The challenge of accommodating asylum seekers in the UK is significant and costly, with the Home Office spending billions annually, much of it on temporary solutions like hotels. In the 12 months to December 2023, there were 67,300 asylum applications made, and by the end of January 2024, approximately 45,800 people were housed in hotels, contributing to an expected spend of £3.1 billion on hotels within a £4.7 billion asylum support budget by March 2024. This unsustainable reliance on temporary measures highlights an urgent need for more stable, dignified, and cost-effective alternatives. Amidst this crisis, the increasing prevalence of vacant office spaces across the UK presents a compelling, albeit complex, opportunity for adaptive reuse.
The shift towards remote and hybrid working models, accelerated by the pandemic, has left numerous commercial buildings underutilised or entirely empty in urban centres. This presents a potential solution for housing, including accommodation for asylum seekers. The concept of converting empty offices into homes is not new, and it offers several inherent advantages such as preserving embodied energy in existing structures and revitalising urban areas. Crucially, these unused office blocks are often located in urban areas, which are inherently better suited to accommodating asylum seekers due to existing public transport networks, readily available amenities, and established support services. These buildings are often in prime locations with existing infrastructure, such as transport links and utilities, which could make them suitable for residential conversion.
Converting these unused commercial properties into accommodation for asylum seekers offers multiple potential benefits. From a financial perspective, long-term conversion can be significantly more cost-effective than the current reliance on hotels. The Home Office was reportedly spending over £8 million per day on hotels for asylum seekers in early 2025 [1], with hotels costing on average seven times more than other types of asylum accommodation in 2022/23 [2]. An average hotel bed can cost around £127 to £148 per person per night [3]. In stark contrast, an alternative capital subsidy programme where properties are bought or renovated for temporary housing, and then managed by local authorities or housing associations, could see the cost recovered in as little as seven months from savings on hotel charges [4]. For instance, accommodating three people in a three-bedroom house could save on average £150,395 per annum compared to hotel costs [4]. Studies suggest that a capital subsidy model for purchasing and renovating homes for asylum seekers could see payback periods of around 6.5 to 6.8 years compared to current temporary accommodation costs [5], and after this payback, the average annual cost per person could fall drastically from around £54,020 in a hotel to just £3,888 [5]. This provides more dignified and stable housing than hotel environments, allowing asylum seekers to live in self-contained accommodation while their claims are processed. This can foster a better sense of community and stability, potentially aiding integration into local areas once status is granted. The revitalisation of vacant office blocks can breathe new life into struggling urban business districts, increasing footfall and supporting local amenities. The adaptive reuse of existing buildings aligns with sustainability goals by reducing the need for new construction on greenfield sites and making efficient use of urban land.
A significant distinction lies in the typical demographics of communities found near unused office blocks compared to those surrounding hotels currently used for asylum accommodation. Unused office blocks are largely situated in urban centres, which tend to have younger, more ethnically diverse populations with a higher proportion of renters [6, 7]. These areas often possess a robust pre-existing infrastructure of public transport, diverse amenities, and a concentrated array of social, healthcare, and educational services. This environment is inherently better positioned to absorb new residents and facilitate their integration, as it is already accustomed to diverse populations and has established support networks. In contrast, many hotels currently housing asylum seekers are located in seaside towns or more isolated rural areas [8]. These communities may have older, less diverse populations and economies heavily reliant on tourism [9]. A sudden influx of asylum seekers into such areas can represent a more significant demographic shift, potentially straining local services that are not equipped for such a demand, and sometimes leading to heightened community tensions if not managed with sensitive support and communication [10, 11].
Despite the compelling potential, converting offices into accommodation for asylum seekers is not without its significant challenges. A primary hurdle lies in planning and regulatory complexities. Local authorities frequently contest conversions, particularly when they involve a “material change of use” from commercial (Use Class C1) to residential or hostel use (often considered sui generis or Houses in Multiple Occupation – HMO). This can lead to legal disputes, judicial reviews, and injunctions, as seen in cases where councils have challenged the Home Office’s use of hotels. While “permitted development rights” (PDRs) have made some office-to-residential conversions easier by bypassing full planning applications, critics argue that homes created under PDRs often lack adequate quality standards, particularly regarding structural safety, accessibility, protection from damp, and overheating. There are also concerns that these conversions may not include statutory affordable housing contributions. In a controversial move, the government has introduced regulations to exempt asylum seeker accommodation from some HMO licensing requirements, a decision widely condemned by housing advocates who fear it could lead to poorer living conditions and fire safety risks.
