Homes for Ukraine: framework for accommodation

The framework is part of our collection of guidance for local authorities. The framework sets out how people who arrive via the Welsh Government Super Sponsor route are accommodated upon arrival, dispersed across Wales and supported into longer-term accommodation.

The framework also provides the principles local authorities need to consider when supporting people from Ukraine into longer-term accommodation or where existing placements have broken down.

The framework applies to those arriving in Wales under:

1. the Welsh Government’s Super Sponsor route
2. the Homes for Ukraine scheme
3. The Ukraine Family visa scheme, which has now closed

The framework has been developed to provide key principles to help local authorities with the challenging process of balancing our commitment to the people from Ukraine and homeless households in temporary accommodation.

Wales strives to be a Nation of Sanctuary, and we are continuing to offer accommodation and support to individuals and families fleeing Ukraine in recognition of our common humanity and to provide stability at this very difficult time. We recognise the considerable pressures currently on housing capacity across Wales, with more people than ever in temporary accommodation who also need to move into permanent housing. We acknowledge that local authorities are navigating additional pressures caused by Home Office movement and accommodation of other sanctuary seekers in Wales.

At the beginning of the Homes for Ukraine scheme, initial accommodation sites were established across Wales to welcome large numbers of new arrivals. These sites have now closed due to the high rates of successful move-on and a substantial reduction of arrivals. The Welsh Government has adopted a revised strategy focused upon placing guests directly with hosts. If no host is available, short term welcome accommodation will be secured. 

People from Ukraine who have been granted a visa have up to 3 years’ leave to remain in the UK. Therefore, longer-term solutions should be sought for rehousing people from welcome accommodation or response host arrangements at the earliest opportunity. Longer-term solutions can include hosting arrangements, the private rented sector, transitional accommodation and in some cases social housing. Bed and Breakfasts, holiday rental accommodations such as Airbnb and hotel accommodation would not be considered a suitable longer-term solution. 

Ukrainian visa holders have a right to move and settle anywhere across the UK.

This framework provides a set of principles, within which we expect local authorities to operate. It is for local authorities to apply this within a local context, exercising professional judgement, consistent with existing legal and policy frameworks.

The key principles are:

• The Welsh Government is responsible for determining the fair and proportionate distribution of Super Sponsor guests to local authorities across Wales.
• Guests will only be accommodated in 75-day welcome accommodation if there is no host available to accommodate them. Local authorities who have guests in welcome accommodation or with response hosts in their area are responsible for supporting those guests to move on to longer-term accommodation.
• Local authorities are responsible for undertaking housing needs assessments (including affordability assessments) for all guests arriving in their area who need to be supported into longer-term accommodation. This will ensure guests can be supported to move on effectively. 
• Local authorities will be responsible for ensuring all hosts have been subject to necessary Disclosure and Barring Service (DBS) and local safeguarding checks and property inspections have taken place in all properties, as quickly as reasonably practicable.
• All local authorities are expected to proactively participate in the ‘Team Wales’ approach to support other local authorities. 
• Local authorities are responsible for all ensuring guests in welcome accommodation sign a Code of Conduct. 
• Where local authorities are unable to secure a move-on solution for a guest in their area they should work with other local authorities, agencies and organisations to find a move-on solution. Local authorities are responsible for ‘allocating’ housing to individuals and families where hosts or welcome accommodation breakdowns occur; when doing this, local authorities must be mindful of the needs of all populations in housing need in their area, particularly those in temporary accommodation.
• All appropriate longer-term move-on options should be considered for anyone whose initial placement (in welcome accommodation or with hosts) has ended or broken down, such as hosting, private rented sector accommodation, and social housing including transitional accommodation. 
• Local authorities will make it clear to guests that they must accept their offer of suitable offer of move accommodation.
• Individual housing preferences of guests may be taken into consideration, but it should be made clear to guests that there is no guarantee that preferences can be accommodated given housing pressures across Wales. It is important that guests understand the high demand for housing across Wales. 
• Local authorities will support guests to move on to longer-term accommodation at the earliest opportunity and prevent homelessness.
• Once people leave their hosts or welcome accommodation, the relevant local authority will be responsible for assessing any need for homelessness assistance in the same way as for other individuals eligible for housing and homelessness services.
• Local authorities should consider community cohesion when rehousing people, including consideration of the Public Sector Equality Duty and the Well-being of Future Generations (Wales) Act 2015

Key expectations

Local authorities hosting guests in welcome accommodation or have guests with a response host in their area are expected to:

• undertake a housing needs assessment, including an affordability assessment, of all guests residing in welcome accommodation or with a response host and work with those guests to identify move-on options within their area. Move-on to longer-term accommodation is a priority and discussions need to start with the guests at the earliest opportunity after they have arrived in Wales
• manage guests’ expectations around the importance of moving on to longer term accommodation as well as the local authorities’ capacity to meet housing preferences due to the significantly high demand for housing
• ensure host expressions of interest (EOI’s) are available for other local authorities to consider when looking to move on guests from accommodation or re-match guests to hosts

With regards to guests in welcome accommodation, local authorities are expected to:

• issue guests with a Code of Conduct as they enter welcome accommodation. See annex c for template
• implement the Offers of Accommodation Policy (see annex b for full policy)
• manage breaches to the Code of Conduct in line with the guidance of managing breaches (see annex c for details)

All local authorities are expected to proactively participate in the ‘Team Wales’ approach to support other local authorities with move-on from welcome accommodation, which would include identifying hosts, supporting with identifying and securing private rental properties or other accommodation (such as transitional accommodation) that help meet guests needs.  

