RESPONDING TO HOMELESSNESSINNEWZEALANDOCTOBER 2007
←
→
Page content transcription
If your browser does not render page correctly, please read the page content below
P A R I T Y
Responding to OCTOBER 2007
Homelessness in New Zealand
Print Post approved PP328866/0060
ISSN 1032-6170
ABN 20 005 475 007
VOLUME 20 • ISSUE 9PARITY · Volume 20, Issue 9 · October 2007
Council to
Contents
Homeless Persons
Chief Executive Officer: Deb Tsorbaris
Policy Officer: David Wright-Howie
Homelessness Advocacy Service:
Co-ordinator: Annie Paliwal
Advocates: Michala Wright
Editorial 3
and Angela Kyriakopoulos
Parity Editor: Noel Murray
Introduction
By Clare Aspinall, Social Environments Advisor, Regional Public Health, Lower Hutt
4
Youth Policy Officer: Jane Lazzari
Administration Officer: Joy Pagalos Chapter 1:Understanding Homelessness in New Zealand 5
Address: 2 Stanley St, Collingwood,
Melbourne 3066
A:A Definition for New Zealand 5
Defining Homelessness: Implications for Policy 5
Phone: (03) 9419 8699 By Dr Chez Leggatt-Cook, for Methodist Mission Northern
Fax: (03) 9419 7445 B:A Framework 7
E-mail: parity@chp.org.au A Public Health Approach to Homelessness 7
By Kate Amore and Clare Aspinall,Social Environments Advisor, Regional Public Health, Lower Hutt
Promotion of C: Getting the Numbers 9
Auckland City Street Count Results 2007 9
Conferences, By Lynsey Ellis, Homeless Team Coordinator, Community Mental Health and Wilf Holt, Team Leader Crisis Care, Auckland
City Mission
Events and Publications Geographies of Homelessness in New Zealand 11
By Damian Collins and Robin Kearns, Geography Department, Auckland University
Organisations are invited to have their
promotional fliers included in the monthly
D:Women 13
Women’s Homelessness and Family Violence 13
mailout of Parity. By Kate Amore, University of Otago and Debbie Robinson, National Collective of Independent Women’s Refuges
Rates: $90.00 National distribution, Homelessness: A Hidden Problem for Women in New Zealand 14
By Debbie Hager, Homeworks Trust, Auckland
$70.00 Statewide distribution only.
E: Men 16
Write for Parity! Just Housed: The Housing Experience of Men on Their Own
By Bonnie Robinson and Dr Leanne Smith, the Salvation Army Social Policy and Parliamentary Unit
16
Contributions to Parity are welcome. Each F: Considering Causes 18
issue of Parity has a central focus or theme. Driven, Dropped, Drawn: Pathways into Homelessness in Wellington 18
However, prospective contributors should By Kate Amore, University of Otago
Gambling as a Preceptor for Homelessness 20
not feel restricted by this as Parity seeks to By Kate Bukowski, The Salvation Army, New Zealand
Responding to Homelessness in New Zealand
discuss the whole range of issues connected
with homelessness and the provision of Chapter 2:The Leading Role of Local Government 22
housing and services to homeless people. Homelessness in Auckland: A Local Council’s Response 22
By Councillor Betty McClaren and Rina Tagore, Senior Community and Social Policy Planner, Community Planning, City of
If possible, the length of contributions should Auckland
be no greater than 1000 words. Please Shared Goal to End Homelessness: A Wellington City Council Perspective 24
By Wellington City Council
consult the Parity editor if this is insufficient. Enough Already: Quantifying the Cost of Homelessness in Auckland 26
By Sarah Lang, Committee for Auckland
Where necessary, contributions will be
A Plan for Homeless and Marginalised Populations in Auckland’s Inner City 28
edited. Where possible this will be done By Gravitas Research and Strategy
in consultation with the contributor.
Chapter 3:Housing 30
Parity Web Site Responding to Homelessness: Housing New Zealand 30
By Mike Stringfellow, Housing New Zealand
www.chp.org.au/parity/
Blind Faith in Markets 31
Contributions can be sent by e-mail to By Alan Johnson, Social Policy Analyst, The Salvation Army Social Policy & Parliamentary Unit
parity@chp.org.au or sent on disk in a Comcare Trust Housing Service: Specialist Housing Responses for People Who Experience Mental
Illness and are Facing Homelessness 32
Microsoft Word or rtf format to: By Louise Lewis, Comcare Trust
Council to Homeless Persons, “When things go wrong they really go wrong” Can a group like Tenants Protection Association help
to prevent homelessness? Yes! 33
2 Stanley St, Collingwood VIC 3066 By Helen Gatonyi, Lisa Coulter and Ali Brunel, the Tenants Protection Association, Christchurch
If neither of these two options is possible, Housing Issues in Northland 34
By Chrissy McLoughlin, Emergency Housing Coordinator, Whangarei Emergency Housing Charitable Trust
contributions can be faxed on Rebuilding the Kiwi Dream 35
(03) 9419 7445 By Alan Johnson, Social Policy Analyst, the Salvation Army Social Policy and Parliamentary Unit
or mailed to the above address.
