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A record number of heat-related “emergencies” have been triggered by councils this year to help rough sleepers in England and Wales, Carbon Brief analysis reveals.

As climate change drives more heat extremes, there is a growing recognition that homeless people face a higher risk of illness and even death when temperatures soar.

This summer has been the hottest on record in the UK, with official warnings about heat-related health threats issued across every part of England and Wales.

The main tool councils have to help people sleeping rough during dangerously hot periods is the “severe weather emergency protocol” (SWEP).

Freedom-of-information (FOI) requests submitted by Carbon Brief to 93 local authorities across England and Wales with significant rough-sleeper populations reveal that SWEP use has surged this year.

Many councils have used the protocol to provide water, sunscreen and “cool spaces” for rough sleepers.

However, at least 20 councils said they have never triggered a SWEP during the summer months and others failed to provide any information when asked.

Dangerous heat

Climate change is increasing the severity of dangerously hot weather in the UK and these conditions harm certain groups more than others.

People sleeping rough are both more exposed to heat due to their living conditions and more likely to experience heat-related illness, due to underlying health conditions and other issues.

Councils shoulder much of the responsibility for helping homeless people in England – the part of the UK that faces the most extreme heat – as well as in Wales.

The main mechanism councils have to deal with weather extremes is the SWEP, which can involve giving emergency shelter to rough sleepers, among other things. There is no legal obligation to use SWEPs, meaning their implementation is not consistent or universal.

SWEPs have traditionally been a response to cold weather, but there has been growing awareness in the UK of the risk posed by heat, particularly since the extreme temperatures of summer 2022.

Charities and researchers have highlighted this issue and argued for hot-weather use of SWEPs as a necessary precaution to protect rough sleepers during heatwaves. In 2023, the UK government issued its first guidance for helping homeless people during hot weather.

Record SWEP

To investigate how local authorities are helping rough sleepers deal with heat extremes, Carbon Brief sent FOI requests to 90 councils in England and three in Wales.

This covers all areas with a sizable rough-sleeper population (see: Methodology). It also includes 33 London boroughs, which together are home to a quarter of the homeless population in England and Wales, plus the Greater London Authority.

Carbon Brief asked whether councils had been using SWEPs, how often and on which dates, during the summer months from 2022 to 2025.

This period saw the UK Health Security Agency (UKHSA) announce around 40 “heat-health alerts” across different parts of England, indicating temperatures that threaten public health.

The council FOI results reveal a surge in SWEP usage in 2025, as the UK faced its hottest ever summer. Just half way through summer in mid-July, councils had already collectively triggered SWEPs at least 149 times – up from 93 in the entirety of summer in 2024, as the chart below shows.

Bar chart showing that this year (2025) has seen councils declare a record number of heat-related emergencies for rough sleepers
Total annual number of SWEP activations by select councils in England and Wales with significant rough-sleeper populations. The data for 2025 only includes dates up to 17 July, whereas the other years cover the whole of June-September. Source: FOI responses.

Not all SWEP activations are the same, with some councils using it for single days and others triggering it for longer stretches.

Nevertheless, roughly the same trend emerges when looking at the total number of days that councils have activated SWEPs since 2022. By mid-July, 2025 had already seen the longest period of SWEP activation, as the chart below shows.

Bar chart showing that heat-related emergencies for rough sleepers have also been in place for longer than ever before
Total annual number of days on which SWEPs were activated by select councils in England and Wales with significant rough-sleeper populations. The data for 2025 only includes dates up to 17 July, whereas the other years cover the whole of June-September. Source: FOI responses.

The surge in SWEP activation mirrors both the record UK heat in 2025 and the growing salience of this issue, with more councils making use of it during the summer months. By July, 48 councils had triggered heat-related use of SWEPs this year, compared to just 36 two years earlier.

The increase may also reflect the numbers of people sleeping rough, which have surged in England over this time period, while remaining relatively steady in Wales.