Direct allocation to hosts

People arriving in Wales via the Super Sponsor route will be directly allocated to pre-vetted hosts prior to their arrival in the UK, unless there are no hosts available to accommodate them. The Wales Nation of Sanctuary National Advisory Service (National Advisory Service) will coordinate the direct allocation to hosts and the associated local authority. This will include conducting an initial housing needs assessment with people once a visa has been issued and in advance of them travelling to the UK. This will allow the National Advisory Service to identify any other requirements, for example, medical, educational, religious, special dietary requirements.

Direct allocation is likely to be to a host willing to accommodate guest(s) for a minimum of 6 months. We also have a number small number of hosts willing to accommodate new arrivals on a shorter-term hosting arrangement for up to 75 days. These are known as “response hosts”. The purpose of this 75-day period is to welcome guests and support them with everything they need to re-build their lives. During that time, the guests will receive help from their local authority to find suitable longer-term accommodation. This 75-day period aligns with the welcome accommodation period.

Local authorities are expected to work with the National Advisory Service to facilitate a direct allocation match to a host. This includes ensuring that host expression of interests and availability are continuously kept up to date. The National Advisory Service will periodically contact local authorities to ensure expressions of interests are being updated and made available. 

If a suitable host is not available, or a host arrangement is not appropriate due to specific complex housing requirements, or where individuals arriving from Ukraine are being reunited with their family, guests will be offered welcome accommodation provided by the Welsh Government.

If a host breakdown occurs within the initial 75 days of arrival and a host re-match is not possible, the Welsh Government will consider providing welcome accommodation. This will be considered on a case-by-case basis.

For further information relating to hosting arrangements and re-matching, see relevant sections in this framework. 

Guidance for local authorities on hosts arrangements.

Welcome accommodation 

In the event a host cannot be identified, welcome accommodation will be sourced through an agreed booking agent. Given the reduction in the number of new arrivals since the start of the scheme, welcome accommodation will be booked as individual units of accommodation rather than procuring whole facilities, which was required when the super sponsor route commenced. Welsh Government will fund 75 days of welcome accommodation.  

Households with particularly complex needs may require specific approaches and these will be considered on a case-by-case basis. However, in most cases new arrivals need to be supported to move-on within 75 days. Local authorities will be able to receive additional support from the NAS to help secure move-on accommodation where needed. 

The aim is to support all guests to move on to longer-term accommodation at the earliest opportunity and prevent homelessness. If a family needs to be supported through local homelessness services, the relevant local authority will be able to claim additional funding for each household that they support through temporary accommodation.  

Extending welcome accommodation past 75 days will only be possible in exceptional circumstances and only with agreement of Welsh Government. Local authorities will issue any requests directly to Welsh Government or via the National Advisory Service and will be considered by the Welsh Government on case-by-case basis.

Guidance on wrap-around support during the welcome period is available. 

Population share

Early in the Homes for Ukraine scheme, the Welsh Government and local authorities agreed a pan-Wales response with all local authorities committing to play their part in offering move-on accommodation fairly and proportionately to their circumstances. To facilitate this, a population-based formula was developed and agreed in May 2022 and updated in May 2023. More detailed information is available at annex a. 

This formula, known as ‘the population share', was used as a guide to the move-on of super sponsor arrivals from initial accommodation to local authorities across Wales. Now that all our initial accommodation sites have closed, we will use the population share progress data to determine where new arrivals should be placed. This means we will seek to avoid placing new arrivals in local authority areas that have met or exceeded their population share wherever possible. However, we will look to maximise response host availability which might mean direct allocation to an authority who has exceeded their population share. 

Additionally, it should be noted that some guests may have specific complex housing needs that might limit the areas we can place them in. case. In such cases, we will inform the relevant local authority and the National Advisory Service would be able to support move-on outside of that local authority area.

Move-on 

Local authorities will work with guests who are in welcome accommodation or with a response host in their respective areas to identify and capture any housing needs, along with other key information, which should also be considered when determining where to support people to move-on to. Other key information may include:

• family make up
• education requirements
• employment
• affordability

In making suitable offers of accommodation, every effort should be made to ensure that the property meets the family or individual’s specific needs. Whilst guests’ preferences for move-on accommodation may be considered, these are not the same as housing needs and it will not always be possible to accommodate them. For example, a preference from a guest might include a certain location or type of accommodation.

The local authority receiving the new arrival is expected to move the household on within their area to support a fair share of new arrivals across Wales and to support the guests to settle and integrate within the community. However, in line with our priority to support all guests into longer-term accommodation, move-on out of county should be explored if needed. Local authorities that have met their population share will not be expected to facilitate move-on in their area. The NAS will be able to provide move-on advice and support to local authorities with cross county moves. The NAS has pan-Wales oversight of population share progress and can ensure areas that have met their population can be avoided where possible. 

Housing needs, along with other key information, will need to be shared securely with other local authorities to support matching families to suitable longer-term accommodation if a cross-county move is needed.

Where suitable accommodation is secured out of county, local authorities will work collaboratively to support move-on.

All local authorities will receive an allocation of Wales’ share of the UK government’s Homeless Prevention Fund, which is intended to support move-on and to prevent homelessness. 

The Welsh Government’s Discretionary Assistance Fund (DAF) is intended to support local authorities to assist guests in welcome accommodation to move into longer-term accommodation. This might include support for guests securing or moving into private rented accommodation (both within and outside the local authority) such as providing the tenancy deposit and furnishing the property. 

The household should be given at least 1 week to move to their new home and sign appropriate paperwork relating to the type of home they have been offered. Where needed, the local authority should arrange for an interpreter to discuss information and advice to explain what they are agreeing to in the paperwork.

Local authorities may wish to consider involving relevant third sector organisations to support guests with securing and transitioning to longer-term accommodation.

Where a reasonable offer of move-on accommodation, based on housing needs, is rejected by a guest, the offers of accommodation policy should be applied (see annex b). The Code of Conduct clearly sets out all guests residing in welcome accommodation are required to cooperate with staff supporting them to find longer term accommodation. If guests fail to follow the Code of Conduct the local authority should refer to the guidance on managing breaches to the Code (see annex c).

