Empty homes in England and Wales

Approximate read time: 15 minutes

The House of Lords is scheduled to consider the following question for short debate in grand committee on 17 September 2026:

Lord Bird (Crossbench) to ask His Majesty’s government what assessment they have made of the potential of a national empty homes strategy to help to end homelessness.

1. Key points

• An empty or vacant home generally refers to a residential property that has no one usually living there, although definitions vary across sources. Estimates of the number of empty homes in England and Wales also vary. One source of data is the 2021 census, which found there were around 1.5mn unoccupied dwellings (units of accommodation that have no usual residents but may be used by short-term residents or visitors) in England and 120,000 in Wales.
• There are a number of reasons why a home could be left empty. Many of them are financial with owners either unable to fund needed renovations or intentionally leaving properties empty in hopes that they increase in value over time. A large number of homes are also left empty following the death of their owners. This can be because of a lack of obvious next of kin or the limited financial resources, time or knowledge of those who do inherit. Emotional ties and complex legal processes can also keep homes empty for longer.
• Stakeholders have contended that empty homes are negative for communities. They argue that every empty home removes a property from the housing market, meaning less homes are available at a time of unaffordable rents, rising homelessness, record levels of temporary accommodation use and long waits for social housing. They also state that empty homes can attract crime and anti-social behaviour. To address these issues, a group of industry stakeholders have called on the government to produce a national empty homes strategy aimed at bringing such properties back into use.
• Each council has responsibility for tackling the issue of empty homes in its area. Councils have a range of powers to assist with this work. These include taking over the management or ownership of such properties and charging council tax premiums on unoccupied homes.
• In response to the call for a new national empty homes strategy, the government has said it was setting out plans to “make it easier for empty homes to be brought back into use and expect[ed] councils to use the powers we’ve already given them to ensure that this happens”. It has also noted that local authorities can access funding associated with bringing empty homes back into use.

2. Empty homes in England and Wales

2.1 What is an empty home?

An empty or vacant home usually refers to a residential property that has no one usually living there; however, definitions and terminology used vary across sources.^[1] Such properties differ in size and condition and are located across both England and Wales.^[2]

2.2 How many empty homes are there?

There are multiple estimates of the number of empty homes. The Office for National Statistics (ONS) has acknowledged this, stating that there are methodological and practical reasons for the differences.^[3] In 2024, it gave an overview of three sources which provide estimates. Information on these is set out below.

2.2.1 Census Data

Data from the 2021 census estimated that in March 2021 there were 1,507,100 unoccupied dwellings which the ONS described as units of accommodation that have no usual residents but may be used by short-term residents or visitors as second homes in England.^[4] Of these, 1,352,130 were vacant dwellings and 154,970 were second homes. The census also estimated there were 120,450 unoccupied dwellings in Wales: 102,875 were vacant dwellings and 17,575 were second homes. Wales had the highest percentage of homes classed as unoccupied dwellings (8.2% of all dwellings).

Focusing on ‘truly vacant dwellings’, the ONS reported there were 1,455,010 in England and Wales on census day in 2021.^[5] This means there were no usual residents living in these dwellings and there was no indication of them being used by short-term residents or visitors. London was found to have the highest percentage of truly vacant dwellings (7.3%) out of all English and Welsh regions, while the east of England had the lowest percentage (4.3%). Further information on the percentage of truly vacant dwellings by local authority and by accommodation type is available in the ONS publication ‘Number of vacant and second homes, England and Wales: Census 2021’ (27 October 2023). However, the ONS noted the potential impact of the Covid-19 pandemic on these 2021 census figures.^[6] It said that some people, such as overseas students or those privately renting, may have moved back in with family members, leaving more unoccupied dwellings.

2.2.2 Council taxbase

The Ministry of Housing, Communities and Local Government (MHCLG) has published data on homes classed as empty for council tax purposes in England.^[7] These estimates are typically lower than figures from the census, with this difference more pronounced in Wales compared to England.^[8]

The most recent release stated that as of 10 September 2025, excluding exempt properties, there were 542,000 dwellings recorded as empty for the purposes of council tax in England, an increase of 40,000 (8%) from the previous year.^[9] This included dwellings being charged an empty homes premium (further information on this policy is available in section 3.1). There were also 212,000 dwellings that had an exemption that were unoccupied, down by 5,000 (2.4%).

