Emergency care use among people experiencing homelessness in rural and coastal North-East England

A quantitative study analysing hospital data to examine the health and social care needs of people experiencing homelessness attending emergency care services in rural and coastal areas of North-East England.

Key statistics 

  • 260 individuals experiencing homelessness made 567 emergency care visits between February 2019 and March 2022 in Northumberland and North Tyneside. 
  • 55% of visits were repeat attendances within 12 months, indicating frequent reliance on emergency services. 
  • 83% of attendees were male, with a mean age of 39 years. 
  • 32% of emergency visits involved multiple diagnoses, showing high levels of comorbidity. 
  • The most common diagnoses included poisoning related to drugs or alcohol, psychiatric conditions and social problems. 

Key messages 

  • People experiencing homelessness in rural and coastal areas often present to emergency services with complex combinations of health, mental health and social care needs. 
  • Substance use, mental health issues and social problems are common drivers of emergency care attendance. 
  • Repeat emergency department use suggests gaps in accessible community-based support. 
  • Rural and coastal contexts create additional barriers to care, including limited services and geographic isolation. 
  • Integrated health and social care responses are needed to address the complex needs of people experiencing homelessness outside emergency settings. 

Policy implications 

  • strengthen integrated health and social care support for people experiencing homelessness 
  • develop community-based interventions that reduce reliance on emergency departments 
  • improve coordination between hospitals, housing services and community organisations 
  • address rural service gaps and barriers to accessing support 
  • improve recording of homelessness status in healthcare data to support better planning 

Gaps 

  • homelessness status was identified using the hospital code “no fixed abode”, which may underestimate the true number of homeless patients. 
  • hidden homelessness (for example sofa surfing or temporary accommodation) may not be captured in routine hospital data. 
  • the study covers two areas in North-East England, which may limit generalisability to other regions. 

Commentary 

This study examines the health and care needs of people experiencing homelessness who attend emergency care services in rural and coastal areas of North-East England. It uses routinely collected hospital data from Northumberland and North Tyneside to explore patterns of emergency department use and underlying health conditions. 

The findings show that people experiencing homelessness frequently present to emergency care services with complex and overlapping needs. Substance use, mental health conditions and social problems were among the most common reasons for attendance. Around one third of visits involved multiple diagnoses, highlighting the high levels of comorbidity within this population. 

Emergency departments often become a key point of access to care for people experiencing homelessness. Barriers to primary care, difficulties registering with a GP and limited availability of community services can all contribute to reliance on emergency services. 

Geography also plays an important role. Rural and coastal areas tend to have fewer specialised services, limited public transport and greater distances between service providers. These factors can make it more difficult for people experiencing homelessness to access continuous support, increasing the likelihood of emergency care use. 

From a social care equity perspective, the study highlights how homelessness intersects with geographic disadvantage. People experiencing homelessness in rural and coastal areas may face additional barriers compared with those in urban areas, including limited service availability and hidden forms of homelessness. 

The findings suggest that improving coordination between health services, housing support and community organisations could help address these challenges. Integrated approaches that address housing, health and social needs together may reduce emergency department reliance and improve outcomes for this population. 

National end of life care policy and inequities in implementation

Investigating how policy changes affect end-of-life care in certain areas

Key statistics 

  • two thirds of deaths in the UK occur among people aged over 75 years, highlighting the importance of effective end of life care for older populations 
  • the study conducted 98 in-depth interviews with clinicians, commissioners, patients aged 75+, relatives and other stakeholders across three clinical commissioning group case studies 
  • spending on end of life care varied substantially between London clinical commissioning groups, ranging from £540 to £3,740 per death, illustrating large differences in local resource allocation 
  • substantial variation in service provision between local areas contributed to unequal access to services such as overnight palliative care support and fast track continuing healthcare 

