by Martins Moors, Head of Social Administration, Welfare Department, Riga City Council, Latvia
Why rethink homelessness services
Across Europe, homelessness remains a persistent social challenge. In Riga, traditional responses have mainly focused on emergency shelters. However, the system has historically addressed immediate needs rather than long-term social inclusion. Latvia still lacks a unified legal definition of homelessness, and policy responses have largely prioritised temporary accommodation solutions
Evidence shows that homelessness is rarely caused by a single factor. A qualitative municipal study conducted in 2021 analysed life pathways into homelessness through narrative interviews. The study identified common patterns, including fragile family and weak informal support networks, unstable employment histories, limited education, low social skills, and untreated health conditions. Importantly, many homeless individuals expressed a clear motivation to return to what they described as a “normal life”, if stable housing and appropriate support were available.
At the same time, service providers observed increasing complexity of client needs. Around 84% of shelter users are middle-aged men, often experiencing multiple social and health-related difficulties. This highlights the need for integrated, person-centred solutions rather than fragmented crisis responses.
Housing First as a catalyst for change
To respond to these challenges, Riga introduced the Housing First approach. Housing First is based on a simple but transformative principle: housing is a starting point, not a reward. Unlike traditional staircase models, it does not require individuals to demonstrate readiness before accessing housing. Instead, stable housing creates the foundation for gradual recovery, autonomy, and social participation.
The pilot project was implemented in cooperation between Riga City Council Welfare Department and the Latvian Samaritan Association, with financial support from the Society Integration Foundation. External funding helped create the conditions for policy experimentation and mobilised cooperation between public and non-governmental actors.
The Riga pilot involved 28 participants and introduced a shared responsibility model. The municipality ensured client selection and housing costs, while the NGO provided individual support plans, mentoring, and cooperation with private landlords.
Innovation adapted to local housing conditions
One of the main innovations of the Riga model was cooperation with private landlords. Riga municipality owns only a limited share of housing stock. Therefore, the NGO rented apartments in the private market and acted as an intermediary between landlords and programme participants.
However, in practice, landlords tended to prioritise the security of stable payments guaranteed by an NGO over potential prejudices or perceived risks associated with the target group. However, this approach proved to be a key success factor, enabling faster access to stable housing compared to relying exclusively on municipal housing resources, whose allocation is subject to strict and relatively inflexible regulatory and legal requirements.
The model also introduced a locally adapted client selection approach focused on individuals demonstrating motivation to improve their living situation. This allowed for more efficient use of support resources, enhanced programme sustainability, and supported the integration of the Housing First approach in line with prevailing societal expectations regarding client engagement and responsibility.
Evidence of impact and future direction
Evaluation results demonstrate strong positive outcomes. 98 per cent of participants improved their living conditions, 80 per cent reported improved quality of life, and 97.7 per cent retained housing after seven to eleven months. Since November 2023, the programme has supported 40 clients, including 25 programme places and 5 aftercare places. Seven participants have already transitioned to independent living, confirming the long-term stabilisation potential of the approach.
Recent social worker assessments covering 228 clients indicate that 20% demonstrate high readiness for independent living, while 46% show partial readiness and need structured mentoring support. This supports the development of a diversified ecosystem of social services tailored to different client needs.
Housing First has been integrated as a permanent municipal service in Riga since 2024. The experience demonstrates how cooperation between municipalities, NGOs, and private landlords can create sustainable pathways out of homelessness. Housing First thus represents not only a service innovation, but also a shift towards more preventive, evidence-based, and inclusive social policy in Europe. The Riga experience shows that addressing homelessness requires a diverse range of services, alongside demonstrable results to sustain Housing First as an ongoing policy practice.
