NOVAS Position on the Housing and Residential Tenancies (Miscellaneous Provisions) Bill

NOVAS has significant concerns about provisions contained in the Housing and Residential Tenancies (Miscellaneous Provisions) Bill that could fundamentally change access to emergency homeless accommodation in Ireland and have serious consequences for some of the most vulnerable people in our society. 

We are concerned that proposals to introduce statutory eligibility criteria for emergency homeless services, alongside expanded powers to withdraw emergency accommodation, risk undermining recent advances through the Homeless Family and Child Action Plan and the Prevention Framework. 

Emergency accommodation is distinct from longer term housing supports. It is an immediate humanitarian intervention designed to protect life, health and dignity during periods of acute crisis. NOVAS believes that access to emergency shelter should remain available to anyone facing an immediate housing emergency while eligibility is being assessed. 

We are particularly concerned that requiring people to satisfy the Habitual Residence Condition before accessing emergency accommodation could create significant barriers for those in crisis, including people fleeing domestic abuse, leaving institutional settings, or experiencing serious mental health difficulties. Many individuals simply will not have the documentation needed to establish residency when they urgently require shelter. 

We are also concerned that the proposed measures could affect entire households where one family member does not satisfy the residency requirements, potentially impacting children and disproportionately affecting groups already at greater risk of homelessness, including survivors of domestic abuse, victims of human trafficking, members of the Traveller and Roma communities, people with insecure immigration status, and those experiencing extreme poverty. 

The proposed “safety net” of discretionary night-by-night accommodation also raises important concerns. We believe emergency accommodation should provide stability and safety rather than creating uncertainty or increasing the risk of rough sleeping. 

NOVAS is calling for stronger statutory safeguards, including: 

  • Emergency accommodation remaining available while eligibility is being determined. 
  • A statutory right of appeal for all decisions relating to emergency accommodation, including refusals of access. 
  • Fair and transparent decision-making, supported by documented risk assessments. 
  • Greater accountability through monitoring and reporting on how these powers are used. 

These proposals represent one of the most significant reforms of homelessness legislation in many years. Given their potential impact, NOVAS believes they require robust safeguards and continued engagement with the homelessness sector to ensure that the legislation achieves its objectives while protecting those most at risk. 

NOVAS remains committed to working constructively with Government and stakeholders to ensure that no one experiencing a housing crisis is left without access to safe emergency accommodation. 

 

May 2026: Latest Figures Show Crisis Continues Despite Increase in Exits from Homelessness 

The Department of Housing’s latest figures for May 2026 show that 17,447 people are currently experiencing homelessness. This marks a decrease of 101 people compared with the previous month. However, the overall trend remains deeply concerning, with homelessness increasing by 1,700 people since May 2025. 

Of the 11,864 adults experiencing homelessness, 59.3% were men and 40.7% were women, while people aged 25–44 accounted for 52.3% of the total. These figures reinforce NOVAS’ longstanding concern that single adults seeking one-bedroom accommodation remain among the groups most affected by the housing crisis and continue to face significant barriers to accessing suitable housing. 

The number of children experiencing homelessness now stands at 5,583. While this represents a slight decrease of 21 children compared with the previous month, it is still 15.3% higher than in May 2025. 

Family homelessness continues to increase amid a persistent shortage of suitable long-term housing, particularly for larger families. As a result, many families are spending extended periods in emergency accommodation due to the limited availability of affordable and appropriate homes. 

NOVAS welcomes the increase in exits from homelessness during May, which has contributed to the slight decline in the overall number of people experiencing homelessness. While this is an encouraging development, we remain cautiously optimistic and hope it marks the beginning of a sustained downward trend in the months ahead. 

Increasing exits from homelessness requires increasing the supply of housing. This means building the right types of homes in the right locations and ensuring that new social housing is allocated in a way that supports people who have spent long periods in emergency accommodation. By linking the delivery of new public housing to homelessness pathways, more people can move into secure, permanent homes more quickly, reducing long-term reliance on emergency accommodation and preventing people from becoming trapped in homelessness. 

Homelessness has continued to rise since the lifting of the eviction moratorium in 2023. Ongoing pressures in the private rental market, combined with changes to tenant protections, continue to leave many households vulnerable to housing insecurity. In the first quarter of 2026, there was a significant increase in notices of termination, placing further strain on an already overstretched housing system. 

These latest figures underline the scale and urgency of Ireland’s housing and homelessness crisis, as the gap between housing need and available supply continues to widen. Behind every statistic are individuals, couples, and families experiencing instability, uncertainty, and the harmful effects of prolonged homelessness. 

NOVAS reiterates the urgent need for sustained and coordinated action to increase the supply of social and affordable housing, strengthen homelessness prevention measures and tenant protections, and expand access to appropriate long-term housing and support services. A whole-of-government response, backed by adequate investment and resources, is essential to prevent further increases in homelessness and ensure that everyone has access to safe, secure, and dignified housing. 