Key messages 

  • national end of life care policy provides an important framework for quality standards but does not guarantee consistent implementation across local areas 
  • patient experience is shaped by interactions between health services, social care, informal carers and local system factors 
  • fragmentation between health and social care services creates challenges for coordinated and person-centred end of life care 
  • local context, including commissioning capacity, resource availability and workforce conditions, strongly influences how policy is implemented 
  • improved integration between health and social care systems is necessary to reduce inequalities in care experiences 

Policy implications 

  • strengthen integration between health and social care services to provide coordinated end of life care 
  • improve training and support for commissioners responsible for designing local end of life services 
  • develop mechanisms to reduce variation in service availability between local areas 
  • support social care workers and unpaid carers, who play a key role in end of life care 
  • improve systems for recording and sharing patient preferences across organisations 

Gaps 

  • the study focused on three London-based case studies, which may not represent all regional contexts across England 
  • findings are primarily qualitative and based on stakeholder interviews 
  • further research is needed to examine how different commissioning models influence service equity across regions 
  • additional evidence is needed on how integration between health and social care can be effectively implemented 

Commentary 

This realist evaluation explores how national end of life care policy in England shapes the experiences of older people nearing death. The study highlights the complexity of translating national policy into consistent local practice. 

Patient experience at the end of life is shaped by a combination of formal services and informal care. Interviews with patients and families emphasised the importance of compassion, dignity and social connection during the final stages of life. Many patients expressed a preference to remain in familiar environments such as their home or care home rather than being admitted to hospital. 

However, the study found that achieving these preferences often depends on the availability of community-based services. Shortages of community nursing, limited overnight palliative care support and inconsistent access to home visits from clinicians were identified as barriers to delivering care outside hospital settings. 

Variation in service provision between local areas was a recurring theme. Differences in commissioning decisions, local budgets and organisational structures meant that some areas offered more comprehensive services than others. For example, variation in spending on end of life care between clinical commissioning groups suggests that resource allocation may influence the quality and availability of services. 

The research also highlights the fragmented relationship between health and social care systems. Medical care, such as pain management, is typically funded through the NHS, while practical and relational support such as personal care is often provided through social care services. Because these services operate under different budgets and governance structures, patients may experience gaps in support. 

The study emphasises that policy alone cannot guarantee equitable care. Successful implementation requires alignment between national policy goals, local commissioning decisions and the priorities of professionals, patients and families. 

From a health and social care equity perspective, the findings illustrate how geographical variation in services contributes to unequal care experiences at the end of life. Addressing these disparities will require stronger integration between health and social care systems, better support for the social care workforce and clearer mechanisms to reduce local variation in service provision.

Palliative care access in rural and coastal communities

A study examining how geographical location and economic disadvantage shape access to community palliative care in rural, coastal and low-income communities in southwest England.

Key statistics 

  • people aged 65 and over make up 24.2% of the population in the South West Peninsula, the highest proportion in England 
  • the South West Peninsula is the only predominantly rural region in England with higher levels of economic deprivation than urban areas 
  • rural and coastal communities in the region often experience longer travel distances and limited transport options for accessing services 
  • ageing populations in these areas are expected to increase demand for community-based and end-of-life care services 

Key messages 

  • geographical location strongly influences access to palliative and end-of-life care services 
  • rural and coastal communities often face barriers including travel distance, limited service availability and workforce shortages 
  • community engagement is essential for designing services that meet local needs and cultural expectations 
  • partnerships between universities, health services and community organisations can help identify gaps in care provision 
  • addressing both geographical and economic disadvantage is necessary to improve equitable access to end-of-life care 

Policy implications 

  • expand community-based palliative care services in rural and coastal areas 
  • improve transport and outreach services to support access to health and social care 
  • strengthen partnerships between local communities, health services and researchers to design locally appropriate services 
  • increase workforce recruitment and retention strategies in underserved areas 
  • integrate palliative care planning into broader strategies addressing rural health and social care inequities 