Website design and maintenance proudly
Chapter 4:From the Coalface 36
A Collaborative Approach: Increasing Access to Services for Our Forgotten People 36
donated by Infoxchange Australia By Jak Wild, Community Outreach Co-Coordinator, Wellington Community Alcohol and Drug Service
Holly House: A Case for Supported Housing for Young Mothers 38
2007 By Liz Russell and Anna Thorpe, Christchurch City Council
Publications Schedule Homeless Outreach Treatment Team (HOTT) 40
By Lynsey Ellis, Homeless Team Coordinator, Community Mental Health
November: 20th Anniversary Edition Street 10 41
By Lisa Mora, Manager, Street 10, Inner City Interagency Trust
Expressions of interest in both Two Lives and a Bus Shelter 42
contributing and sponsoring are By Sister Margaret Mary
Falling Outside the Square and Between the Cracks: Social Crisis and Homelessness 43
welcome. By Bren Balcombe, Project Manager, Whatever it Takes Trust
Homelessness in Hakes Bay — “Paul’s Story” 44
The views and opinions expressed Complied by Paula Comerford,Property Group/WIT
in Parity are not necessarily Christchurch City Mission Night Shelter 46
By Michael Gorman, City Commissioner, Christchurch City Mission
those of CHP
Wellington Needs a Wet House 47
The majority of the photos appearing By Stephanie McIntyre, Director, Downtown Community Ministry, Wellington
in this edition have been supplied
by Craig Thompson.
Chapter 5:Advocating for the Future 49
The New Zealand Coalition To End Homlessness 49
Cover image: “Mt Rolleston/Carved Homelessness Strategy Toolkit 51
Image” by Aaron James McDowell.. Developed by The New Zealand Coalition to End Homelessness 2007PARITY · Volume 20, Issue 9 · October 2007
Editorial in New Zealand knew about this project This is indeed
T his edition of Parity has its origins in
the visit to CHP of Kate Amore early
in 2006. Kate had come to Melbourne from
and had the opportunity to contribute to
the publication.
why so many of
the contributions
Wellington to undertake a series of filmed here focus on
This edition therefore is very much a result
interviews that would form part of a the crucial issue of definition. Getting a
of their dedication, hard work and
documentary that she and others were working definition that can be operationalised
commitment to get this project happening
making on homelessness in New Zealand. is absolutely necessary so that empirical
in time for the National Conference in
research can be undertaken to demonstrate
As a result of that visit an invitation was Wellington in December.
to policy makers that homelessness is
extended to attend and participate in what
At the same time as organising this tangible, concrete and real.
would be the second New Zealand
publication, members of this committee (and The Council to Homeless Persons is very
National Homelessness Forum in Auckland
many others) have been involved in the happy to join with the NZCEH in its
that was being hosted and organised by
establishment and development of the New endeavours to end homelessness in New
the Auckland City Council.
Zealand Coalition to End Homelessness, a Zealand. As sister organisations, I believe
This invitation was taken up by the editor New Zealand peak body that will give that we have a great deal to offer each other
of Parity who suggested to Kate that she structure and substance to the many voices and to learn from each other.
find out if there was any interest in a New for homelessness advocacy in New Zealand.
Zealand edition of Parity for 2007. In the
Speaking on behalf of the Council to Acknowledgements
discussions that followed a proposal for This publication would not have been possible
Homeless Persons I would like to strongly
such an edition was developed and without the sponsorship support of Housing
support them in all their endeavours to
eventually circulated at the Auckland Forum. New Zealand Corporation, Auckland,
advocate on behalf of the homeless, the
An early impetus to the proposal was the socially excluded and the socially Wellington and Christchurch City Councils
support that came from the Housing New marginalised. I know first hand of the and Regional Public Health. I would like to
Zealand Corporation who agreed to difficulties of homelessness advocacy and offer them our sincere thanks for their trust
provide the seeding funding necessary to of the importance of having a strong in CHP to have stewardship of this project.
pursue the project and enlist further organisational base that can draw strength Likewise, this publication would not have 3
sponsors and organisational partners. and support from the homelessness and been possible without the work of the
social housing sectors so that the needs
OPINION
Very quickly an informal team of project m e m b e r s o f t h e p ro j e c t o r g a n i s i n g
and interests of the homeless can be given committee Kate Amore, Clare Aspinall, Chez
supporters that had been formed in the
a voice, especially to government. Leggat-Cook, Lynsey Ellis, Rina Tagore and
aftermath of the Auckland Forum coalesced
into an organising committee whose main In doing this the NZCEH will have to overcome Anna Thorpe who all deserve our special
task would be to disseminate information the problem of denial. That is, that many thanks. Marc Slade from Wellington City
about the publication and enlist contributors. seem to believe or claim to believe that Council also played a pivotal role in getting
homelessness “does not exist” in Australia/ this publication happening.
By mid 2007 this organising committee had
New Zealand. These deniers take on many On behalf of the members of the Council
grown as had the number of project
forms and they operate both in government to Homeless Persons I would like to thank
sponsors. Eventually, Auckland, Wellington
and among the broader community. One of all those involved with getting this
and Christchurch City Councils and Regional
the ongoing tasks of a peak body like both project off the ground and wish all those
Public Health in Lower Hutt had joined the
CHP and NZCEH is to educate both the involved with the NZCEH the best in their
Housing New Zealand Corporation to
political elites, the wider community and the future work.
sponsor and support this project.
bureaucratic establishments that
It has been a great privilege to work with you.