NOVAS remains committed to working alongside statutory partners, local authorities, and communities to address rising homelessness and deliver housing and support solutions that promote dignity, stability, and independence for those experiencing homelessness.  

May 2026 Monthly Homeless Stats 

Total Homeless Population:  17,447 

Total number of adults:  11,864 

Single adults: 7,346 

Adults aged 25 – 44: 6,204 (52.3%) 

Families: 2,684 

Single parent families: 1,532 (57.1%) 

Children (under 18): 5,583 

Adult gender breakdown:  

Male: 59.3% 

Female: 40.7%  

17,548 People Experiencing Homelessness in April 2026 

The Department of Housing’s latest figures for April 2026 show that 17,548 people are currently experiencing homelessness. This represents an increase of 31 people compared to the previous month and 1,937 more people than in April 2025. 

Of the 11,944 adults experiencing homelessness, 59.5% were men and 40.5% were women, while people aged 25–44 accounted for 52.4% of the overall total. These figures continue to reflect NOVAS’ concern that single adults seeking one-bedroom accommodation remain among the largest cohorts impacted by the housing crisis and continue to face significant barriers in accessing suitable housing. 

The number of children experiencing homelessness now stands at 5,604. This is an increase of 33 children compared to the previous month and represents a 17.4% increase since April 2025. 

Family homelessness continues to rise against a backdrop of insufficient supply of appropriate long-term housing options, particularly for larger families. Many families are spending prolonged periods in emergency accommodation due to the lack of available and affordable homes. 

Homelessness figures have continued on an upward trajectory since the lifting of the eviction moratorium in 2023, while ongoing pressures within the private rental market and changes affecting tenant protections continue to place many households at risk. In the first quarter of 2026, eviction notices increased significantly, adding further pressure to an already strained housing system. 

These latest figures underline the depth of Ireland’s housing and homelessness crisis and the widening gap between housing need and available supply. Behind every statistic are individuals, couples, and families experiencing instability, uncertainty, and the damaging impacts of prolonged homelessness. 

NOVAS reiterates the urgent need for sustained action to increase the supply of social and affordable housing, strengthen prevention measures and tenant protections, and expand access to appropriate long-term housing and support services. A coordinated and adequately resourced response across government departments and agencies is essential to prevent further increases in homelessness and ensure that everyone has access to safe, secure, and dignified housing. 

NOVAS remains committed to working with statutory partners and local communities to address rising homelessness and to deliver housing and support solutions that promote dignity, stability, and independence for people experiencing homelessness. 

 

January 2026: Homelessness Surpasses 17,000 for the First Time in State History

The Department of Housing’s latest figures for January 2026 show that 17,112 people are currently without a home, an increase of 378 from the previous month and 1,826 more people than in January 2025. 

Family homelessness has also risen, with 2,555 families now in emergency accommodation—an increase of 77 from last month and 391 more than this time last year. Over 5,319 children were without a home this Christmas, an increase of 131 from last month and 716 compared with last year. 

The decline observed last month was largely due to temporary seasonal effects; however, the recently published January 2026 homelessness data presents a worrying start to the year, with figures surpassing 17,000 for the first time. This highlights growing pressure on the system and underscores the continuing challenges in addressing homelessness. The increase suggests that sustained action and targeted interventions are required to help reverse the upward trend and support those affected. 

The statistics capture only those using state-funded emergency accommodation. Rough sleepers, people in squats, domestic violence refuges, situations of hidden homelessness, and individuals seeking international protection are not included in these totals. 

NOVAS is committed to working with statutory partners to combat rising homelessness and to deliver housing and support solutions that restore dignity, stability, and independence for people experiencing homelessness. 

Key Statistics: Janurary 2026 

Total Homeless Population: 17,112 

Total number of adults:  11,793 

Families: 2,555 

Single parent families: 1,442 (56.4%) 

Children (under 18): 5,319 

 Adult gender breakdown:  

Male: 7,103 (60.2%) 

Female: 4,690 (39.8% 

Ireland’s Year of Rising Homelessness: December 2025 Figures

Homelessness in Ireland continued to rise throughout 2025, reaching record levels and placing mounting pressure on national and local support services. For the sixth consecutive month, more than 16,000 people have relied on emergency accommodation, highlighting the persistence and severity of the crisis. Notably, over 5,000 of those affected are children, underscoring the significant social and developmental risks associated with prolonged housing instability. 

The Department of Housing’s latest figures for December 2025 show that 16,734 people are currently without a home, a decrease of 262 from the previous month but 1,870 more than in December 2024. Family homelessness has also increased, with 2,092 families now in emergency accommodation, down 47 from last month but 386 higher than this time last year. Over 5,188 children were without a home this Christmas, a decrease of 133 from last month but an increase of 678 compared with last year. 

