forecast on the relevant housing staff. Our Housing Manager for frontline homelessness is responsible for letting key partners know. All providers and partners are responsible for monitoring the weather conditions and preparing their services accordingly. 

Once the decision has been made to activate it, it will stay active until the following day's check. During this period, we will review the service daily.

If the weather forecast predicts severe weather at the weekend, it will be activated from the Friday before the severe weather begins. We will continue to monitor the weather over the weekend and bank holidays.

Deactivation

It is deactivated when a weather forecast predicts two or more consecutive nights of a temperature of 1°C or higher.

Communicating the SWEP

This web page will be updated if SWEP is activated or deactivated. An activation notification will be sent immediately to the relevant member of communications, to ensure it is communicated quickly.

SWEP provision

Durham Winter Night Shelter (DWNS)

This is usually hosted at Sanctuary 21 in Durham city centre. We will liaise directly with the DWNS each day to confirm arrangements and the predicted number of nights the shelter will be needed to be in operation.

• We will send through a list of those verified rough sleeping in the city centre and immediate surrounding areas, and those who we have strong reason to believe will have no alternative accommodation, to both Durham City Neighbourhood Police Team and DWNS for consideration.
• Any high risk or particularly disruptive individuals will not be referred to the shelter as it is a large communal set up staffed by volunteers. It is also a mixed gender provision which in some cases may not be suitable for certain people.
• Once the list of attendees has been agreed by all parties, we will notify our clients that they can attend the night shelter for the SWEP period.
• Following each night of SWEP, the DWNS will send through a list of who has attended the night shelter the previous evening.

Changing Lives

Changing Lives will offer a number of additional beds in their accommodations (The Northeastern and The Fells) which male rough sleepers will be able to access on the evening of SWEP until an agreed time the next morning.

Like with the DWNS provision, We will send an agreed list of attendees to Changing Lives in advance, and they will confirm who has attended each morning.

Cornerstones

Cornerstones, a supported accommodation provider, will also provide additional bedspaces, one of which is a stand-alone unit able to be accessed by a rough sleeper who has a pet.

We will send referrals to them.

Bed and breakfast accommodation

Bed and breakfast accommodation will be used if all other sources of accommodation are unavailable.

We will contact all bed and breakfast establishments within the County Durham area each day to establish what availability is. We will assess client suitability for this type of accommodation and and book individuals in where appropriate. We will ring any bed and breakfast establishment used the next morning to confirm that the client that was booked in turned up and stayed. If SWEP is still in place that day, we will make further bookings. 

Out of hours

Our Out of Hours service is notified when SWEP is in place and will be informed of all placements. If any further emergency calls come in overnight, they have the discretion to place people in any of the above provisions should there be available spaces. Clients will not be able to 'swap' provisions once their placement has been arranged.

Heatwaves

During extreme heatwaves, we will provide water and sunscreen to rough sleepers we know about. We will also make water and sunscreen available at our Customer Access Points.