The organising committee has worked homelessness is real and is not limited to the
extremely hard to make sure that all those very few people who survive on the streets Deb Tsorbaris, CEO
involved in responding to homelessness and who are stereotypically visible. Council to Homeless PersonsPARITY · Volume 20, Issue 9 · October 2007
Introduction
By Clare Aspinall, local agencies believe that they are produced and you are now reading our
Social Environments Advisor, limited in their ability and capacity to prevent first New Zealand edition of Parity.
Regional Public Health, homelessness. It was suggested that a
These successes are all to be celebrated
Lower Hutt national group be formed to help highlight
on Monday 3 December 2007 at Te Papa
the need for central government to take a
Tongarewa, The Museum of New Zealand
I n New Zealand (NZ) the issue of
homelessness has increasingly been
identified by agencies other than the
lead on creating such homelessness
prevention policies that are commonly
found in other countries.
in Wellington, where Wellington City Council
will host the 2007 National Homelessness
Ta n g a t a W h e n u a , 1 C o m m u n i t y a n d Conference — “Counting the Cost of
Voluntary Sector (the Sector) that has In November 2006, during the last national Homelessness”. Cost being measured in
traditionally provided services to people h o m e l e s s n e s s c o n f e re n c e , e n t i t l e d its broadest, social, health, economic and
who are homeless. In particular, a number “Homelessness, Everyone’s Problem — spiritual terms, from both a societal and
of city councils have taken an interest in No-ones Responsibility: Sharing individual perspective.
the issue of homelessness as a response Solutions and Strategies” a number of
This edition of Parity is an important part
to local circumstances, and following the agreements were reached.
of the collective actions in New Zealand
introduction of the Local Government Act Firstly an agreement was reached on that are required to reduce the social,
2002, are considering the welfare of people a definition of homelessness that the health, economic and spiritual disparities
who are homeless as part of their wider sector would use nationally; t h a t e x i s t b e t w e e n p e o p l e w h o a re
“community outcomes” responsibilities homeless and people who are not.
under the Act. Several councils are working Secondly, the expectations of
in partnership with the sector to develop conference members for a national I hope this edition will stimulate debate
strategies and action plans to prevent group were agreed upon, and about the origins of these disparities and
homelessness. In addition, in a number of result in cooperative action for change in
Thirdly, an agreement was reached
areas, regional staff from central the future.
to make the prevention of
government agencies such as the Ministry homelessness the focus of advocacy I would like to take this opportunity to
for Social Development, Work and Income in attempting to influence the central acknowledge all the people who have
4 and Housing New Zealand are involved in government’s policy agenda. been involved with this edition. Without
this work. your collective contributions this
In addition the Australian homelessness
Responding to Homelessness in New Zealand
In recent years, Auckland City has hosted magazine would not have been possible.
m a g a z i n e , P a r i t y , p ro d u c e d b y t h e
two homelessness conferences. Both of Thank you to all the sponsors and to the
Victorian Council to Homeless Persons,
these were attended by a wide range of many people who have contributed with
agreed to devote the whole of the October
agencies from the community, health, social articles, artwork and photography. Thank
2007 edition to issues of homelessness
services and local and central government you to those who have gifted their images
in New Zealand.
sectors. On both occasions speakers and and shared their experiences and finally,
delegates highlighted the need for the Since November 2006 there has been to those who believed that this edition
central government to recognise the issue considerable progress in all there areas. The of Parity would happen. I guess you are
of homelessness and to acknowledge the New Zealand Coalition to End the same people who believe that change
government’s role in forming public policy Homelessness (NZCEH) and its kaupapa, is possible and that together we can
and legislation to reduce the incidence and has been established, a New Zealand make a difference. ■
prevalence of homelessness. Without a focused toolkit to reduce the incidence of
centrally led ‘New Zealand homelessness in your community has been Footnotes
Homelessness Prevention Strategy’ or developed. A documentary ' Putting 1 see Glossary below.
coordinated central government policy, Homelessness into Focus' has also been 2 see Glossary below.
Glossary
These aren’t word-for-word translations, to live sustainably as a community on their own land. Can
also refer to just the land. May include other facilities such
but will help with understanding (hopefully)
as urupa (burial site) or places of worship.
Note that there is a legal definition of papakainga
1. tangata whenua — people of the land, people born of the
used under the Ture Whenua Act.
land where their ancestors have lived, indigenous people
5. Aotearoa — New Zealand
2. kaupapa — subject / issue / topic
Aotea = white cloud,
(kaupapa Māori = Māori ideology)
roa = long.
3. turangawaewae — place of standing, place where a Land of the long white cloud
person has rights and responsibilities.
6. wairau — I think this is meant to be wairua? Soul/spirit.
