Blackburn with Darwen Council’s approach to homelessness has been the subject of recent scrutiny, as the Local Authority highlights a claimed 47% reduction in rough sleeping since 2021. According to council figures, a snapshot taken in November 2021 counted 21 rough sleepers, compared to 11 in November 2024. This information is collected annually in early November, using a national standardised methodology approved by the Ministry of Housing, Communities and Local Government (MHCLG).
Email communication with the council offered valuable insights into the problem.
The definition counts only individuals sleeping or about to bed down in the open air or in places not designed for habitation, such as stairwells, sheds, or cars. People in hostels, shelters, or sofa surfing are excluded.
Rough sleeping counts and methodology
Blackburn with Darwen’s annual counts follow a ‘snapshot’ method, conducted each autumn some time between 1 October and 30 November. This can be either a physical count of visible rough sleepers or an evidence-based estimate drawing on intelligence from outreach teams, police, and local charities. The council emphasises that, while definitions and methods are consistent nationally, the snapshot captures only one night and may not reflect seasonal or hidden homelessness trends. Local intelligence and outreach capacity can also affect estimates.
Despite the Local Authority’s claim of a reduction, other sources suggest that rough sleeping in the borough may have been higher in recent years. Public reports show 23 rough sleepers in 2021/22, 72 in 2022/23, and 84 in 2023/24. Blackburn and Darwen Council maintains that these figures likely reflect total annual reports rather than a single-night count (email communication).
Who is sleeping rough in Blackburn?
The most recent data from October 2025, shared with us via email, shows 12 individuals sleeping rough on a typical night in the borough. On that one particular night when the count took place, eleven were male and one female. The age profile indicates the majority is between 36 and 45 years of age, with nobody under 25 or over 55.
The Local Authority reports that the circumstances leading to rough sleeping vary. Six individuals had recently exited hostel accommodation, two had moved from another local authority, one left the family home, another vacated private rented accommodation, one was released from prison, and one had ceased sofa surfing arrangements.
Substance misuse is a significant factor, with 29 of 32 individuals reported as rough sleeping in October (but not all on the same night) having notable issues, and 20 of them known to the police or probation services. Evictions from hostel accommodation, primarily due to breaches of house rules, are highlighted as a primary contributor.
Homelessness prevention and assistance
Between 2020 and 2025, the council states it helped prevent 3,146 households from becoming homeless, and 3,094 were assisted into alternative accommodation. ‘Homelessness prevention’ refers to early intervention strategies under the Homelessness Reduction Act, including rent arrears advice, relationship mediation, emergency payments, and support to access long-term housing.
‘Assisted’ households are those where relief duty was applied, helping people already homeless to secure accommodation.
The council highlights that relief duty measures focus on providing sustainable solutions for at least six months, including access to private rented housing, liaison with housing associations or supported housing, and financial assistance such as deposits.
Draft Homelessness and Rough Sleeping Strategy
Blackburn and Darwen Council is currently consulting on a new Homelessness and Rough Sleeping Strategy 2026 to 2031, which aims to maximise existing government funding and coordinate resources across statutory and voluntary services. No additional resources have been identified yet, but a strategic review of supported housing is ongoing to ensure it meets current and future needs.
The draft strategy notes a 108% increase in households contacting the Housing Needs team, attributed to legislative changes, welfare reforms, economic challenges, rising rents, and the freeze on Local Housing Allowance rates. The council has also established a lived experience group as part of co-production with the Homeless Partnership Forum to gather meaningful feedback on policy and practice.
Partner agencies and collaboration
Local charities and partner agencies play a crucial role in the borough’s homelessness response. They provide specialist support for mental health, substance misuse, domestic abuse, and youth homelessness, in addition to emergency and temporary accommodation. The council engages these organisations through Homelessness Partnership Forums, multi-agency strategic boards, and commissioning arrangements.
Blackburn and Darwen Council emphasises a person-centred approach, responding to each case individually while coordinating with partners such as Shelter, Stepping Stones Projects, Red Rose Recovery, the Salvation Army, Lancashire Police, and others.
Governance and accountability
The council’s governance structure ensures oversight from the Local Authority Executive Board, with operational delivery managed by the Head of Service (Housing Needs & Inclusion), reporting to senior leadership teams and elected members. Quarterly updates on delivery are provided to the Homelessness Partnership Forum, and the strategy is reviewed annually with performance dashboards linked to statutory indicators.
If progress stalls, issues can be escalated to leadership teams, scrutinised by the Overview & Scrutiny Committee, or referred to MHCLG for statutory compliance.
Key barriers to reducing rough sleeping
The council identifies three main barriers to reducing rough sleeping in the borough over the next five years:
- Availability of illegal substances in Blackburn with Darwen.
- Shortage of affordable single-person accommodation in the private rental sector.
- Lack of specialist housing for individuals with complex needs, particularly dual diagnoses of addiction and mental health issues.
The strategy sets out actions to address these issues through targeted interventions, supported housing, and partnership working.
Going forward
While the council’s snapshot shows a 47% reduction in rough sleeping since 2021, public sources and broader reports suggest higher numbers in recent years, highlighting the challenges of capturing the full scope of homelessness in Blackburn. Ongoing monitoring, co-production with lived experience groups, and strategic partnerships with local charities are central to the borough’s approach.
A quotable insight from the council response underlines the complexity of the issue:
The barriers to reducing rough sleeping are complex and multifaceted, with no single factor outweighing another.
Blackburn with Darwen’s approach combines statutory duties, partnership working, and targeted interventions, offering a structured framework to address rough sleeping. The borough faces challenges common across England, including substance misuse, housing shortages, and the need for specialist support. The Local Authority’s ongoing strategy and the public consultation aim to ensure that interventions are evidence-based, monitored, and responsive to local needs.