Local authorities should make clear to guests staying with a response host that refusing a reasonable offer of move-on accommodation puts them at risk of not securing move-on accommodation when the 75 days with the response host comes to an end. Where a reasonable offer of move-on accommodation, is rejected by a guest staying with a response host, the local authority will explain the alternative housing support available to them.

Guidance on the funding streams available to local authorities to support Ukrainian people Wales. 

Offers of Move-on accommodation policy, including refusals 

Guests in welcome accommodation

To support and help guests move on to longer term accommodation and to align as far as possible with the support provided for other groups in housing, the Offers of accommodation policy applies to offers of move-on accommodation for guests in welcome accommodation. The policy sets out what constitutes a reasonable offer, taking into account family size, specific health needs, and reasons that accommodation could be refused or appealed against. 

If individuals/families in welcome accommodation refuse a reasonable offer of accommodation, the local authority will explain the alternative housing support available to the guests when their 75 days in welcome accommodation comes to an end.

The full policy is outlined in annex b.

Guests with response host

The principles and procedures for making an offer to a guest with a response host would be the same as those in welcome accommodation. However, a refusal of an offer cannot be treated as a breach to the Code of Conduct, as the Code does not apply to guests staying with hosts. 

Local authorities should make clear to guests staying with a response host that refusing a reasonable offer of move-on accommodation puts them at risk of not securing move-on accommodation when the 75 days with the response host comes to an end. Where a reasonable offer of move-on accommodation is rejected by a guest staying with a response host, the local authority will explain the alternative housing support available to them.

Local authorities are best placed to understand a household’s housing needs and make decisions on allocation of accommodation for people who are settling into their area from welcome accommodation, from other routes to Wales or where existing hosting arrangements have ended.

Local authorities should:

• maintain an up-to-date list of all properties available in their area for matching and record when a property match is made
• ensure host expressions of interest (EOI’s) are available for other local authorities to consider when looking to move on guests from accommodation or re-match guests to hosts
• ensure all private rented sector landlords offering accommodation have complied with the registrations and licensing requirements under Part 1 of the Housing (Wales) Act 2014
• establish with the landlord or agent if they will consider letting the property to people in temporary accommodation
• carry out property inspections on host accommodation
• carry out property inspections on welcome accommodation, if needed
• carry out Disclosure and Barring Service (DBS) and local safeguarding checks on household members before move-on to host accommodation
• all offers of accommodation should be matched to the person/family in the greatest housing need where people and property size matches

Hosting arrangements

The local authority is responsible for:

• carrying out property, DBS and local safeguarding checks on host accommodation
• ensuring that hosts understand that they cannot charge rent for the accommodation but that they should discuss and agree any expectation around financial contributions to household running costs with their guests
• providing assistance to hosts to claim the relevant ‘thank you’ payment

Homes for Ukraine guidance for hosts and sponsors includes full details regarding hosting arrangements and ‘thank you’ payments for hosts.

Re-matching

In circumstances where the local authority considers it necessary to find a new hosting arrangement for a person or family from Ukraine, this may be because:

• it is not viable for the Ukrainian guest(s) to stay where they are
• failed DBS, local safeguarding or accommodation checks
• the original period of hosting has come to an end and hosts are not able to extend these arrangements any further

Before guests can be re-matched to any host, local authorities should undertake relevant DBS, local safeguarding and accommodation checks in advance of move-in. Post move-in checks are necessary to ensure the safety and wellbeing of all parties.

For this reason, it is imperative that local authorities initiate the relevant checks to enable people and families to find settled accommodation with prospective hosts who have confirmed their interest in hosting a person or family from Ukraine. Homes for Ukraine guidance for hosts and sponsors includes full details of necessary safeguarding checks.

The guests from Ukraine should also be informed that checks need to take place before they move to the new accommodation and the local authority will contact them once completed. This may mean that temporary accommodation will need to be found during this period.

In some instances, the host and guest may have identified alternative hosts. In such situations the local authority should seek to determine who these new hosts will be and their address so that either appropriate DBS and local safeguarding checks can be carried out, or (if the new host resides in another local authority area) pass the case across to the other local authority to undertake the appropriate safeguarding and property checks.

If re-matching guests from Ukraine to a host who has previously sponsored on the Homes for Ukraine Scheme, local authorities will not be required to repeat the checks in advance if they do not judge them necessary.

If a sponsorship has broken down due to concerns over the quality of accommodation or safeguarding issues related to the host, that host should not be considered for re-matching. 

If a sponsorship has broken down due to safeguarding issues relating to the guest, the local authority should consider whether re-matching is appropriate. 

Properties that are let unfurnished or without suitable or adequate floor coverings

Information on furniture and floor covering options will be provided to the individual/family by the local authority offering the accommodation; this will include local furniture recycling and flooring charities and any public funds which they may be eligible to apply such as the Discretionary Assistance Fund.

Where people are offered a new home, there should be appropriate offers of support to help them adjust to life in Wales with support from the local authority teams or tenancy support to help with this transition. The Welsh Refugee Council has also been commissioned to work with local authorities and Ukrainian people to offer expert advice and support, and their services can be accessed as an additional resource where this is helpful for local authorities.

Where people present at homelessness services or are identified as requiring emergency accommodation, it remains the responsibility of the local authority to identify suitable accommodation in their area.

Whilst the responsibility for accommodating guests rests with local authorities, we are looking to increase the accommodation options available to local authorities.