‘Inadequate’ assistance

Previous analysis in 2023 by the Museum of Homelessness, a London-based organisation that researches homelessness, concluded that SWEPs were “inconsistently applied” and “inadequate”. It highlighted particular shortcomings in heat-related use of SWEPs.

Despite the surge in SWEP use this year, the data provided to Carbon Brief suggests that some councils are still not responding urgently to periods of extreme heat.

Of the 93 councils that Carbon Brief requested data from, 59 – or 63% – confirmed that they had activated SWEPs at least once during the summer months between 2022 and 2025, as shown in the figure below.

Common provisions resulting from this activation included the distribution of sunscreen, bottles of water and sun hats, as well as making “cool spaces” available and providing extra welfare checks. Most councils did not mention providing emergency accommodation.

Bar chart showing that two-thirds of councils said they had triggered SWEPs during the summer months
Number of select councils in England and Wales that indicated they have or have not used SWEPs between June and September, since 2022. Source: FOI responses.

Among the remainder, 14 councils either did not hold the data requested or never responded.

This leaves 20 councils that stated they did not trigger SWEPs at all during summers over this period, including those in Manchester, Nottingham and Cornwall.

All of the regions covered by these local authorities were issued with heat-health alerts in 2025.

Some of these councils said they were mindful of hot weather and mentioned other actions taken during these periods, some of which overlapped with SWEP responses.

Other councils, including Plymouth, Hastings and the London boroughs of Waltham Forest and Barking and Dagenham, did not mention any provisions for rough sleepers during periods of extreme heat.

Matthew Turtle, co-director of the Museum of Homelessness, tells Carbon Brief:

“These findings, like our own research, show that many councils opt not to help people who need it the most when there is extreme weather…This is not just smaller councils, but includes major towns and cities across the UK, who simply have no emergency protocol in place to protect people who are homeless during spells of extreme weather.”

Turtle argues that the use of SWEP should be made a legal duty in order to guarantee protection from extreme weather for those sleeping rough.

Researchers have argued that extreme heat should be taken more seriously by authorities when dealing with rough sleepers, with one study finding that homeless people in London were 35% more likely to be hospitalised at 25C compared to 6C. The authors suggest this is because people are better prepared for the threat of cold weather.

Dr Becky Ward, a researcher at the University of Southampton who is investigating how climate change interacts with homelessness, tells Carbon Brief that “the conversation is changing and awareness is building” about this issue. She adds:

“There’s a more fundamental need to improve the provision of shelter for people experiencing homelessness, alongside providing psychological support to address the causes and maintaining factors for people who are rough sleeping.”

Methodology

Carbon Brief obtained the list of 93 local authorities with significant rough-sleeping populations in England and Wales from the Museum of Homelessness. The criteria for this included being in one of the top 50 most populated cities in the UK, having a rough sleeping count of at least 15 people and/or being a London borough. These councils make up 28% of the 317 local authorities in England and 14% of those in Wales.

FOI requests were sent to these councils, asking for details of when SWEPs were activated and for how long over the summers of 2022-2025, as well as information about what activities this involved. (These requests were sent in mid-July, meaning data for 2025 is only for half the summer period.)

Carbon Brief asked for SWEP activations between June and September, mirroring the timescale used by the UKHSA and the Met Office for their heat-health alert service.

The results demonstrate the ad-hoc nature of SWEP use, with different councils using it in different ways and some relying on third-party organisations to coordinate their responses. Nevertheless, the combined results capture overall trends.

Some 20 councils said they did not record SWEP activations, or only kept partial records. Another five never responded to Carbon Brief’s FOI request.

In this article, Carbon Brief has used the term “rough sleeper” when referring to people sleeping outside or in other spaces not designed for people to stay. When referring to studies or datasets that cover the wider homeless population, the term “homeless” has been used.