Area where a person can trace their whakapapa to
The part of a person that is not physical
— usually where your marae is/where your
whanau comes from 7. mana — prestige esteem, supernatural force in a person
4. papakainga — home. This can be used to describe 8. Tangata Tiriti — non-Māori NZers,
a home place, and the land surrounding. normally used in the context of discussions around
Can be anything from one place or house to a the Treaty and Treaty partners (tangata tiriti = those
collection of dwellings (small village) that allows people who belong to the land by right of the Treaty)PARITY · Volume 20, Issue 9 · October 2007
Chapter 1:
Understanding Homelessness in New Zealand
A:A Definition for New Zealand
Defining Homelessness: Implications for Policy1
By Dr Chez Leggatt-Cook, two key ways. The first argument holds that and citizen participation (Anderson and
for Methodist Mission homelessness is the result of personal failings Christian, 2003). This discourse is in line
Northern or choice and that homeless people are totally with a general shift in the social services
responsible for their lives. Policy responses away from regarding clients as the passive
A recent review of New Zealand research
on homelessness (Leggatt-Cook, 2007)
revealed a high degree of variation in the
associated with this line of reasoning include
the minimal provision of basic services. In
contrast, the second type of individualist
recipients of services to being autonomous
individuals and key stakeholders in
service delivery (Latour, 2006). While this
use of the term ‘homeless’ as a descriptive argument holds that people become framework is increasingly common within
category. Some of the most common homeless due to individual failures for mental health services in New Zealand (as
applications of the term include sleeping which they cannot be held totally responsible evidenced in the growing consumer
rough or in improvised shelters, household (such as mental illness or trauma). Policy movement), as yet, Mora’s (2003) study of
crowding, being on the state housing waiting responses are typically humanitarian in focus Christchurch streeties and Christchurch’s
list, or experiencing some form of serious and include intensive case management and Street 10 project are the only clear examples
housing need. Understanding of social work intervention. in local research and services.
homelessness has developed rapidly in New
Structural explanations, which broadly Definitions of
Zealand in recent years, however, opinions
characterise homelessness research in the
5
about which situations can safely be Homelessness in
UK and Europe (Christian, 2003), argue that
considered homeless, and which cannot,
Responding to Homelessness in New Zealand
the reasons for homelessness are located New Zealand Research
continue to differ.
beyond the control of individuals in macro-
One of the assessments made by the
Homelessness researchers have long socio-economic factors such as the housing
review of New Zealand homelessness
recognised that the way homelessness is and labour markets, and the governmental
research (Leggatt-Cook, 2007) was that
understood and defined has a direct impact policies that regulate these factors. Typical
local research has often employed an
on the way society sees fit to respond to it policy responses emphasise
individualist approach in its investigation
(Chamberlain and MacKenzie, 2002). The recommendations for broad societal
of homelessness, albeit one that is more
purpose of this article is to raise some intervention together with housing subsidies
humanitarian than punitive in orientation.
questions about the potential implications and the provision of temporary or affordable
This observation was first made in 1989
of conceptual variability for efforts to address permanent accommodation (Neale, 1997).
by sociologist, David Thorns, who
homelessness in New Zealand. Principally,
W h e re a s i n d i v i d u a l i s t d e f i n i t i o n s o f argued that homelessness was being
it seeks to explain key ways of understanding
homelessness risk a blaming or victimising portrayed too narrowly as a personal
homelessness and their significance for the
approach, purely structuralist accounts of trouble related to personal circumstances
development of policy. It critiques the
homelessness sometimes result in painting (such as loss of income, deviance, or
individualist approach of some New Zealand
homeless people as passive victims, sickness), or an individual choice. The
homelessness studies, and argues that
buffeted by circumstances over which they Wellington study by Smith and Dowling
greater attention needs to be paid to the
have little or no control (Neale, 1997). In (1987) was cited as a key example. In
role of structural dynamics in homelessness,
response to perceived weaknesses in both contrast, Thorns described how the data
particularly the housing experiences of
the structuralist and individualist that was emerging from New Zealand
homeless people. Finally, it briefly considers
conceptualisations, there is an emerging research during the 1980s (such as Percy,
how the adoption of a clear definitional
trend towards renegotiating the traditional 1982; Lea and Cole, 1983) was
framework in Australia has assisted the
structuralist/individualist divide in the field demonstrating that homeless people were
response to homelessness there.
(Christian, 2003). Researchers increasingly a heterogeneous group who were
Key Ways of agree that homelessness arises through a nonetheless linked by their inadequate
complex combination of broad social and income and their inability to access and
Understanding economic factors as well as events and sustain adequate housing. Many homeless
Homelessness circumstances (often referred to as ‘specific people were unemployed or lacked the
vulnerabilities’) reflecting personal life ability to secure a full-time job because of
International literature on homelessness is
experiences (Morrell-Bellai, Goering and problems that reduced their ability to
characterised by continuing debate about
Boydell, 2000). Nonetheless, considerable function effectively in society, such as
the definition of homelessness, and no single
doubt remains about whether it is even a l c o h o l i s m o r d i s a b i l i t y. T h e
definition is universally accepted and used
possible to define homelessness, with deinstitutionalisation of the mental health
by policy makers and researchers. According
some researchers insisting that because system was blamed for failing to address
to Neale (1997), there are two main ways of
t h e p a t h w a y s t o h o m e l e s s n e s s a re the employment and accommodation
understanding homelessness: the
overwhelmingly heterogeneous, it is requirements of people with ongoing
individualist approach, and the structural
essential to respond to people as mental health issues.