Hosting Wales: expressions of interest (EOIs) from hosts

In response to the crisis in Ukraine, the Welsh Government established accommodation offers to assist local authorities to identify suitable hosts for Ukrainian guests and families who have come to Wales to seek sanctuary though the following:

• Homes for Ukraine:
  • individual sponsor route
  • Welsh Government Super Sponsor route
• Family Sponsor Scheme

We want to increase and retain the number of hosts across the whole of Wales, particularly in urban areas and from those able to accommodate larger families and pets. 

We want to maximise host opportunities. As part of the Welsh Government’s updated approach to supporting our Ukrainian guests, we have a small number of hosts willing to accommodate new arrivals on a shorter-term hosting arrangement for up to 75 days, known as a “response host”. These hosts will provide up to 75-days to enable guests to settle into Wales when the arrival and receive help from their local authority case work to find suitable longer-term accommodation.

For every expression of interest that could become a host offer, local authorities are expected to carry out property checks, DBS and local safeguarding checks as per current expectations for hosts. Read the Homes for Ukraine safeguarding and modern slavery guidance.

Local authorities should commence checks as soon as possible to ensure a pipeline of verified hosts that are ready to accommodate people as the need arises.

The data made available to local authorities regarding hosts can be used at local authority discretion, regardless of the sponsor scheme used for a visa application, to match people and families from Ukraine to a host in Wales. For example, hosts may be used to accommodate individuals or families who:

• having sought a visa through the Welsh Government Super Sponsor route, are being settled in the local area as they move on from welcome accommodation
• having sought a visa via the Homes for Ukraine Individual Sponsor route, are unable to remain with their original sponsor/host (described as ‘re- matching’)

Private rented sector

We encourage landlords with available properties to come forward directly to local authorities. Where the Welsh Government is made aware of available properties, we will share this information with the relevant local authority.  

Properties made available to the local authority in the private rented sector can be used for all those in housing need. Local authorities need to consider how these properties will be allocated to ensure parity of treatment across different groups in housing need.  This applies to properties made available through Leasing Scheme Wales.

Local authorities should establish that landlords have met registration and licensing requirements with Rent Smart Wales under Part 1 of the Housing (Wales) Act 2014, and ensure properties are allocated within suitability assessments.

Social housing and increases to stock

Local authorities and registered social landlords should continue to allocate housing based on their individual allocations policy. This should already include a focus on letting properties to households currently living in temporary accommodation across Wales in line with the Welsh Government Ending Homelessness Action Plan.

There are significant numbers of homeless people currently housed within temporary accommodation in Wales, with demand for social housing far outweighing supply, and with durations of placements in temporary accommodation increasing. Assessment of housing need must be a priority contributing factor in allocating social housing.

The Transitional Accommodation Capital Programme (TACP) Grant

The Welsh Government is working with local authorities and registered social landlords (RSLs) to increase the amount of social housing available in Wales by bringing properties back into use and by providing support for the development of high-quality housing.

The Transitional Accommodation Capital Programme (TACP) was launched to help facilitate this and is intended to support everyone in housing need. Under the terms of the funding, these properties may be let to all those in housing need, including Ukrainians in welcome accommodation under the Super Sponsor route. Accommodation funded through TACP can also be used to provide housing for Ukrainians who have entered Wales via other routes.

It is for local authorities to determine how additional homes delivered using TACP funding are used to support move-on from temporary accommodation based on their local needs and circumstances.

This additional housing supply is to provide support for anyone in housing need and local authorities should be mindful of community cohesion when determining use.

Part 2 of the Housing (Wales) Act 2014 outlines the statutory duty placed on local authorities to help people who are homeless or threatened with homelessness.

We recognise that local authorities have the local housing knowledge and are best placed to ensure housing need is met in their local area. The Home Office has made changes to the Immigration Rules to specify routes for Ukrainian people to settle in the UK via three principal Schemes:

• the Ukraine Family Scheme allows immediate and extended family members of British citizens, UK settled persons and others to come from Ukraine to, or stay in, the UK. This Scheme has now closed
• the Homes for Ukraine Sponsorship Scheme allows Ukrainian nationals and their immediate family to come to the UK where they have an approved sponsor who has agreed to provide accommodation. This includes those who come under the Welsh Government ‘Super Sponsor’ Scheme
• the Ukraine Extension Scheme allows Ukrainian nationals with their partners and children in the UK with permission on 18 March 2022 (including those who have overstayed by a short period) to stay in the UK

In order to provide immediate support for people initially arriving, or who were in Wales before the start of the war, ‘leave outside the rules’ was granted.

This gave households immediate access to benefits and services, including housing and homelessness assistance, without fulfilling the habitual residence test. The 3 Schemes, which regularise the ‘leave outside the rules’ arrangements, make successful applicants eligible for social housing and homelessness assistance as permitted by The Allocation of Housing and Homelessness (Eligibility) (Wales) (Amendment) Regulations 2022 which amended the 2014 Regulations to give these groups eligibility for homelessness assistance and social housing from 28 April 2022.

People arriving under any of the UK Government’s Ukraine visa schemes have the right to access housing and homelessness services in the same way as other people in Wales. As such, where people do not have access to housing, or their initial host placement breaks down or is deemed unsuitable, the responsibility for addressing their housing needs rests with the local authority.

As is the case with the UK Government, the Welsh Government is unable to play a direct role in accommodating people under the Family Visa Scheme or Homes for Ukraine Visa Scheme and regards any accommodation issues as matters to be resolved by local authorities.

Ultimately, the visa scheme that an individual applies under does not determine or limit the types of accommodation individuals can access or be moved onto.

There are however different types of financial support attached to different visas. Financial support for the various visa schemes is available at Homes for Ukraine funding.

Statutory homelessness duties

In the event of early sponsorship breakdown, Ukrainians on the Welsh Government Super Sponsor scheme are eligible to approach their local authority for a homelessness assessment. Local authorities may be able to end a homelessness prevention or relief duty by facilitating a rematch, provided the placement and accommodation are suitable and there is a reasonable prospect of it continuing to be available for at least 6 months. 