Gaps 

  • the study focuses on one region of England, which may limit the generalisability of findings to other areas 
  • limited quantitative analysis is presented on the scale of service gaps across different rural or coastal regions 
  • further research is needed to examine how workforce shortages affect palliative care access in remote communities 
  • more evidence is required on the effectiveness of community-led solutions for reducing inequities in end-of-life care 

Commentary 
This study explores how geographical location and socioeconomic disadvantage shape access to palliative and end-of-life care in rural, coastal and low-income communities in southwest England. The South West Peninsula has one of the oldest populations in England, with more than a quarter of residents aged 65 or older. This ageing population increases the need for palliative care and community support services. 

People living in rural and coastal areas often face practical barriers to accessing care. Services may be located far from where people live, and public transport options can be limited. For people with serious illness or reduced mobility, travelling long distances for care can be particularly difficult. These barriers can delay access to support or make it harder for people to receive care in their preferred setting. 

Economic disadvantage can further increase these challenges. Some rural and coastal communities experience higher levels of deprivation alongside limited service availability. This combination can make it harder for individuals and families to access consistent and high-quality end-of-life care. 

The study highlights the value of working directly with local communities when planning services. Through partnerships between researchers, healthcare providers and community organisations, the project gathered insights into the specific needs and priorities of different communities. This approach helped identify gaps in services and possible ways to improve care delivery. 

From a care equity perspective, the findings show how location can shape access to health and social care services. People living in rural and coastal communities may experience structural barriers that are less common in urban areas. Without targeted policies and investment, these barriers can lead to inequities in access to palliative care and support at the end of life. 

Overall, the report suggests that improving palliative care access requires locally tailored solutions. Strengthening community services, improving transport and addressing workforce shortages could help ensure that people living in rural and coastal areas receive equitable support at the end of life.

Partnerships between housing, health and social care

A Welsh policy report examining how collaboration between housing providers, health services and social care organisations can improve outcomes, prevent hospital admissions and support people to remain living at home.

Key statistics 

  • poor housing conditions cost the NHS in Wales more than £95 million per year in treatment costs 
  • poor housing is estimated to cost Welsh society more than £1 billion annually 
  • investment to improve housing conditions could produce a financial return within approximately six years 

Key messages 

  • poor housing is closely linked to health and wellbeing and creates avoidable pressure on health and social care services 
  • collaboration between housing, health and social care can improve outcomes while reducing duplication and inefficiencies 
  • integrated services can help people remain in their homes and avoid unnecessary hospital admissions or long hospital stays 
  • person-centred approaches are central to effective partnerships, ensuring services respond to individual needs rather than organisational structures 
  • six core principles support successful partnerships: shared problem analysis, person-centred design, strong leadership, joint resources, shared interpretation of legislation and recognition of power imbalances between organisations 
  • local context is important, meaning successful partnership models must reflect the needs and characteristics of specific communities 

Policy implications 

  • embed housing as a core component of health and social care planning and policy 
  • support joint funding arrangements across housing, health and social care organisations 
  • invest in preventative housing interventions that reduce demand for health and social care services 
  • encourage integrated service delivery models such as hospital discharge partnerships, social prescribing programmes and community-based care hubs 
  • strengthen national and local policy frameworks that promote cross-sector collaboration 

Gaps 

  • the report focuses mainly on partnership principles rather than evaluating long-term outcomes or cost effectiveness of specific programmes 
  • there is limited analysis of how housing-related interventions affect different population groups or geographical areas 
  • further research is needed to understand how integrated housing and care models affect care access in rural or disadvantaged communities 
  • evidence on how partnership approaches reduce inequities in health and social care access remains limited 

Commentary 
This report examines how stronger partnerships between housing, health and social care organisations can improve people’s wellbeing and reduce pressure on public services. It is based on interviews with fifteen collaborative projects across Wales that are already working across these sectors. 