The post Revealed: Use of heat ‘emergencies’ for rough sleepers hits record in England and Wales appeared first on Carbon Brief.

Revealed: Use of heat ‘emergencies’ for rough sleepers hits record in England and Wales

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‘Bloody dangerous territory’: UN report an indictment of govt climate inaction

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KOROR, PALAU, Wednesday 2 September 2026 — The new global heating projection by the United Nations Environment Programme (UNEP) has laid bare the dire realities of inevitable climate disaster, loss and damage for the Pacific and Australia in a 1.8°C world, with Greenpeace warning ‘we are now in bloody dangerous territory’, and must do everything possible to return warming to 1.5°C.

The report, Limiting Overshoot – Navigating exceedance of 1.5°C and pathways towards return, released as world leaders meet at this year’s Pacific Islands Forum in Palau, highlights the urgency of the climate crisis, the greatest security threat facing the Pacific. It comes as fracked gas from the Beetaloo Basin, one of Australia’s biggest climate bombs, began flowing for the first time.

Australia is the biggest polluter of all Pacific Islands Forum member states, far exceeding all other forum members combined. Greenpeace is calling on Prime Minister Anthony Albanese to centre Pacific priorities at the Forum, and walk the talk on climate solutions as a genuine family member of the Pacific.

Speaking from Palau, Shiva Gounden, Head of Pacific at Greenpeace Australia Pacific, said: “The latest UNEP report has printed in black and white that fossil fuel-hungry nations have overstepped, overshot and overindulged at the expense of Pacific lives, livelihoods, cultures and communities. This year’s Pacific Islands Forum has made it more apparent than ever that climate change is the region’s greatest security threat, and we cannot waste time on geopolitical power games when our world is sinking beneath our feet.

“As a person from the Pacific, I know our communities will not quietly accept these dire warnings of climate overshoot as our fate; we are already living and fiercely resisting this reality every single day. With every increment of warming, our lands, our livelihoods, and our island homes are threatened, but the Pacific’s resolve only grows stronger. We draw strength from our ocean and those who walked before us; our people are the protectors of the frontlines of climate change and the beacons of climate justice.

“By harnessing the natural power of our sun, winds, and seas through a rapid transition to renewable energy, and uniting in true global collaboration, we can steer back to 1.5°C – this is our moral, legal, and scientific imperative. A Fossil Fuel Free Pacific can breathe life back into the lungs of our islands.”

Also in Palau, Dr Simon Bradshaw, COP31 Lead and climate expert at Greenpeace Australia Pacific, said: “The UN report is warning that we are now in bloody dangerous territory. It lays bare the deadly consequences of reckless fossil fuel expansion, and a failure to listen to Pacific voices and to the decades of emphatic scientific warnings.

“It is a damning indictment of government climate inaction and negligence, coming just days after fracked gas from the Beetaloo Basin started flowing and Woodside’s disastrous Browse gas mega project undergoes Federal decision — two carbon bombs that would lock in decades of dangerous climate pollution and push us past the point of no return.

“Every new fossil fuel project pushes us closer to dangerous and irreversible tipping points in the climate system, with almost unimaginable consequences for the safety and security of communities in the Pacific, Australia and around the world.

“The task now is to minimise the magnitude, duration and consequences of any temperature overshoot. A pathway back to 1.5°C is possible but this pathway cannot be paved by fossil fuels.

“Accelerating the shift from fossil fuels to renewable energy, and working with our big energy partners across Asia to decarbonise together, is not only the path back from the climate brink, but also the key to our energy security and our future prosperity.”

Also in Palau, Vishal Prasad, Director of Pacific Islands Students Fighting Climate Change, said: “This report is terrifying for the young people of the Pacific. We know what 1.5, and what anything beyond it, means for our future, our families, our culture and our environment. 1.5 to stay alive has never been just slogan. It is our reality.