In the unfortunate event that a hosting relationship breaks down, people and families from Ukraine may present to local authorities for homelessness assistance. Where applicable a homelessness assessment must be undertaken, and local authorities must continue to consider their statutory homelessness duties in full, “which should take account of the individual circumstances of each household when assessing if an individual is homeless, and if so when considering if accommodation (temporary accommodation and/or longer-term settled accommodation) is appropriate” As statutory homelessness is the local authorities duty, they are encouraged to seek their own internal legal advice in scenarios where they require clarity on a point of law when taking such decisions.

In instances where individuals on the Welsh Government’s Super Sponsor route are made an offer of accommodation, but the individual or family choose to present as homeless to a local authority, it is still the local authority’s statutory duty to undertake a homelessness assessment to inform a legitimate decision. Usual consideration of eligibility, intentionality and local connection should be applied. 

The local authority should however explore and explain all options to the individual presenting, including detailing where existing offers of accommodation are deemed suitable. A refusal of an offer will be taken into account by the authority in their assessment and may have a detrimental impact on assessment outcomes. It should be noted that welcome accommodation does not establish local connection, and therefore guests may be eligible for assistance in a local authority other than that of their welcome accommodation.

Guests from Ukraine need support as they transition into their new homes in Wales, rebuild their lives and make a contribution to Welsh society. Local authorities need to assess the support needs of people from Ukraine being housed in their area and make links to support for the people moving to Wales and for people who are hosting. Guidance is regularly updated, we recommend checking the Welsh Government website for the latest advice and information related to helping and supporting people from Ukraine. Further guidance is available for local authorities on their roles in the delivery of the Homes for Ukraine scheme in Wales Homes for Ukraine guidance for local authorities.

Local authorities should give details of the Welsh Government’s Sanctuary website to all people from Ukraine as they arrive in Wales. The Sanctuary website provides information about their rights, life in Wales and where to find help. It is available in Ukrainian, Russian and other languages. 

Guidance of the funding streams available to local authorities to support Ukrainian people coming to Wales.

Contacting the Welsh Government and UK Government 

Welsh Government

General query email: Welsh Government’s Nation of Sanctuary team support@sanctuary.gov.wales  / cymorth@noddfa.llyw.cymru 

Safeguarding only email: Ukraine.Safeguarding@gov.wales.

UK Government

Local authorities can log in to JIRA via the portal. Alternatively call the telephone desk: 0303 444 4445.

Opening hours: 09:00 to 18:00 Monday to Friday except bank holidays.

In May 2022 all local authorities and the Welsh Government agreed the Homes for Ukraine Accommodation Framework. The Framework was established to set out how Ukrainians arriving via the Welsh Government Super Sponsor route are accommodated across Wales. 

Every local authority agreed to a proportional population share of Ukrainian arrivals under the Super Sponsor route that they would support into longer-erm accommodation as part of our Team Wales approach. This recognised the uneven distribution of initial accommodation across Wales and provided assurance to local authorities supporting initial accommodation in their area that they would not have responsibility for the longer-term accommodation of all Ukrainians via the Super Sponsor in initial accommodation. 

The figures in the table below give an estimated number of people each local authority was expected to support into longer term accommodation from the 3,000 people expected to come to Wales via the Super Sponsor route. This was intended to be an 18 month approach that set a framework for all local authorities to make progress towards supporting their population share into longer term accommodation.  

In consultation with local authorities, the population share was last updated in May 2023, and the allocation formula is a weighted formula based on a combination of:

• population of the local authority (55%)
• individuals under the individual Homes for Ukraine route already being supported in the local area (15%)
• number of homelessness in temporary accommodation in the local are (based on a 3 month average) (25%)
• the number of asylum seekers housed in the 4 main dispersal areas (Cardiff, Newport, Swansea and Wrexham) prior to the roll out of the Wales Asylum Dispersal Plan in September 2022 (5%)

Now that all our initial accommodation sites have closed, we will use population share progress data to determine where new arrivals should be placed and moved on to. The local authority receiving the new arrival is expected to move the household on within their area, where possible, to support a fair share of new arrivals across Wales and to support guests to settle and integrate within the community quickly. This means we will avoid placing new arrivals in local authority areas that have met or exceeded their population share. 

The formula has not been updated to reflect more recent data as the number of arrivals has remained low this year (2024).  We will continue to monitor and review if needed. 

Context

An offers of accommodation refusals policy was introduced on 9 January 2023, with the primary aim of increasing move-on from initial accommodation, whilst also supporting a consistent national approach and imposing consequences for refusing suitable offers of accommodation. In July 2023, the policy was further developed to introduce a charging framework for households that refused 2 or more suitable offers of accommodation. 

Due to high move-on rates and very few new arrivals in 2024, the Welsh Government was able to close the initial accommodation estate completely in July 2024. The approach for welcoming Ukrainian arrivals has now been revised and adapted to reflect the low number of new arrivals. The approach aims to support guests to live independently as soon as possible. If new arrivals cannot be accommodated with a host because there is not one available, the Welsh Government will provide welcome accommodation for up to 75 days. During this period, local authorities will provide targeted move-on support to maximise guests’ opportunity to find move-on accommodation by the end of the 75 days. 

Due to the time-restricted nature of welcome accommodation, the offers of accommodation refusals policy that was established for the initial accommodation approach is not suitable for the welcome accommodation approach. Therefore, that policy has been replaced with the offers of accommodation policy, including refusals, effective from November 2024.

The offers of accommodation policy (2024) forms part of a package of comprehensive support, for both local authorities and guests. The policy is applicable to offers of hosting arrangements, privately rented accommodation or other suitable accommodation (such as transitional accommodation). 