approach. Individualist definitions, which
individuals (Pleace, 2000).
dominate the American homelessness It was the overwhelming evidence for the
research tradition (Christian, 2003), place Internationally, definitional debates have diversity of the homeless population and
central importance on the role of the individual also led to the emergence of an alternative indications that structural inequalities related
and are generally conceptualised in one of framework that emphasises empowerment to gender and ethnicity impacted on housingPARITY · Volume 20, Issue 9 · October 2007 access that led Thorns to put forward the Australia that most people will live in development. Furthermore, as Chamberlain
notion of a ‘continuum of housing need’ in suburban houses or self-contained flats and MacKenzie (2002: 3) argue:
order to allow a more sensitive analysis of and that home ownership is the most
… without agreement on definition it
degrees of housing deprivation. One end desirable form of tenure.
is not possible to produce statistics
of Thorns’ continuum comprises individuals
As Chamberlain and MacKenzie (2003) on the homeless population, and
with no accommodation whatsoever, while
explain, within this context, the minimum without reliable statistics it is
those experiencing inadequate
standard of housing that most people in impossible to allocate resources.
accommodation are situated further along
Australia can expect to achieve is a small
(see diagram): In recent New Zealand studies it is apparent
rental flat with a bedroom, living room,
that researchers are becoming increasingly
kitchen, bathroom and an element of
drawn to the Australian framework,
security of tenure. This standard emerges
Homelessness: as a benchmark enabling various types of
indicating that the adoption of this
framework in New Zealand warrants serious
No shelter at all homelessness to be articulated, including
consideration. ■
primary homelessness (rough sleeping),
secondary homelessness (temporary,
emergency accommodation, including References2
staying with friends or family), and tertiary Anderson, I. & Christian, J. (2003) Causes of
homelessness (medium to long term homelessness in the UK: A dynamic analysis,
Journal of Community and Applied Social
Inadequate housing: residence in boarding houses). Psychology, vol. 13, pp. 105–118
Crowded A distinct advantage of the Chamberlain Argent, N. & Rolley, F. (2006) Inhabiting the
margins: A geography of rural homelessness in
and MacKenzie definitions is the way they Australia, International perspectives on rural
Poor conditions identify separate categories of homelessness, Milbourne, P. & Cloke, P. (Ed.),
homelessness, which represent different Oxon & New York: Routledge, pp. 208–230
Insecure tenure groups with different needs requiring Chamberlain, C. & MacKenzie, D. (2002) Youth
homelessness 2001, Salvation Army and RMIT
different policy responses. The 2001 University
Australian census was the second census Chamberlain, C. & MacKenzie, D. (2003)
to target Australia’s homeless population Counting the homeless 2001, Australian
using these categories, and in total, around Census Analytic Program, Australian Bureau of
Adequate housing: 100,000 primary, secondary and tertiary Statistics
Christian, J. (2003) Introduction: homelessness:
Basic minimum h o m e l e s s p e o p l e w e re c o u n t e d o n
census night. The breakdown showed that
integrating international perspectives, Journal
of Community and Applied Social Psychology,
6 level acceptable 14.2 percent were primary homeless, vol. 13, pp. 85–90
62.8 percent were secondary homeless, Latour, N. (2006) User participation: A right in
the making, Homeless in Europe (FEANTSA),
Responding to Homelessness in New Zealand
and the remaining 23 percent were tertiary
Participation of Service Users: Giving a Voice to
Continuum of Housing Needs homeless (Chamberlain and MacKenzie, the Experts, Autumn 2006, pp. 9–11
(Thorns, 1989) 2003). The Australian census data has Lea, P. & Cole, J. (1983) Homelessness in
helped to illuminate the diversity of the Christchurch, Christchurch: Christchurch
A further observation is that the major focus homeless population, which has led to: Housing Research Unit
of New Zealand homelessness research has Leggatt-Cook, C. (2007) Homelessness in New
been (and still is) on rough sleepers, who are … an acknowledgement of the Zealand: A discussion and synthesis of
sometimes portrayed as a discrete population complexity of the ‘causes’ of research findings, report prepared for
homelessness. Indeed, Methodist Mission Northern
with unique experiences and needs unrelated
understanding of causes has Mora, L. (2003) Holistic community
to those of a much wider population that development project/research, part two:
could be regarded as experiencing a range shifted from a focus on the ‘Streeties’ (perspectives, aspirations and
of housing related problems. Moreover, characteristics of the homeless challenges), Christchurch: Richmond
person to an increasing Fellowship
(although there are some exceptions such
acceptance of the importance of Morrell-Bellai, T., Goering, P.N. & Boydell, K.M.
as Mora, 2003), research on rough sleepers (2000) Becoming and remaining homeless: A
tends to focus on the personal history and exogenous, structural forces qualitative investigation, Issues in Mental Health
needs of individuals and rarely situates their acting in concert with a wide Nursing, vol. 21, pp. 581–604
experiences in relation to broader social and range of triggers which are Neale, J. (1997) Homelessness and theory
known to have a role in reconsidered, Housing Studies, vol. 12 (1), pp.