The report highlights the strong link between housing conditions and health. Poor housing, including cold, damp or unsafe homes, contributes to illness and increases demand for health services. The report estimates that poor housing costs the NHS in Wales more than £95 million each year in treatment costs, with wider social costs exceeding £1 billion annually. 

One of the central ideas in the report is that housing should be considered part of the health and social care system. For example, some projects included housing staff working directly in hospitals to help patients resolve housing issues before discharge. Others used social prescribing approaches or integrated community hubs where multiple services work together to support people. 

These partnership models aim to help people stay in their homes safely and independently. This can prevent avoidable hospital admissions, reduce delayed discharges and improve quality of life. The report also highlights how joint funding and shared leadership can support these approaches. 

From an equity perspective, housing conditions play an important role in shaping health and social care outcomes. People living in poor-quality or unstable housing are more likely to experience health problems and require additional support. These challenges are often concentrated in lower-income communities, meaning housing can act as a driver of wider health and social care inequities. 

The report argues that stronger partnerships between housing, health and social care organisations can help address these issues. By coordinating services and focusing on prevention, integrated approaches may help reduce avoidable pressures on the health and social care system while improving outcomes for individuals and communities.

Persistent deprivation and health inequities across England

A longitudinal population study examining how overall and health-related deprivation changed across England between 2004 and 2015, showing persistent regional patterns and the continuing North–South health divide.

Key messages 

  • deprivation in England tends to remain concentrated in the same places over long periods 
  • northern regions continue to experience higher levels of health-related deprivation than southern regions 
  • regional deprivation patterns change slowly, suggesting structural economic and social factors drive inequities 
  • geographical patterns of deprivation can help identify areas with greater need for health and social care services 
  • place-based policies may be needed to address persistent regional inequities in health outcomes 

Policy implications 

  • prioritise investment in health and social care services in areas with persistent deprivation 
  • develop place-based strategies targeting regions with long-term disadvantage, particularly in the North of England 
  • strengthen cross-sector approaches addressing employment, housing and education alongside health and social care 
  • use deprivation data to guide resource allocation and service planning 
  • design interventions that respond to regional differences rather than using uniform national approaches 

Gaps 

  • the deprivation index measures relative deprivation, meaning it cannot capture national improvements or declines in living conditions over time 
  • some underlying indicators used in deprivation measures change between versions of the index, which may affect comparisons 
  • analysis at neighbourhood level may mask smaller pockets of extreme deprivation within communities 
  • further research is needed to understand the causes of persistent regional deprivation patterns 

Commentary 

This study examines how deprivation across England changed between 2004 and 2015. It shows that deprivation tends to remain concentrated in the same places over long periods. Areas that experienced high deprivation at the start of the study were very likely to remain deprived more than a decade later. 

One of the clearest findings is the continued North–South divide in health-related deprivation. Northern regions such as the North East and North West consistently experienced worse outcomes than southern regions. In some northern areas, improvements seen earlier in the study period had reversed by 2015. 

These patterns reflect broader social and economic conditions. Regions with higher unemployment, lower incomes and poorer housing conditions often also experience worse health outcomes. These wider determinants of health can contribute to long-term demand for health and social care services. 

The study also shows that deprivation often occurs in geographical clusters, meaning neighbouring communities may share similar levels of disadvantage. For service planners, this is important because clusters of deprivation may lead to concentrated demand for health and social care support. 

From a care equity perspective, the findings highlight how place shapes health outcomes. People living in areas with long-term deprivation may experience poorer health, greater need for services and fewer local resources to support wellbeing. 

Overall, the research suggests that reducing health inequities requires sustained and targeted policy action. Interventions that address the wider determinants of health, alongside investment in health and social care services, are likely to be important for improving outcomes in persistently deprived communities. 

Rural health and social care inequities in England

A parliamentary inquiry examining the health and social care challenges faced by rural communities in England, including access barriers, workforce shortages and funding pressures.