The Welsh government also uses annual local authority council tax dwellings data to infer the number of empty homes. It reported that in 2025/26 there was a total of 22,558 chargeable empty homes in Wales.^[10]

2.2.3 English Housing Survey

MHCLG has also published regular estimates of the number of vacant dwellings based on the English housing survey. Its most recent estimate found there were 1.2mn vacant dwellings in 2024.^[11] This made up 5% of the dwellings in England. By type of accommodation, 11% of private rented dwellings (518,000), 4% of social rented dwellings (166,000) and 3% of owner-occupied dwellings (480,000) were vacant at the time of the survey.^[12]

2.3 Why are homes left empty?

There are a number of reasons why a home could be left empty. The homelessness charity Crisis has argued that the reason is often financial.^[13] It said that in some cases this could be unavoidable, with owners having a lack of funds for renovation work. However, it also said that the decision could be intentional, with properties bought as a so-called ‘buy to leave’ investment where owners have no intention of living in the property or renting it out. Rather, they plan to sell later hoping property prices increase and they make a profit.

However, the charity argued that a much larger number of homes are left empty after their owners die.^[14] This can be because of a lack of obvious next of kin or beneficiaries, making it hard to trace who owns the property. It can also be due to limited financial resources, time or knowledge on the part of those who inherit the property. Complex legal processes and emotional ties to homes can additionally keep them empty for longer.

In 2025, BBC News asked English councils about empty homes in their areas.^[15] One of their findings was that councils lacked coherent data on empty homes in their area and were often unable to track down the owners of such homes. Information provided by councils showed that they knew about the condition of the home and the reason it was empty for around 13% of their long-term empty home stock.

2.4 Why are empty homes considered a problem?

Stakeholders have argued that empty homes are negative for communities for several reasons. One such reason is their potential negative impact on the housing market. Crisis states that every empty home removes a property from the market, meaning less homes are available.^[16] The charity said this pushes up rents and housing prices and forces more people into homelessness. The Local Government Association (LGA) and the Empty Homes Network have similarly stated:

Every empty home removes a property from the housing market, and with it the chance of those on housing registers to be housed, first time buyers to purchase, or those looking to progress on the property ladder.^[17]

Concerns have also been raised that empty homes can attract crime and anti-social behaviour. For example, Miller Insurance has said that when a property is vacant or partially occupied, the risks associated with it “increase significantly”.^[18] These risks include theft, vandalism, fire hazards, weather damage and liability issues. An example of this was reported on by the BBC last year when a resident in Bristol said that the empty house next door had become a “magnet” for crime, with issues including drug dealing, violence and fly-tipping, as well as vermin.^[19] Local authorities have also highlighted these issues. For example, Blaby District Council in Leicestershire has noted the issues relating to crime and anti-social behaviour and additionally argued that unmaintained and vacant properties can reduce the value of neighbouring properties, as well as the likelihood of property sales and investment in an area.^[20] It also argued that neglected properties can deteriorate and become a danger to the public and neighbours.

The government has acknowledged that empty homes are “bad for communities”.^[21]

3. Addressing the issue of empty homes

3.1 Local authority powers

Each council has responsibility for tackling the issue of empty homes in its area. As a result, local authorities have a range of powers relating to empty homes. For example:

• Information gathering: Section 85 of the Local Government Act 2003 allows information gathered as part of the council tax billing process to be used to identify empty properties.
• Council tax discounts: Since 2013, councils have had the discretion to give owners a council tax discount on certain classes of empty properties.^[22] Owners can contact their council to ask whether it offers such a discount.
• Empty homes premium: Local authorities also have the power to increase council tax on properties which have been ‘unoccupied and substantially unfurnished’ for a set period of time.^[23] This is known as the empty homes premium. Individual councils can decide whether to levy this premium, which is distinct from the second homes premium. How much an owner pays depends on how long the property has been empty, but councils can charge up to four times the normal council tax if a home has been empty for at least 10 years. There are exceptions, however, such as when the property is an annex or an owner is in the armed forces and has had to move into forces accommodation for their work.
• Empty dwelling management orders: Under the Housing Act 2004, local authorities have the power to take over the management of certain residential premises that have been empty for at least two years by seeking an empty dwelling management order (EDMO).
• Compulsory purchase orders: Local authorities can also serve a compulsory purchase order (CPO) on empty properties when it cannot reach an agreement with the owner or they cannot be traced. These are considered a last resort and there are certain requirements a council must meet to serve such an order.^[24]
• Improvement of empty homes: Councils also have statutory enforcement powers to secure the improvement of empty properties.^[25] Under various legislation, local authorities can address issues such as dangerous or dilapidated buildings or structures, unsecured properties where there is a risk of vandalism, arson or similar, blocked or defective drainage or private sewers, vermin, and unsightly land and property affecting the amenity of an area.
• Enforced sale procedure: When a local authority has invoked enforcement measures and the owner of an empty property has no interest in bringing it back into use, the council may undertake work and reclaim the costs from the owner on completion.^[26]

The approach taken by each council to address the issue of empty homes varies, with local authorities having the discretion on how they use these powers.