economic trends or their housing and 47–62
employment histories. Although it is precipitating those at risk of
homelessness into incipient Percy, K. (1982) Homelessness in the Auckland
undoubtedly essential to provide intensive region, Wellington: National Housing
case management and social work homelessness and producing or Commission
intervention (and provide basic services such exacerbating a ‘homeless career’ Pleace, N. (2000) The new consensus, the old
as food, for that matter), it is also important (Argent & Rolley, 2006: 210). consensus and the provision of services for
people sleeping rough, Housing Studies, vol.
to allow space to address the wider structural With increasing awareness of the ‘web of 15 (4), pp. 581–594
dynamics that are known to precipitate causation’ in relation to homelessness and Smith, D.A.R. & Dowling, L.M. (1987) Pride
housing insecurity. the lack of exit points from homelessness, without dignity: A survey of the homeless
vagrants in central Wellington, 1982–1986,
there is now a distinct emphasis on Wellington: Research and Advisory Unit,
The Australian addressing the wider causes of Salvation Army Territorial Headquarters
Homelessness homelessness in Australia with early Thorns, D. (1989) The production of
intervention and prevention strategies. Many homelessness: From individual failure to system
Framework of these programs are state and local inadequacies, Housing Studies, vol. 4 (4), pp.
253–66
Thor ns’ work is aligned with that of gover nment funded, and rely on the
international researchers such as Neale coordination of a wide range of government Footnotes
(1997) who consider homelessness to be and community agencies. 1. This article is reflects the argument
developed in Section 4 of the report
integral to the housing system and Homelessness in New Zealand:
inseparable from other aspects of housing Closing Comments A Discussion and Synthesis of Research
need. The framework for understanding While definitions of homelessness will Findings. The full report can be downloaded
homelessness that prevails in Australia holds undoubtedly remain hotly contested, what from Methodist Mission Northern website
www.mmn.org.nz
that homelessness and inadequate housing the Australian example demonstrates is that
2. In the interests of space only selected
are socially constructed concepts that a certain level of agreement concerning an
references have been included. Readers are
reflect the housing practices of any given appropriate conception of homelessness directed to the full report for full references
society. It is the ‘cultural expectation’ in remains necessary to drive policy (see note 1).PARITY · Volume 20, Issue 9 · October 2007
B:A Framework
A Public Health Approach to Homelessness
By Kate Amore, Youth that can trigger homelessness.6 Discharge
University of Otago Young people are disproportionately at risk plans for people leaving these institutions
and Clare Aspinall, of homelessness and may end up as the must ensure that they have a secure and
Social Environments Advisor, chronically homeless. Schools play a critical adequately supported home to go to.
Regional Public Health, prevention and early intervention role in
Secondary prevention is early intervention.
Lower Hutt regard to youth homelessness, and require
This means providing prompt and
a strong welfare infrastructure with links to
permanent exits from homelessness.
T here is no doubt that homelessness is
bad for your health. This is the basic
stimulus for public health concern. However,
community agencies and families. To fulfil
this role the education and social sectors of
government could work much more closely.
For all people who become homeless, the
key to a successful exit is access to
the public health relevance of homelessness appropriate, affordable accommodation with
goes far beyond its impacts on physical and Housing Crisis an adequate support. For some, the timely
mental health. The public health Eviction prevention measures are important provision of affordable housing will be
establishment has an important role to play for both social and private tenants. They enough to resolve their accommodation
in shaping a comprehensive, effective include procedures for monitoring and problems and prevent repeat homelessness;
response to homelessness in New Zealand. responding rapidly and proactively to arrears for others, more support will be necessary.
Here we present a framework for the and other debts, as well as information
Internationally, a ‘Housing First’ approach
prevention and alleviation of homelessness, and advocacy services.4
has been shown to be successful —
based on public health principles and
Monitoring systems alert housing providers skipping shelters and moving homeless
international good practice.
to vulnerable individuals who can then people into permanent supported housing
The Public Health connected to necessary support services. as rapidly as possible.7 Provided the housing
Tenancy support services can provide fits the individual, even those who have been
Framework personal support and service coordination homeless for many years and who suffer
The interrelated set of interventions that role, including emergency support and from multiple problems have been shown
constitute a robust homelessness strategy planning if an individual is at imminent risk to manage well in their own housing with
sit within three levels of prevention — of losing their home. appropriate supports.8 7
primary, secondary and tertiary. Figure 1
Family Breakdown The types of supports required include
depicts the ideal relative allocation of effort
Responding to Homelessness in New Zealand
counselling, education, employment training,
and resources to each level of prevention. (particularly due to economic support and health care. In many
Primary prevention aims to stop people domestic violence) cases, support will involve reconciling family
becoming homeless. It involves two relationships, developing life skills and
Population-wide responses to family
complementary strategies, targeted both facilitating connection to their new
violence must be coupled with more
at the whole population and at individuals community. To operate successfully,
targeted interventions with a focus on
at high risk. accommodation and support services must
early intervention. This requires the
be founded on integration and collaboration,
Population-based actions seek to address education and support of a wide range of
and be led by the individual’s needs.9
t h e s t r u c t u r a l f o rc e s t h a t g e n e r a t e service providers to enquire about and
homelessness. This means building healthy identify family violence and respond Tertiary prevention is aimed at minimising
public policy based on human and appropriately. Needless to say, the availability suffering and maximising quality of life. It
indigenous rights with the aim of mitigating of appropriate, affordable housing is vital refers to measures to support those who
social disadvantage. Robust homelessness for an appropriate response. The importance are currently homeless such as temporary
policy requires concerted and integrated of access to alternative accommodation shelter, food and medical care.