“The International Court of Justice has made it clear: keeping to 1.5 is not a choice, it is a legal obligation. Every new fossil fuel project drives us further from it. So we are not asking for your goodwill. We are not begging you. We are telling you what international law requires of you: end fossil fuel expansion. No new coal, no new oil, no new gas. Your corporate profits cannot be allowed to extinguish our future.”

—ENDS—

Greenpeace Australia Pacific has delegates from the Pacific and Australia at the PIFLM in Palau available for interview

Headshots can be found here

Media contact: Kimberley Bernard in Palau on +61407 581 404 or kbernard@greenpeace.org

‘Bloody dangerous territory’: UN report an indictment of govt climate inaction

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UN sets out narrow path back to 1.5C warming after inevitable overshoot

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Governments must slash emissions further and faster, and keep every climate promise they have made for the planet to be able to return to 1.5C of warming by the end of the century after an inevitable overshoot, a group of prominent climate scientists has said.

In a flagship new report sketching out a way not to lose the most ambitious Paris Agreement goal, the scientists said that global temperatures need to peak at no higher than 1.8C above pre-industrial levels to give the world “a fighting chance” to reverse course. They added that plans to suck carbon dioxide out of the atmosphere can only play a limited role in this effort and cannot substitute for emissions cuts.

A return to the 1.5C warming limit will only be reached in an optimistic scenario that sees governments turn their full national climate plans – known as NDCs – into reality and meet their additional, more ambitious targets to reach net zero emissions, said the report published by the UN Environment Programme (UNEP).

Actual government policy is far off that track. Current measures to cut emissions that are funded and in force put the world on course for around 2.8C of warming by 2100, UNEP has previously found.

Joeri Rogelj, professor of climate science and policy at Imperial College London and one of the report’s authors, said it is necessary to keep the temperature peak as low as possible as there are limits to how fast the world can reverse global warming.

That is because the scale of carbon dioxide removal (CDR) interventions that can be implemented sustainably and in a just way will otherwise not be sufficient and some measures, such as tree-planting or forest management, will be less effective at higher temperatures, he added. 

Commenting on the report, UN Secretary-General António Guterres called for the 1.5C overshoot to be “as small and short as possible”. This, he added, “demands an overshoot of ambition”, involving accelerating the phaseout of fossil fuels and pursuing the renewables revolution, slashing methane pollution, and protecting land, forest and oceans.

“Governments must over-deliver on national climate plans, net-zero commitments, and beyond,” he urged in a video message. “The fight for 1.5 degrees is the fight for humanity.”

Overshoot, peak and decline

The report comes out nearly a year after the UN conceded for the first time that it is inevitable that global warming will exceed 1.5C temporarily and the world should focus on making that overshoot as small and short as possible.

UNEP’s Executive Director Inger Andersen told journalists that 1.5C remains the key goal, but “we now need a different approach from above”, while stepping up efforts to adapt to a warming world.

“A return to 1.5C is not assured,” she added. “But limiting the magnitude, duration and consequences of overshoot, while preserving the possibility of bringing temperatures back down, is the best remaining option to protect vulnerable people, reduce losses and secure a livable future for all.”

Battle over cleaning up shipping set to resume at London talks

Scientists warn in the report that warming above 1.5C should not be seen as safe or acceptable. Climate risks above that threshold intensify with every additional fraction of a degree of warming, they said. The report paints a grim picture of expected climate impacts: glaciers could lose more than a quarter of their remaining mass by 2100 and global food production could fall by as much as 14% by 2050 without effective adaptation.

Some small island developing states and low-lying coastal cities could be partially or completely submerged, while damaged ecosystems could further accelerate climate change.

“This report is a ‘fork in the road’ moment for the planet,” said Surangel Whipps, Jr., president of the Pacific island nation of Palau. “It is a further glimpse into a perilous future that has already arrived. To continue to have a fighting chance, calls for greater ambition are no longer enough – we need to see an urgent and unprecedented increase in political will and investment in a climate-safe future.”