3.2 Calls for an empty homes strategy

Currently, local authorities in England are not required to publish a specific strategy for dealing with empty properties.^[27] However, they are required to publish housing strategies which may include reference to tackling empty homes in their local area.

In February 2026, a group of industry stakeholders called for the government to launch a national strategy to bring empty homes back into use.^[28] A number of organisations, including the Big Issue, Women’s Aid, Shelter and the social impact property fund manager Resonance, wrote to the minister for housing and planning, Matthew Pennycook, calling for action. They argued that unaffordable rents, rising homelessness, record levels of temporary accommodation use and long waits for social housing meant that each empty home represented “a missed opportunity to provide settled housing, revitalise communities, and make efficient use of existing stock”. They added that “giving empty buildings a new lease of life is one of the quickest, greenest and most cost-effective ways to increase housing supply”.

On their call for a national empty homes strategy, the group said it should include:

• a fully funded local authority duty to investigate and act on long-term empty homes complaints
• national initiatives, such as a loan scheme, a national acquisition fund and an enforcement fund
• replacing the new homes bonus system with rewards for successful empty homes interventions
• ringfencing council tax premium revenue for local housing initiatives
• developing empty homes specific enforcement powers
• reducing stamp duty for purchasers where properties are used to meet local demand for social housing, and who provide homes for those on a pathway out of temporary accommodation^[29]

In response, the government said it was setting out plans to “make it easier for empty homes to be brought back into use and expect[ed] councils to use the powers we’ve already given them to ensure that this happens”.^[30]

However, some academics have argued that focusing on empty homes would only make a limited contribution to addressing the issues with housing. For example, the Centre for Cities has argued that filling long-term unoccupied properties would only make a small difference compared to the need to build more new homes.^[31] Similarly, a policy officer for the charity Shelter said that while converting empty homes would be helpful, it would not be a silver bullet. They stated in 2024 that even if all the empty homes were brought back into use as social rent homes, it would only have provided housing for 20% of the 1.3mn households that were on the social housing waiting list.^[32]

4. Government policy on empty homes

In October 2025, the Labour government led by Sir Keir Starmer was asked about the steps it was taking to reduce the number of vacant residential properties.^[33] Answering for the government, Mr Pennycook said it wanted to see more empty homes brought back into use and set out the government’s policy in this area.

Mr Pennycook highlighted local authorities’ powers to tackle empty homes. This included their powers to charge additional council tax on unoccupied properties and to take charge of the management of long-term empty homes through EDMOs. Mr Pennycook also stated that the government had outlined its intent to strengthen the ability of local authorities to take over the management of vacant residential premises in its English devolution white paper published in December 2024.^[34] He said that further details on this would be set out in due course.^[35]

Mr Pennycook also noted that local authorities can access funding through:^[36]

• The affordable homes programme 2021 to 2026, which provided grant funding to support the capital costs of developing affordable housing in England, including bringing empty homes back into use as affordable housing, either through purchase and repair or lease and repair.^[37]
• The local authority housing fund, which is a £2.2bn capital fund to support local authorities in England to obtain housing to use as good quality temporary accommodation for those owed a homelessness duty and to provide safe and suitable accommodation to support families on resettlement schemes.^[38]

In addition, Mr Pennycook said that through the new homes bonus councils could receive the same level of reward for bringing an empty home back into use as building a new one.^[39] However, this scheme’s funding is being absorbed into the core local government finance settlement from 2026/27 onwards.^[40]

Information on previous governments’ approaches to the issue of empty homes is set out in section 4 of the House of Commons Library’s briefing ‘Empty housing (England)’ (19 October 2023).

5. Read more

• Simon Taylor, ‘Want to fix the housing crisis? Tell empty home owners ‘use it or lose it’’, LBC, 10 July 2026
• Melissa York, ‘Why does Britain have half a million empty homes?’ Times (£), 26 February 2026
• Gela Pertusini, ‘Could filling empty homes solve the housing crisis?’, Royal Institute of Chartered Surveyors, 14 October 2024

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Image by Richard Bell on Unsplash.