Key messages 

  • around 9.7 million people live in rural areas in England, many in small and isolated communities 
  • people living in rural areas often experience poorer access to health and social care services than those in towns and cities 
  • longer travel distances and limited public transport create barriers to accessing services 
  • rural areas often have older populations, which increases demand for health and social care 
  • recruitment and retention of health and social care staff is more difficult in rural areas 
  • funding allocations often fail to reflect the additional costs of delivering services in sparsely populated areas 
  • existing data systems do not always capture the specific health and care needs of rural communities 

Policy implications 

  • develop funding models that recognise the higher costs of delivering health and social care in rural areas 
  • strengthen recruitment and retention strategies for rural health and social care workforces 
  • improve transport and digital infrastructure to reduce barriers to accessing services 
  • support community-based services that allow people to receive care closer to home 
  • incorporate rural considerations into wider policy areas including housing, transport and digital connectivity 

Gaps 

  • national datasets often mask rural disadvantage because deprivation measures are designed primarily for urban settings 
  • limited research examines how current funding formulas affect rural health and social care provision 
  • more evidence is needed on how travel and transport barriers influence access to care 
  • there is limited evaluation of interventions designed to improve rural workforce recruitment and retention 
  • rural communities are diverse, yet policy discussions often treat rural areas as a single category 

Commentary 
This parliamentary inquiry highlights the challenges faced by people living in rural communities when accessing health and social care services. Around 9.7 million people live in rural areas in England, many in small villages and isolated communities where services are more spread out. 

Distance is one of the main barriers. People in rural areas often have to travel further to reach hospitals, GP services or social care support. Public transport options are often limited, meaning access to care may depend on having a car or support from family members. These barriers can be particularly difficult for older people, people with disabilities and unpaid carers. 

Workforce shortages also contribute to care inequities in rural areas. Health and social care providers often find it harder to recruit and retain staff in rural locations. Staff may need to travel long distances between patients, and smaller local services may struggle to maintain stable teams. 

Funding arrangements can reinforce these inequities. Delivering services across large rural areas is often more expensive, but existing funding systems do not always account for these additional costs. As a result, services in rural areas may receive fewer resources relative to the challenges they face. 

Another issue highlighted in the report is that rural disadvantage is often less visible in national statistics. Because poverty and health needs are more dispersed across rural communities, they may not appear clearly in standard deprivation measures. This can make it harder for policymakers to identify where support is needed. 

Overall, the inquiry argues that addressing rural care inequities requires policies that recognise the specific challenges of rural areas. Improvements in funding, workforce support, transport and community-based services are needed to ensure that people living in rural communities can access health and social care on fair terms. 

Unequal access to care homes across Wales 

A study examining how the location of residential and nursing care homes in Wales compares with where older people live, showing clear regional differences in access to care.

Key messages 

  • care home provision in Wales included 25,607 residential and nursing beds across 1,069 sites in March 2020 
  • the average care home had around 24 places, although many homes were small and over a quarter had six or fewer places 
  • only around 9% of care home places were provided by local authorities, with most delivered by independent providers 
  • there were on average 53.3 care home places for every 1,000 people aged 70 or over, but this varied widely between areas 
  • cities and densely populated areas had more care homes, but they also had higher demand for places 
  • where people live strongly affects access to care homes, with some communities having far fewer nearby options 
  • simple measures of care home supply can hide local inequalities, especially in rural areas 

Policy implications 

  • use detailed mapping of care homes and population need to identify areas with limited access to residential care 
  • improve coordination between neighbouring local authorities when planning care home provision 
  • target investment in areas where demand for care is increasing but local provision is limited 
  • include population ageing, deprivation and health needs in long-term care planning 
  • monitor how financial pressures and changes following COVID-19 affect the stability of care home services 

Gaps 

  • demand was estimated using the number of people aged 70 or over, which does not fully reflect health needs or disability 
  • the study did not include data on how many beds were already occupied, meaning real availability may differ from total capacity 
  • financial barriers to accessing care homes were not included in the analysis 
  • the study did not consider differences in care home quality, fees or specialist services such as dementia care 
  • travel assumptions were based on driving distances and may not reflect access for people without a car 

Commentary 
This study looks at how access to care homes varies across Wales depending on where people live. The researchers mapped the location of care homes and compared this with the distribution of older people who may need residential care. This helps show whether some areas have better access to care home places than others. 