While we welcome the fact that this month’s figures have declined, we note that this is a common feature of homelessness statistics during the Christmas period, when many people stay with family or friends. We will have to wait for the January figures to see whether this is an indication of a further decline or merely a temporary seasonal effect. 

These numbers are devastating. The ongoing crisis emphasises the urgent need for long-term housing solutions and sustained investment in social supports. The recent CSO completion figures for 2026 revealed more than 36,000 homes last year. This is a very welcome increase from previous years. Significant further increases are required in the next five years to address the crisis and provide stable housing for thousands of households that are currently experiencing homelessness. 

The statistics capture only those using state-funded emergency accommodation. Rough sleepers, people in squats, domestic violence refuges, or situations of hidden homelessness, as well as individuals seeking International Protection, are not included in these totals. 

NOVAS is committed to combating the rising levels of homelessness with our statutory partners, to deliver housing and support solutions that restore dignity, stability and independence for people experiencing homelessness. 

Key Statistics: December 2025 

Total Homeless Population: 16,734 

Total number of adults:  11,546

Single adults: 7,311 (63.3%)

Young adults (18-24): 2,017 (17.5%) 

Families: 2,478 

Single parent families: 1,395 (56.3%) 

Children (under 18): 5,188 

 Adult gender breakdown:  

Male: 6,963 (60.3%) 

Female: 4,583 (39.7%) 

 

NOVAS Launches New Street Outreach Mobile Unit to Support Limerick

Earlier this month, we were thrilled to launch our new Street Outreach mobile unit, which is now fully in service, thanks to the generous donations of people across Limerick city and county. We were delighted to be joined by clients and volunteers to mark this important milestone. 

Our Street Outreach mobile unit provides hot meals, sleeping bags, toiletries, basic first aid to people experiencing homelessness, rough sleeping and poverty across the city. With this new vehicle, we will now operate 365 days a year, offering vital and consistent support to those who need it most. 

NOVAS Street Outreach Van side

Last year alone, our outreach service provided more than 32,000 hot meals to people in need. As demand for our services continues to grow, the new van allows us to respond more effectively and comfortably, ensuring that no one is left without support. 

Recent research carried out by NOVAS in collaboration with University of Limerick sociology student Jack Matthew Copley found that over 80% of our clients use the service daily or several times a week. This highlights just how essential the Street Outreach Van is to the people who rely on it. 

NOVAS Street Outreach Van Interior

Run by our dedicated volunteers and supported by NOVAS staff, the service offers more than practical assistance. It provides a consistent point of connection, dignity, and compassion for people who may feel isolated or forgotten. 

Last year’s fundraising campaign was a great success and made this new van possible We would like to sincerely thank the people of Limerick for their continued generosity and support. Thanks to the public, local businesses, and the wider community. 

Together, we are continuing our commitment to supporting Limerick’s homeless community with care, respect, and compassion. 

NOVAS welcomes the new housing strategy but urges immediate action to address the crisis

NOVAS welcomes the Government’s 2025–2030 Housing Plan and its renewed focus on addressing homelessness, while emphasising that sustained action on the ground will be essential to deliver on its ambitions. The commitment to ending homelessness in Ireland by 2030 is significant, but it will require unwavering political will, consistent investment and clear accountability throughout the lifetime of the plan.

We particularly welcome the prioritisation of increased supply of one-bedroom homes for single adults and four-bedroom homes for larger families—two groups that make up a substantial proportion of the people NOVAS supports every day. Addressing their specific needs is critical to reducing the pressure on emergency services and ensuring people can access appropriate, long-term housing.

The plan’s pledge to deliver at least 300,000 new homes by 2030, including 72,000 social homes, is the minimum necessary to meet existing and emerging need. While this commitment is positive, the absence of annual delivery targets is a cause for concern. Without clear year-on-year benchmarks, it will be difficult to measure progress and maintain the momentum required to achieve the plan’s goals.

We also welcome the commitment to develop a cross-departmental, multi-agency Child and Family Homelessness Action Plan, informed by the UN Convention on the Rights of the Child. This long-overdue recognition of the distinct needs of children and families marks an important shift in national policy. The dedicated €100 million fund in 2026 to support families and children exiting long-term homelessness is a crucial and timely intervention.

NOVAS reaffirms its commitment to working alongside Government, local authorities, and partner organisations to deliver housing and support solutions that restore dignity, stability, and independence to people experiencing homelessness.

Homelessness in Ireland Continues to Reach New Highs

Homelessness in Ireland continues to reach unprecedented levels in 2025, with more than 16,000 people in emergency accommodation for three consecutive months. Among them are over 5,000 children, a stark reflection of the worsening crisis in housing availability and affordability.