Aims

There are varying reasons households refuse accommodation offers. These are often complex, but generally include preferences for living in a specific location or the accommodation offer not meeting the household’s perceived needs. Often, guests do not understand the limited housing options available in Wales. It is important for local authorities to help guests understand the demand for housing in their respective areas. 

Refusal of suitable accommodation offers frustrates efforts to match guests to settled accommodation, putting pressure on local authorities and delaying the guest’s integration journey. The offers of accommodation policy (2024) aims to support move-on from welcome accommodation and encourage independent living at the earliest opportunity, by:

• preventing refusals of appropriate accommodation offers wherever possible
• providing comprehensive communications to ensure new arrivals understand the necessity for move-on accommodation

This policy is supported by the Code of Conduct for guests staying in welcome accommodation, by clearly setting out the requirements for guests to engage in the move-on process. 

Assessing housing need

Prior to matching families or individuals to accommodation, the local authority will talk to the household to gather all the necessary information about their circumstances. Local authorities should also ascertain language preferences to ensure accommodation offers can be presented in an accessible language. This will enable the local authority to make an appropriate offer of accommodation which meets the household’s needs. The matching process should take the following criteria into consideration.

Education:

• For households with children, accommodation will be sought within a reasonable distance of age-appropriate education facilities.
• Where the local authority is aware of the additional learning needs of a child, this will be taken into consideration when allocating accommodation.
• Enrolling children in school does not mean that the household will be able to stay in the exact same location longer-term. 

Health:

• The local authority will consider any known medical treatment needs, and accommodation provided will be within a reasonable distance of any necessary services.
• For specialist or ongoing medical treatment where continuity of care is important and has already begun, the local authority will accommodate the household as close to that provision as possible. However, for more complex, specialist treatment, this may require significant travel out of the area.
• The local authority will consider any reasonable adjustments required due to disabilities. 

Faith:

• The local authority will consider any faith practice needs and all households will be able to practice their faith if they wish to do so. In towns and cities, access to faith facilities may be in the form of a mosque, church or temple, however in more rural areas it may be via facilities such as Islamic centres, visiting imams, church groups or community gatherings.

Employment:

• When matching accommodation, the local authority will take into consideration the location of any paid employment that has already begun, or where there is a signed contract of paid employment in place. 
• Where one of the adults is in employment which requires them to attend a specific location to perform that role, and where the role cannot move to another location, the local authority will consider the impact of the proposed move and journey time on that employment and, where possible, seek to provide accommodation which is within a reasonable travel distance. This does not mean that being employed will guarantee a guest can stay in a particular area, or that employment would be classed a “good” reason for refusal.
• Households will be expected to meet the costs of any necessary travel to and from employment from their own funds.
• Speculative or unconfirmed offers of employment will not be taken into consideration for the purposes of matching accommodation.

Family links:

• The local authority will take close family connections into consideration when matching accommodation, as far as reasonably possible. 
• The local authority will seek to provide accommodation within the same local area, or close by, where there are existing caring and support arrangements in place for family members.

Large households:

• For larger households, where it is not possible to identify one affordable accommodation option large enough to accommodate all household members together, the local authority will consult with the household to consider whether, with their consent, the family can be accommodated across 2 separate properties. 
• The division of the family will consider the ages of household members, any caring needs or vulnerabilities and the personal preferences of the family. Properties offered will be in reasonable proximity to each other so that all household members can maintain close contact with each other.

Issuing an offer of accommodation

The process for issuing an offer of accommodation: 

• The local authority will engage with the family/individual to assess their housing need and make a suitable offer of accommodation. Although guests’ preferences for move-on accommodation cannot always be met, effort should be made to find a property that fits the household’s own criteria where possible. Local authorities will need to support guests and manage their expectations to ensure suitable offers are accepted. 
• The local authority will send the household a formal written offer letter by email with details of the accommodation being offered and some information about the area in which it is located. The letter will make clear that the guest is expected to accept the offer of move-on accommodation, in line with the code of conduct, unless they have a ‘good reason’ not to (detailed later in this policy) or they can evidence that they have secured their own move-on plans.
• The definition of a ‘suitable offer’ and what is a ‘good reason’ for refusal must be shared in communication with guests. The risks and possible consequences of refusing the offer without a good reason should also be made clear (the consequences are outlined under the Refusals subheading). The written offer may be provided in English and/or Welsh however a Ukrainian or Russian version should be provided if the guest requests it in a preferred language. When the offer has been made, the local authority should record this on the case notes for the household on the Ukraine Data Platform (UDP).
• The local authority will discuss the offer and provide the household with further information about the accommodation and the area, as required. For moves between local authorities, the receiving local authority may also contact the family/individual to provide further information about the property/area/support and encourage them to accept the offer. For hosted placement offers, it may be possible to arrange a call with the host family.
• The family/individual will be asked to reply to the formal offer within appropriate timescales determined by the local authority, advising of acceptance or rejection of the offer via email response. Where this is not possible, they can discuss with local authority support staff and sign an acceptance or refusal. The formal response should be recorded, including in the case notes for the household on the UDP.
• If the family/individual accepts the offer, the local authority will agree a move in date within 5 working days. Individuals/families should also be given a minimum of 5 working days’ notice prior to the move date.