Cut emissions first, remove carbon after

The authors call for a three-phase approach to bringing temperatures back down: an “immediate response” of deep and rapid emissions cuts and urgent protection for the most vulnerable as warming approaches and passes 1.5C; a “coping and containment” phase focused on reaching net-zero emissions and building resilience as temperatures peak; and a “long-term resilience” phase of net-negative emissions through carbon dioxide removal (CDR) and lasting adaptation as temperatures eventually decline.

Richard Betts, who leads climate impact research at the UK Met Office, said CDR is not a “get-out-of-jail-free card” and should only be additional to emission reductions that need to be achieved with “even more urgency than before”.

    Critics of CDR have long pointed to the technology’s record of overpromising and underdelivering, and warn it has been exploited by the fossil fuel industry and some oil-producing states to try to delay the clean energy transition.

    Not everyone was fully convinced by the UNEP overshoot report. Veteran climate scientist Bill Hare from Climate Analytics said it “does a good job of describing the hole we’ve dug ourselves into” but “a poor job of showing us that there is a way out”. He argued that its thin treatment of the need for a fossil fuel phase-out and ambitious mitigation pathways to cut emissions risk “turning it into a call to apathy rather than a call to arms”.

    “Host of challenges” with CDR

    Debra Roberts, honorary professor at the University of KwaZulu-Natal in South Africa, told journalists that limiting global warming to around 1.8C is needed to give the world “a realistic and fighting chance” of returning to the 1.5C limit because of the “questionable” feasibility of interventions above that threshold.

    CDR comes with “a whole host of challenges”, she added, including the impacts on food and water security of rolling out large-scale programmes and the unanswered questions of whether newer technologies will work at scale and who will foot the bill.

    “It’s going to happen in a very, very complex decision-making space where the risks and impacts are dramatically becoming more complex and interrelated,” she said. “That’s why the pressure there is keep those emissions as low as possible because they give us the greatest fighting chance of the return to 1.5C in a more equitable and just way.”

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    Keeping to 1.5C of warming is no longer possible – but we must still limit the overshoot

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    Laurence Tubiana is CEO of the European Climate Foundation and was formerly France’s Climate Change Ambassador and Special Representative for COP21 in Paris.

    The UN has released a report this week confirming what many people have feared: the world is going to pass 1.5C of warming.

    At current emissions, the remaining carbon budget will be exhausted within roughly three years. We are heading into “exceedance” of the 1.5C threshold: a sustained breach of the Paris Agreement’s primary temperature goal before any possible return below it.

    1.5C is the line we should not have crossed – and, once we cross it, the line we must quickly get back below, on what the UN Environment Programme calls an “overshoot, peak and decline pathway”.

      Of course, climate risk is a spectrum: 1.4C is not safe, and 1.5C is not a sudden cliff edge. But the further the world moves beyond that level, the harder it becomes for communities and economies to adapt, and the greater the risk of more abrupt or systemic changes.

      The importance of 1.5C

      Some will argue that exceeding 1.5C means the Paris Agreement has failed, and that it is no longer a useful threshold. I disagree.

      Before Paris, the world was heading for roughly 3.5C to 4C of warming. The UN now estimates that warming will reach a lower level of around 2.6C by 2100, due to policies implemented since Paris. That is still far too dangerous, but it is not the same world we were facing in 2015.

      When we negotiated the Paris Agreement, 1.5C was not an arbitrary number. It was fought for by small island states and other climate-vulnerable countries because it represented a red line for their survival. Since then, we have witnessed the stark impacts of global temperature rises even in countries that did not consider themselves vulnerable, as seen with the devastating heatwaves in Europe this summer.

      WHO issues new guidance on heat-health action plans, as El Niño sets in

      The International Court of Justice underlined this in an advisory opinion, endorsed overwhelmingly by the UN General Assembly earlier this year, recognising 1.5C as the primary temperature threshold under the Paris Agreement and affirming that states must align their commitments with it. Overshoot does not move the goalposts. 1.5C remains the benchmark we must work to return to.