The results show that care homes are not evenly distributed. More homes tend to be located in urban areas and the post-industrial valleys of south-east Wales. However, these areas also have larger older populations, which means demand for care home places is higher. As a result, the actual availability of places may not be as high as the number of homes suggests. 

Some rural areas appear to have a better balance between the number of places and the number of older residents. However, people in these areas may still face challenges because care homes are further apart and travel distances can be longer. This can make it harder for families to visit relatives and for people to remain close to their communities when they move into residential care. 

The study also highlights how the organisation of the care sector affects access. In Wales, most care homes are run by independent providers rather than local authorities. This means the location of homes is partly shaped by market conditions and business decisions, not just local need. Areas that are less profitable or harder to operate in may therefore have fewer services. 

These patterns matter for care equity. If some communities have fewer nearby care homes, people living there may have fewer choices or may need to move further away from their families and support networks. This can affect wellbeing and continuity of care. 

Overall, the study shows that looking at where services are located, and where people live, can help policymakers understand where gaps in care provision exist. This kind of analysis can support better planning of care home services and help ensure that access to residential care is more evenly distributed across regions.

Austerity and the uneven impact of local government cuts in English cities

A study examining how austerity policies affected English city governments and how reductions in local authority funding were passed on to poorer communities through changes to services and public spending.

Key statistics 

  • English councils lost around 27% of their spending power between 2010 and 2015, reflecting significant reductions in local government funding during the austerity period 
  • the most deprived local authorities lost about £268 per person in spending power (26%), compared with around £67 per person (9%) in the least deprived areas 
  • the historic ‘equalisation’ funding premium for deprived councils fell from 46% higher spending per capita in 2010 to 19% by 2016, reducing the capacity of poorer councils to meet higher levels of need 
  • in case study areas, around 45% of all savings were taken from services used more by poorer groups, reflecting the large share of spending on these services 

Key messages 

  • austerity policies significantly reduced local government funding in England, placing pressure on city councils 
  • poorer cities experienced larger funding reductions than more affluent areas because they relied more heavily on central government grants 
  • even where councils attempted to protect vulnerable groups, the structure of local government spending made it difficult to shield services used most by poorer residents 
  • reductions in universal services such as libraries, parks and neighbourhood maintenance can have greater impacts on disadvantaged communities 
  • austerity policies therefore contributed to a “regressive redistribution”, where financial pressures placed on cities ultimately affected poorer households most 

Policy implications 

  • national funding arrangements for local government should account for levels of deprivation and service demand 
  • restoring mechanisms that compensate poorer areas for higher social need could reduce inequities in service provision 
  • policies should consider how reductions to universal public services may disproportionately affect disadvantaged communities 
  • stronger protections may be needed for services that support vulnerable populations 
  • local and national policy should address how funding reductions affect the long-term capacity of councils to deliver social and community services 

Gaps 

  • the study focuses on a small number of city case studies, which may not represent the experiences of all local authorities 
  • further research is needed on the long-term impacts of austerity on specific services such as adult social care 
  • limited quantitative evidence exists on how service reductions translate into measurable outcomes for different population groups 
  • more research is needed to understand how local policy decisions mediate the impact of national funding changes 

Commentary 

This study examines how austerity policies affected local government services in English cities and how these financial pressures ultimately affected poorer communities. The research combines national financial data with detailed case studies of several English local authorities to understand how funding reductions translated into changes in services. 