efforts across many sectors — including and support for men who have to leave the
The homelessness system in New Zealand
housing, employment, income support, family home must not be forgotten.5
has long been biased toward traditional
justice, health and education. Appropriate,
Stopping homelessness survival-level responses such as shelters,
affordable housing plays a critical role in
transitional housing and soup kitchens.
the prevention of homelessness for all at its sources While emergency relief remains necessary,
groups of people living in poverty, including
Discharge from public institutions (Child eliminating homelessness requires a
those with mental health and/or substance
Youth and Family Services, prisons, significant shift from sustaining
abuse issues. Population-wide responses
hospitals, mental health facilities) without homelessness to solving it. This shift will
to mental illness and addiction and to the
adequate support is a key ‘crisis point’ require reconsideration of current practices.
reduction of family violence need special
attention, as these are major drivers of Figure 1 A public health framework for responding to homelessness
homelessness and require significant
investment at a broad level. Strategies to
d e v e l o p c o m m u n i t y a w a re n e s s a n d
understanding of homelessness and its
causes are also vital for creating supportive, Preventing the harmful
inclusive communities that will aid efforts Tertiary consequences of homelessness
to prevent homelessness at primary, Prevention
secondary and tertiary levels. In order to
formulate solutions that will be effective in Secondary Providing exits from homelessness
the New Zealand context, partnership with Prevention
Tangata Whenua is an essential element in
all planning processes.
High-risk Addressing the immediate and
High-risk individual strategies target those Primary Prevention upstream causes of homelessness
groups and individuals who are known to
Population-based
be most at risk of homelessness:1PARITY · Volume 20, Issue 9 · October 2007 The aim of a homelessness strategy should A focus of not only significantly improves the health
be to ensure stable and secure long-term prevention of those individuals who are homeless; it
housing for people who are or may become strengthens the social structure, improving
The application of a public health prism to
homeless, so the use and time spent in the public wellbeing. Because of its broad
homelessness focuses our thinking on
temporary accommodation should be kept directive and skills base, public health is
prevention. A focus on prevention makes
to a minimum. At times of crisis though, uniquely placed to lead or support the
sense whether viewed from the left or the
temporary accommodation provides an formation and implementation of a
right: it avoids the damage of homelessness
important opportunity to assess any support comprehensive strategy to improve the
both to the individual and to society; and it
needs and put these in place before re- wellbeing of people experiencing
is more effective and cheaper than the
housing in permanent accommodation.10 homelessness in New Zealand.
high cost of chronically homeless people to
Drop-in centres can also provide an important the welfare, justice and health systems.13
Conclusion
point of contact for people who are homeless
The public health model reframes all levels Ending homelessness requires a
or at risk of homelessness.11 Through the co-
of homelessness intervention as forms of comprehensive set of solutions at primary,
location of several agencies, drop-in centres
prevention, with different weightings attributed secondary and tertiary levels of
can provide a single point of access to
to each. This is not an insignificant shift — prevention. This model promotes
material, information and coordination
the central focus on prevention promotes an cooperation, encourages public health
services, rather than placing expectation on
understanding that all efforts to proactively involvement, and puts a spotlight on
a vulnerable person to navigate a maze of
address homelessness are more beneficial prevention (and its economic prudence).
multiple referrals to different agencies.
and cost-effective than supporting chronic The public health framework of primary,
In order to reach the most vulnerable and homelessness, often in expensive hospital secondary and tertiary prevention
marginalised of the homeless population — or prison beds. In New Zealand, where provides a clear guide to the way forward
those who sleep rough — flexible models homelessness is widely perceived as an in responding successfully to
of support are required. Multi-disciplinary insignificant issue and the result of individual homelessness in New Zealand. ■
outreach services are an important way to deficiencies,14 the emphasis on a
provide care to those who cannot or do comprehensive homelessness strategy as a Footnotes
not access regular services, to connect means to reduce the burden of homelessness 1. MacKenzie, D. and Chamberlain, C. (2003).
Homeless Careers: Pathways in and out of
them with alternative services, and to on the public purse may be a vital tool in homelessness. Melbourne: Counting the
respond to emergencies. A critical issue securing government commitment and public Homeless Project
here is the provision of accommodation and support. In New Zealand, where 2. Anderson, I. and Christian, J. (2003).
support facilities that do not insist on homelessness is widely perceived as an ‘Causes of Homelessness in the UK: A
abstinence for care, as many currently do. insignificant issue and the result of individual Dynamic Analysis.’ Journal of Community &
8 A harm-minimisation approach can provide deficiencies, the emphasis on a
Applied Psychology, 13: 105–118.
better access to treatment and wider comprehensive homelessness strategy as a 3. Chamberlain, C and MacKenzie, D. (2004).