Refusals:

• If the family/individual refuses the offer, the local authority will consider whether the reasons for refusal are reasonable and meet the criteria (see section below on What could be considered as a ‘good reason’ for refusal?).
• If the local authority accepts the reasons for refusal following a review (the Review process is detailed below), they will search for an alternative move-on offer, if there is still time to do so within the 75-day welcome accommodation period. It will be made clear to the guests that it may not be possible to find another move-on offer within the 75-day period. If it is not possible to secure move-on accommodation, the local authority will explain the alternative housing support available to the guests when their 75 days in welcome accommodation comes to an end. 
• If the local authority does not accept the grounds for refusal are ‘good reasons’, or the accommodation offer is ignored (i.e. no reply is received to the offer), this will breach the Code of Conduct and the local authority will follow the guidance on managing breaches (see annex c). Although the local authority will not be obliged to provide further move-on support to the household, supporting guests into move-on accommodation remains a priority. Local authorities will be expected to maximise use of the additional support available to them from the National Advisory Service or third sector agencies to secure move-on.
• Any decision to withdraw the welcome accommodation offer because of the breach should be a last resort and must be agreed by the Welsh Government. If a decision is made to withdraw the welcome accommodation, the local authority will explain the alternative housing support available to the guests when their time in welcome accommodation comes to an end.
• The local authority may claim £9,000 per household from the Welsh Government to supplement Local authority homelessness prevention funding if they need to provide temporary homelessness accommodation for a household. 

Review process:

• If a family or individual rejects an accommodation offer, the local authority will review the offer and consider their reasons for refusal. If it was a “good reason” to refuse the offer, then the offer will be discounted and will not be considered as an appropriate offer. This will be determined through the review process concluding that the offer was not in fact a suitable and appropriate offer. If the review finds the offer of accommodation was reasonable and suitable, the offer is upheld.
• The review process will be conducted by local authorities and will follow the same procedure as is applied to homelessness and social housing reviews and appeals. Guests will be entitled to request a review from the local authority relating to their refusal.
• If the review finds that the offer was appropriate, the household will be informed of this. Local authorities should ensure that families/individuals are given appropriate support to consider the consequences of a refusal. Following the outcome of the review, if the offer is found to be a suitable offer of accommodation, guests will be advised that they must either accept it or they will be at risk of breaching the code of conduct and be at risk of not being able to secure move-on accommodation. 

How is an ‘appropriate offer’ defined?

An appropriate accommodation offer will:  

• meet all relevant health and safety requirements and be in a good state of repair
• meet personal medical circumstances and ensure continuity in medical provision where necessary
• give consideration of religious needs and beliefs
• give consideration of specific educational needs

As part of an appropriate accommodation offer, the property offered will:

• be accessible. Where necessary, adaptations to the property will be made before the household move in to ensure that it is accessible for any residents with a known disability
• be available for a minimum of 6 months
• be affordable for the household, considering the financial resource available to them, including any government support for which they are eligible
• be of suitable size to accommodate all household members

As a minimum, the accommodation will meet the standards outlined in the Welsh housing quality standard with any newer accommodation adopting the Welsh Development Quality Requirements 2021 and Department for Work and Pensions ‘housing benefit rules’. Where accommodation has been delivered under the Transitional Accommodation Capital Funding programme then it will be expected to meet the associated standards.

What could be considered as a ‘good reason’ for refusal?

In exceptional circumstances, there may be good reasons for refusal of an ‘appropriate accommodation offer’. 

‘Good reasons’ will be assessed on a case-by-case basis but could include:

• where the accommodation is later deemed not to be an ‘appropriate accommodation offer’ as set out above, for example due to specific needs around education, health, faith, employment, close family or caring responsibilities
• where the family/individual has specific needs to be in a different area to access specialist medical or education support that is not available in or within a reasonable travelling distance to the offer area
• where a member of the family has care or support needs that are being met by close family members accommodated in a different area
• where a member of the family has the offer of paid employment as defined in the definition of an acceptable offer

Where there is a short-term barrier to the family moving, for example, a planned medical procedure, and the accommodation offer cannot wait for that to be completed. Being in employment may be considered a reasonable refusal if you could not travel to your employment in a reasonable time. This would be assessed on a case-by-case basis. 

The local authority is responsible for ensuring that all guests arriving in welcome accommodation in their area are presented with a Code of Conduct.  A template is provided below. Breaches to the Code of Conduct must be dealt with by local authorities in line with the guidance on managing breaches at annex d. 

Template Code of Conduct

We want all residents to feel welcome, comfortable and safe. We ask you to respect staff and other residents. Before arrival all guests are aware of the rules for welcome accommodation. If they enter welcome accommodation, it will be a temporary arrangement for up to 75 days. All guests must engage with the local authority to find longer-term housing arrangements. You must cooperate with staff supporting you to find longer-term accommodation. This includes following this code of conduct.

Failure to do so may result in withdrawal of your welcome accommodation offer. This means you may have to leave your accommodation. You must agree to this code of conduct if you want to stay in the welcome accommodation for the 75-day period. Thank you for your co-operation.