Between 2010 and 2015, English local authorities experienced significant reductions in their spending power. The study shows that these reductions were not evenly distributed. Councils serving more deprived populations tended to lose a greater share of their funding because they relied more heavily on central government grants. When these grants were reduced, the financial impact was larger for poorer areas. 

One important finding is the erosion of the historic principle of equalisation in local government finance. This principle aimed to compensate poorer councils for the higher levels of social need they faced. As austerity policies reduced this funding premium, poorer councils became less able to provide services at levels comparable with more affluent areas. 

The research also highlights how the structure of local government spending affects how cuts are experienced. Many services provided by local authorities are used more frequently by lower-income households. Because these services make up a large share of council spending, it becomes difficult for councils to protect them completely when budgets are reduced. 

Even services used by all residents can affect disadvantaged communities more strongly when they are reduced. For example, cuts to libraries, parks or neighbourhood maintenance may have greater consequences for households with fewer private resources or alternatives. 

From a health and social care equity perspective, the study demonstrates how funding decisions made at national level can influence the distribution of services at local level. When deprived cities lose more resources, their ability to support vulnerable populations may decline. 

Overall, the study shows that austerity policies can produce uneven impacts across places and populations. Without mechanisms that account for differences in local need, reductions in local government funding risk reinforcing existing social and geographical inequities.

Policy drift in social care reform across the four UK nations

A study examining why social care reform has progressed unevenly across England, Scotland, Wales and Northern Ireland, highlighting the political and institutional factors that shape policy change.

Key statistics 

  • the study draws on 65 semi-structured interviews with policy stakeholders across the UK between 2019 and 2021, alongside analysis of 31 policy documents relating to social care reform 
  • interview participants included stakeholders across government, local authorities, care providers, NHS organisations and third sector groups in England (22), Wales (17), Scotland (13) and Northern Ireland (13) 
  • Scotland introduced free personal care for people aged 65 and over in 2002, later extending it to working-age disabled people in 2019 
  • England legislated for a cap on social care costs through the Care Act 2014, but implementation was repeatedly delayed due to financial and political pressures 

Key messages 

  • social care reform in the UK has been slow and uneven despite widespread agreement that reform is necessary 
  • policy “drift” occurs when policies remain unchanged even as social needs increase or circumstances change 
  • Scotland has progressed further in social care funding reform than the other UK nations, particularly through free personal care 
  • England has experienced the greatest delays due to factors such as political disagreement, financial pressures and institutional complexity 
  • Wales and Northern Ireland have introduced some policy changes but have also faced barriers including institutional capacity and political instability 

Policy implications 

  • social care reform requires long-term political commitment and cross-party agreement 
  • funding reforms should address the balance between public funding and individual contributions to care costs 
  • policymakers should consider how institutional structures and political systems affect the ability to implement reforms 
  • greater policy coordination across UK nations may help identify effective reform approaches 
  • sustained policy attention is needed to avoid continued delays in addressing long-term care funding challenges 

Gaps 

  • the research focuses on national-level policymaking and does not examine how reforms are implemented locally 
  • the study relies on interviews with policy stakeholders and does not include direct perspectives from service users or carers 
  • the analysis primarily examines funding reform rather than broader aspects of social care quality or workforce issues 
  • further research is needed to understand how different funding models affect access to care and financial risk for individuals 

Commentary 

This study explores why social care reform has progressed unevenly across the four nations of the UK. Despite widespread recognition that the current system needs reform, many proposed changes have been delayed or only partially implemented. 

The authors use the concept of policy drift to explain this pattern. Policy drift occurs when existing policies remain in place even though social needs and pressures have changed. In the context of social care, demographic ageing and rising care needs have increased pressure on systems that were not originally designed to cope with these demands. 

The research compares England, Scotland, Wales and Northern Ireland, each of which has responsibility for its own social care system following devolution. Although these systems share common origins, they have developed in different ways over the past two decades. 