According to the Department of Housing’s latest report, 16,614 people are now without a home, an increase of 261 since last month and 1,854 more than in September 2024. The number of families experiencing homelessness has also risen, reaching 2,443, up 46 from last month and 310 higher than this time last year.

The ongoing limitations of the tenant-in-situ scheme continue to drive these increases, leaving many families vulnerable. With no sign of relief, immediate and decisive government intervention is urgently needed.

The data only includes individuals accessing state funded emergency homeless accommodation across Ireland. People who are rough sleeping, living in squats, living in domestic violence refuges or those who are hidden homeless are not included in the figures. People who seek International Protection are also not captured in this data. 

As we await the release of the new housing strategy, it is vital that it provides the clarity, direction, and commitment required to work collectively toward ending this crisis.

September 2025 Key Statistics:

Total homeless population:  16,614 

Number of Adults: 11,376 

(of which) Single adults:  7,238 (64%) 

Young adults: 1,974 (17.3%) 

Number of families: 2,443 

(of which) single parent families: 1,400 (57%) 

Children (under 18): 5,238 

Gender Breakdown (Adults) 

Male: 6,815 (60%) 

Female: 4,561 (40%) 

NOVAS welcomes increased social housing investment but warns of a worrying silence on homelessness

NOVAS today welcomes several measures in Budget 2026 that have potential to ease housing pressures but warns that much more is needed if the Government is serious about achieving its stated goal of ending homelessness in Ireland by 2030.

The commitment in Budget 2026 to accelerate the delivery of social housing, supported by a major increase in capital investment, is strongly welcomed by NOVAS. The budget, announced by Ministers Paschal Donohoe and Jack Chambers, allocates €19.1 billion for housing and infrastructure next year; an increase of €2 billion on 2025. Of this, €2.9 billion is earmarked for social housing development and acquisition. NOVAS describes these as positive and necessary steps to address Ireland’s housing deficit.

However, the organisation expressed deep disappointment at the absence of any measures specifically focused on homelessness — either through prevention or protection for the thousands of people currently without a home or at imminent risk.

“The word homelessness was scarcely mentioned throughout the budget speeches,” said Una Burns, Head of Advocacy and Communications at NOVAS. “This is deeply disappointing given the scale of the crisis and its impact on thousands of households across Ireland.”

Ms Burns added that NOVAS had submitted a range of recommendations in its Pre-Budget submission, focused on both preventing and responding to homelessness — including adequate, high-quality emergency accommodation, measures to prevent rough sleeping and universal and targeted prevention supports. “There was no mention of any of this in what we heard today,” she continued. “While we warmly welcome the significant capital investment in social housing, we urge Government to ensure that people who experience homelessness have real access to these new homes, so that they are not left behind again.”

NOVAS also noted with concern the lack of any increase in HAP payments, leaving many low-income renters, among the most vulnerable households in the private sector, exposed to continued housing insecurity. “Without addressing affordability in the rental market and preventing entries into homelessness, Ireland will remain trapped in a cycle of crisis,” Ms Burns said.

NOVAS reiterated its commitment to working with Government and local authorities to deliver housing and support solutions that restore dignity, stability and independence for people experiencing homelessness.

Urgent Appeal: NOVAS needs a new Street Outreach Van

NOVAS is urgently appealing for public support to fund a new Street Outreach van to continue serving some of the most vulnerable people in Limerick City. 

Since 2010, the NOVAS Street Outreach service has operated every single night at 7.30pm on Upper William Street, providing hot meals, toiletries basic first aid, sleeping bags, and emotional support to people experiencing homelessness, rough sleeping, and extreme poverty. 

The service, which receives no government funding, is completely volunteer-led and relies entirely on fundraising and food donations. This year alone, NOVAS has already served over 18,250 meals through the outreach van. 

However, the van — purchased second-hand in 2020 — is now eight years old and has become increasingly unreliable. With wear and tear from daily use, it is struggling to meet growing demands. In recent years, the service has seen a significant rise in the number of people seeking help, with up to 50 people a night relying on it for basic needs and human connection. 

“The van is essential for transporting food and supplies, but it is becoming unreliable. At times it won’t even start.” says Street Outreach Volunteer Abdulaziz.  

“The van is also quite cramped, especially when we are carrying a full load of food and equipment. A larger van would allow us to transport more supplies, serve more people, and work more efficiently, particularly during bad weather or on very busy nights.” 

A new, custom-fitted van would allow NOVAS to: 

  • Transport larger quantities of food
  • Improve safety and comfort for volunteers
  • Deliver services more efficiently and consistently
  • Better meet the complex needs of those it supports

How You Can Help 

We are calling on the community to help keep this vital service on the streets. 

“Your donation directly fuels our ability to be there — every night — for those with nowhere else to turn. Please help us reach our target and keep this essential service running.” 

Donate here

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