• I will engage with my local authority to find suitable longer-term accommodation, and in doing so:
  • be honest about my housing needs
  • be honest about my financial situation
  • provide information as requested, such as bank statements and other documents
• I will attend regular meetings with local authority case workers. This will enable them to undertake housing needs assessments and affordability assessments. They will also discuss my accommodation options.
• I will attend property viewings arranged for me.
• I will be respectful to landlords and hosts when viewing properties.
• I will accept the local authority’s offer of suitable move-on accommodation. The only time I can refuse a suitable offer is if I can evidence that I have secured my own move-on plans.
• I will be respectful and considerate to others. This includes case workers, accommodation staff and other residents.
• I will inform staff if I am staying away from the accommodation overnight. 
• I will only travel during my 75 days in welcome accommodation if the travel is essential. I will seek agreement from the local authority before making travel arrangements. Short absences are likely to be acceptable if travel plans do not impact on move-on plans. Extended absences will only be acceptable in exceptional circumstances. If the absence is not agreed but you still decide to travel, your offer of accommodation may end. If this happens, you may have to leave welcome accommodation.
• I will be considerate of other people’s personal space. I will respect people's personal boundaries even if they are different to my own. I will always ensure consent before I touch another person.
• I will not use any inappropriate and unwanted sexual language or behaviours.  
• I understand that sexual harassment and abuse are criminal offences. These are never acceptable.
• I will speak kindly to others, without aggression but with respect and consideration.
• I will ensure the children that I am responsible for are always supervised.
• I will not use physical punishment on children. This includes smacking, hitting, slapping and shaking. I understand that, in Wales, all types of physical punishment are illegal.
• If consuming alcohol at my accommodation, I will drink responsibly. I will ensure my behaviour is not disruptive or upsetting to other residents.
• I will not consume any illegal substances. If I am found with illegal substances the police will be called. I understand I may be arrested.
• I will not bring firearms, offensive weapons or fireworks into my accommodation. Firearms, offensive weapons or fireworks of any kind are not permitted.
• I will keep noise to a minimum, which does not disturb others, particularly between the hours of 23.00 and 8.00.
• I will familiarise myself with the accommodation provider rules. Any damage or injury caused by my household pets or children will be my responsibility.
• I will not allow unauthorised visitors to stay overnight in my accommodation.
• If my accommodation has a family with children, I will behave in a way that is considerate.
• I will not smoke or use e-cigarettes/vapes inside the accommodation.
• I will use designated areas to smoke or vape, or I will smoke off-site.
• I will ensure that cigarettes are extinguished and e-cigarettes/vapes are disposed of. I will dispose of them as advised on the packaging. If rechargeable, I will ensure it is charging in a safe place.
• I will keep any communal areas clean and tidy and keep my personal belongings in my room.
• I understand that I am responsible for my personal belongings. I understand liability will not be accepted for loss or damage to personal property.
• If applicable, I will lock my door when leaving my accommodation unattended.
• I will ensure that I know where my emergency fire assembly point is.
• I will report any maintenance or health and safety issues to responsible staff.
• I will not attempt to fix anything myself in my room or on site.
• I will dispose of waste properly in line with legal requirements and accommodation rules.

The Welsh Government and local authorities can remove the offer of welcome accommodation. This will occur if the Code of Conduct is breached, and the breach is considered to be severe or repeated. It will also occur if the guest refuses to agree the Code of Conduct when asked. For serious breaches we may involve the police. If laws have been broken, you may be prosecuted.

If you cause damage which need repair, cleaning or replacement, you may have to pay towards the costs. You may have to pay if caused by children or pets in your care. You may also have to pay if caused by unauthorised visitors.

Thank you for helping us to create a place of sanctuary for all Ukrainians arriving in Wales.

Signature of guest:

Name of guest:

This guidance and template Behaviour Agreement builds on the Code of Conduct for Ukrainian residents staying in welcome accommodation funded by the Welsh Government.

Before addressing challenging behaviour, it is crucial to ensure that all residents fully understand the Code of Conduct and their responsibilities. The local authority should take steps to communicate clearly and adapt their approach to meet individual needs, particularly for vulnerable residents, such as those with language barriers, learning disabilities, mental health issues or trauma. This may involve offering translations, simplified explanations, or one-to-one discussions to ensure understanding and accessibility. By ensuring effective communication upfront, many issues can be resolved or prevented before they escalate.

Once clear communication is established, the first port-of-call should be taking preventative measures. Identifying potential triggers for the behaviour through discussion with the individual and exploring possible resolutions may prevent further challenging behaviour. Whilst this may not always be feasible operationally, the following suggestions for mitigating unacceptable behaviour should be considered. Local authorities should keep a log of all actions taken to resolve the issue with the guest. 

De-escalation

In situations where challenging behaviour arises, applying de-escalation techniques can be crucial in diffusing tension and preventing escalation. Staff should give individuals the opportunity to express their concerns or frustrations to a neutral third party, such as the CALL helpline or other local service. You can use the infoengine site to find third sector offers in your area.

Trauma informed approach 

Forced displacement caused by war is a traumatic experience. A trauma-informed approach should be adopted by all staff in communicating with all residents, including those displaying difficult and unacceptable behaviours. You can find resources at Trauma-Informed Wales. Introductory training is available at Youtube. 

Acceptable behaviour agreement

In cases where preventative measures have not been successful in resolving poor behaviour, a formal “Acceptable Behaviour Agreement” should be discussed and agreed with and signed by the guest. The template sets out a formal agreement between the resident and the local authority including specific behaviour requirements and the consequences of not meeting these. The template can be tailored to include an additional specific behaviour if it is not already included in the template where this is an issue with an individual, if agreed by the Welsh Government. 

The offer of welcome accommodation can be withdrawn at any time if the Code of Conduct or Acceptable Behaviour Agreement are breached, or the guest refuses to agree the Code of Conduct or Acceptable Behaviour Agreement when asked. If guests refuse to sign the Acceptable Behaviour Agreement, it is still considered that the guest would have been made aware of the expectations surrounding their behaviour. Local authorities should remind guests that the offer of welcome accommodation can be withdrawn at any time if a guest refuses to agree the Code of Conduct or Acceptable Behaviour Agreement when asked.

Depending on the type and/or severity of the Code or Agreement breach it may be necessary to inform the police. It will be necessary if it is suspected a crime has been committed. 

If the breach of the Code is resulting in another resident or staff member feeling unsafe, and there are reasonable grounds to suggest that safety may be at risk, the resident should be removed from the accommodation as soon as possible. 

Prior to the withdrawal of welcome accommodation, a discussion should be held with Welsh Government colleagues regarding the individual circumstances and the actions taken by the local authority to address the behaviour. The Welsh Government will normally agree with the decision of the local authority if sufficient documentary evidence is provided to demonstrate the reasonableness of this decision. Following this discussion, the local authority should inform the individual of the decision of the authority in writing within five working days and signpost information to seek further housing assistance. Any decisions and next steps should be recorded as a case note for the household on the UDP. 

Download the template.