Scotland has taken the most significant steps towards reform. In 2002 it introduced free personal care for older adults, a policy that later expanded to include working-age disabled people. This approach represents a form of “risk pooling”, where the costs of care are shared across society rather than falling mainly on individuals. 

England has experienced greater delays in reform. Although legislation introduced in 2014 proposed a cap on the amount individuals would have to pay for care, the policy was repeatedly postponed due to financial and political concerns. Wales and Northern Ireland have made some changes to funding arrangements but have also faced institutional and political barriers. 

The study identifies several factors that can lead to policy drift. These include the high cost of reform, political disagreements between parties, the complexity of the social care system and competing policy priorities. In England, these factors have combined to slow progress more than in the other UK nations. 

From a health and social care equity perspective, the findings show how differences in political systems and policy decisions can lead to uneven social care arrangements across the UK. People living in different nations may face different rules around care funding and access to services. 

Overall, the study highlights how institutional and political factors shape the pace of social care reform. Without sustained political commitment and agreement on funding solutions, policy drift may continue to delay reforms designed to protect people from the high costs of care. 

Mental health emergencies attended by ambulance services in rural England

A study examining mental health-related ambulance callouts in rural England during the COVID-19 pandemic, highlighting differences in presentations and service pressures compared with urban areas.

Key statistics 

  • the study analysed ambulance attendances for mental health emergencies in rural England during the COVID-19 pandemic using routinely collected ambulance service data 
  • people living in rural areas were more likely to present with behavioural disturbance, suicidality and anxiety-related crises compared with people living in urban areas 
  • rural ambulance services experienced longer response times and greater travel distances when responding to mental health emergencies 

Key messages 

  • mental health emergencies attended by ambulance services increased during the COVID-19 pandemic 
  • people living in rural areas were more likely to present with behavioural disturbance, suicidality and anxiety-related crises 
  • rural ambulance services face operational challenges including longer travel distances and response times 
  • limited access to specialist mental health services in rural areas increases reliance on ambulance responses for crisis situations 

Policy implications 

  • strengthen community-based mental health support in rural areas to reduce crisis presentations 
  • improve integration between ambulance services, mental health teams and community services 
  • invest in rural mental health services to reduce reliance on emergency responses 
  • develop targeted crisis response pathways for rural populations 

Gaps  

  • the study focuses on ambulance attendances and does not capture individuals who experienced mental health crises but did not contact emergency services 
  • the analysis is limited to the COVID-19 pandemic period and may not reflect longer-term trends in rural mental health emergencies 
  • the research focuses on ambulance service data and does not include patient outcomes following emergency response 
  • further research is needed to understand how service availability affects crisis presentations in rural communities 

Commentary 
This study examines mental health emergencies attended by ambulance services in rural England during the COVID-19 pandemic. Ambulance services often act as the first point of contact for people experiencing acute mental health crises, particularly when other services are difficult to access. 

The findings show that people attended by ambulances in rural areas were more likely to present with behavioural disturbance, suicidal thoughts or actions, and anxiety-related crises. These types of emergencies often require specialist mental health support, yet access to such services can be more limited in rural areas. 

Rural ambulance services also face practical challenges that differ from urban settings. Longer travel distances, fewer nearby healthcare facilities and limited availability of specialist services can affect response times and the type of support that can be provided during an emergency. 

During the COVID-19 pandemic, many community and mental health services experienced disruption. As a result, ambulance services often became an important entry point into care for people experiencing acute distress. 

From a health and social care equity perspective, the study highlights how geographical location can shape access to crisis support. People living in rural areas may have fewer options for urgent mental health care and may rely more heavily on emergency services. This can place additional pressure on ambulance services and may delay access to specialist support. 

Overall, the findings suggest that improving access to community mental health services and crisis support in rural areas could reduce reliance on emergency responses and help ensure more equitable access to mental health care.