      Lasting consequences of overshoot

      But even as we fight to get back below 1.5C as quickly as possible, we now have to reckon honestly with what overshoot means. We are entering a period for which our societies, economies and institutions are not prepared. Even if overshoot itself is temporary, many of its consequences will not be. The longer it lasts, and the higher temperatures rise, the greater the lasting damage. We therefore need to limit its duration and magnitude.

      The longer warming remains above 1.5C, the greater the risk of crossing tipping points in major Earth systems such as ice sheets, the Atlantic Meridional Overturning Circulation, permafrost and tropical forests. Crossing them can trigger self-reinforcing changes that may prove irreversible even if temperatures later fall. We need to understand and monitor these systems more than ever. That requires sustained investment in climate science – just as funding is being cut in many places.

      An overshoot pathway will also strain human systems. When a flood destroys a home, the damage is not undone because global temperatures later fall. Crop failures, missed schooling, debt and displacement can have lasting effects. Farms, cities, healthcare systems and insurance markets will all have to cope with risks they were not designed for, and risk facing “tipping points” of their own, such as financial panic when markets suddenly reprice risks they had underestimated. Infrastructure built today will stand for decades, so we need to design and plan for the climate risks it will actually face.

      From firefighting to future-proofing: Preventing wildfires must be the priority

      Our priority must be to transition away from fossil fuels and rapidly cut emissions, including short-lived climate pollutants like methane. It traps around 80 times more heat than carbon dioxide over a 20-year period, and cutting it sharply can act as an emergency brake on near-term warming. Much of the methane from fossil fuel operations can be cut with existing technologies.

      We will also need sustainable carbon dioxide removal, although its role will be limited: trying to use it as a substitute for emissions cuts would be prohibitively expensive at scale.

      The radical options

      The major risks of overshoot have led to proposals to explore active intervention in the climate system itself. Solar radiation modification (SRM) is the best-known example: reflecting a small share of sunlight back into space to reduce warming. Other proposals would target different parts of the climate and Earth systems, such as trying to stabilise glaciers.

      These responses would bring us into further uncharted territory across Earth systems and nature, diplomacy and governance, technology and societies.

      Such ideas are born of genuine concern about the major risks facing vulnerable countries and communities as temperatures rise. But even under the most favourable assumptions, these are tactics for managing some of the symptoms of overshoot, not a strategy for addressing its causes. Greenhouse gases would keep accumulating, oceans would keep acidifying, and many of the social and economic impacts of overshoot would remain.

      EU warns on solar geoengineering but research debate grinds on

      The more we learn about the complexity of the climate and Earth systems we are disrupting and how much uncertainty there already is, the clearer it becomes that full control is likely an illusion, and new interventions bring new complex risks. SRM, for example, could change regional climates, such as rainfall patterns or agricultural production, in ways that benefit some regions and harm others, with knock-on geopolitical risks.

      Governance and research needed

      None of this is an argument against research into these technologies. On the contrary, the risks they’re responding to are so extreme that we must explore all the options we might have. But we need to understand the potential effects and capabilities much better and from many more angles, including the political and social implications. Serious global governance is particularly urgent, alongside transparent research that is open to scrutiny.

      But the fundamental elements of a strategy to navigate overshoot are already understood. The priority is still to rapidly cut greenhouse gas emissions to limit peak warming, protect people against the warming already locked in, and ensure technological innovation aligns with the public interest.

      Overshoot is not just an engineering challenge. We need a full-scale response across societies, economies and political systems to prepare to navigate a more uncertain climate.

      The post Keeping to 1.5C of warming is no longer possible – but we must still limit the overshoot appeared first on Climate Home News.

      Keeping to 1.5C of warming is no longer possible – but we must still limit the overshoot

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