Beyond regulatory issues, there are substantial technical constraints. Not all office buildings are suitable for residential conversion. Factors like the building’s structure, façade, floor plan, and the location of stairwells and elevators can pose significant architectural and engineering challenges. The cost of necessary modifications to meet residential standards (e.g., for natural light, ventilation, fire safety, sound insulation, and accessibility) can sometimes be higher than the cost of new construction or demolition. Local authorities also bear significant additional costs for supporting asylum seekers, including education services for children, public health initiatives, and community cohesion programs. These expenses are often not fully covered by central government funding, leading to resistance and capacity issues for councils. Local communities may express concerns regarding the concentration of asylum seekers in certain areas, leading to public pushback or integration challenges if not managed sensitively.
A significant hurdle to successful asylum seeker accommodation is public anger and negative perceptions, which often stem from misinformation, fears over resource strain, and hostile narratives. Effectively addressing this requires a multi-faceted approach. Transparent and factual communication is crucial, involving clear information about who asylum seekers are, why they seek refuge, and the realities of the asylum system. Debunking common myths, such as the idea of large handouts or disproportionate use of public services, is essential. Humanising the issue through lived experiences and positive narratives can help build empathy and understanding. Robust community engagement and dialogue are also vital; local authorities and accommodation providers should proactively communicate with communities about new accommodation plans, explaining the purpose and support mechanisms. Encouraging local leaders from across sectors to speak out against hostility and advocate for welcoming approaches can significantly influence local sentiment. Organising positive community events that foster connections and shared understanding between long-term residents and new arrivals can build solidarity, and mapping and coordinating existing local services and community groups also ensures efficient support and addresses potential concerns. It’s also important to acknowledge and address legitimate local concerns about pressure on services like healthcare, education, and social care. Advocating for transparent, sufficient, and sustained central government funding for these services is critical to alleviate local strain and resentment. Crucially, demonstrating political will to implement stable, dignified, and cost-effective solutions can itself combat public anger, as it signals a commitment to resolving the current unsustainable situation rather than perpetuating it. Emphasising how asylum seekers, once granted status, can contribute to the local economy and society can also foster positive perceptions. Policy and legal frameworks are integral, upholding human rights for all asylum seekers and challenging policies that create a “hostile environment” to help dismantle fear and discrimination. Ensuring clear, mandatory quality and safety standards for all accommodation, with robust oversight, is also paramount to prevent legitimate grievances and improve living conditions.
To successfully implement a strategy of converting unused offices for asylum seeker accommodation, given that hotel accommodation is not best suited for long-term housing, a multi-faceted approach is required. This would involve strong collaboration between the Home Office, local authorities, housing associations, and private developers. It is crucial to establish clear, mandatory quality standards for all converted homes, ensuring they meet the Decent Homes Standard and address concerns about health and safety. Funding mechanisms, such as a well-structured capital subsidy model, could incentivise conversions and demonstrate long-term cost savings, with significant funds for these initiatives being directly available from the considerable savings achieved by reducing reliance on expensive hotel accommodation. Proactive engagement with local communities and investment in support services (like healthcare, education, and integration programmes) are essential to ensure successful integration and mitigate local concerns.
In conclusion, converting unused urban office spaces offers a viable and potentially more humane and cost-effective alternative to the UK’s current reliance on temporary asylum accommodation. While significant planning, technical, social, and public perception challenges exist, these can be overcome through strategic policy, adequate funding made available in savings from not using hotel accommodation, robust quality control, and genuine collaboration. A well-regulated programme of office conversions could not only provide suitable homes for asylum seekers but also contribute to urban regeneration and a more sustainable approach to housing in the UK.
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GB News. (2025, June 6). True scale of Britain’s migrant hotel crisis EXPOSED as petition to halt asylum spend hits 300000. https://www.gbnews.com/news/migrant-crisis-asylum-hotels-petition-signatures-keir-starmer-home-office
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National Audit Office. (2024, March 20). Investigation into asylum accommodation – Summary. https://www.nao.org.uk/wp-content/uploads/2024/03/investigation-into-asylum-accommodation-summary.pdf
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Refugee Action. (2023, February 20). Heartbreak Hotels. https://www.refugee-action.org.uk/heartbreak-hotels/