Youth Homelessness: Four Policy
Responding to Homelessness in New Zealand
supports for those ‘hard to serve’ homeless means to reduce the burden of homelessness Proposals. Melbourne: AHURI.
people who have traditionally been barred on the public purse may be a vital tool in 4. Department for Transport, Local
from homeless and mainstream services. securing high level government commitment Government and the Regions. (2002).
and public support. Homelessness Strategies: A Good Practice
Why a Public Health Handbook. London: Office of the Deputy
A long history of Prime Minister.
Framework? application in public health 5. Smith, L., Robinson, B., AtkinRead, L.
(2006). Forgotten People: Men on their
Collaborative action The framework of primary, secondary and own. Manukau City: Salvation Army Social
tertiary prevention guides the public health Policy and Parliamentary Unit.
Homelessness is not just about housing —
response to all health problems.15 Its utility 6. Fitzpatick, S., Kemp, P. and Klinker, S.
it touches on a broad range of issues and
lies in the clarification of the wide range (2000). Single Homelessness: An Overview
crosses the domain of many sectors and of Research in Britain. Bristol: Policy Press.
of strategies required to respond to
government departments. The development 7. www.endhomelessness.org
complex issues, and the division of effort
of comprehensive effective strategies to
and resources to each level for a robust 8. Haggerty, R. (2005). Ending Homelessness
eliminate homelessness therefore relies on in South Australia. Adeliade: Adelaide
and comprehensive approach. The current
the education and engagement of a broad Thinkers in Residence, Government of
response to homelessness in New Zealand South Austrlalia.
range of stakeholders — including
can be envisaged as an inversion of this
Tangata Whenua, all levels of government, 9. Greenhalgh, E., Miller, A., et al. (2004).
model, with the absence of a policy- Recent International and National
service providers, researchers, community
legislative strategic approach leaving Approaches to Homelessness. Queensland:
groups, private sector and homeless people
services for homeless people haphazard AHURI.
themselves. A successful approach to
and disjointed, and predominantly focused 10. Department for Transport, Local
homelessness requires commitment, Government and the Regions, op cit.
at the tertiary end. The public health
partnership and integration — both 11. ibid
framework makes clear that homelessness
horizontally, across government sectors
is preventable and should be prevented 12. Beaglehole, R., Bonita, R. et al. (2004).
such as housing, health, employment and ‘Public health in the new era: improving
— a homelessness strategy that reflects
justice, between local councils and between health through collective action.’
this emphasis is crucial to ending The Lancet, 363: 2084.
service providers, and vertically, across levels
homelessness.
of government, the service sector and the 13. Crane, M., Warnes, A.M., and Fu, R.
community. Establish homelessness (2006). ‘Developing homelessness
prevention practice: combining research
as a public health priority evidence and professional knowledge’.
Collective action across sectors is a central
public health priority — in fact, the very This model acts as a call to the public health Health and Social Care in the Community,
14(2): 156–166.
definition of public health is ‘collective establishment. Innovative public health is
14. Elliott, M.K. (1998). Scales of
action for sustained population-wide the reinterpretation of issues traditionally
representation: Constructing Homelessness
h e a l t h i m p ro v e m e n t . ’ 1 2 To f a c i l i t a t e considered ‘social’ problems within a health in Hamilton/New Zealand. Unpublished
successful collaboration between the vast framework.16 Public health has an important Masters thesis, Hamilton: University of
array of different actors and role in advancing a collaborative approach Waikato.
perspectives involved in the development to homelessness, particularly in the 15. Rose G. (1992). The Strategy of
o f a c o m p re h e n s i v e h o m e l e s s n e s s promotion of a broad understanding of Preventative Medicine. New York: Oxford
University Press.
strategy, the public health model provides both the issue and its solutions. If we are
16. Potvin, L., Gendron, S. et al (2005).
a solid framework to work to, based on committed to reducing inequalities in health,
‘Integrating Social Theory into Public Health
t h e s i m p l e a n d w i d e l y a p p re c i a t e d homelessness must become a major public Practice.’ American Journal of Public
principle ‘prevention is better than cure’. health concern. Addressing homelessness Health, 95(4): 591–95.PARITY · Volume 20, Issue 9 · October 2007
C:Getting the Numbers
Auckland City Street Count Results 2007
By Lynsey Ellis, Secondary homelessness Primary Homeless —
Homeless Team Coordinator, People moving between various Zone & Gender totals 2007
Community Mental Health forms of temporary shelter
Zone Total No Male Female Unknown
and Wilf Holt, including: friends or relatives,
Team Leader Crisis Care, emergency accommodation, 1 3 2 1 0
Auckland City Mission youth or women’s refuges, 2 17 13 4 0
hostels and boarding houses 3 9 8 1 0
S ince 2004, as part of the longer term
plan to monitor numbers of
homeless people and ultimately end
Primary homelessness
People without conventional
4
5
4
13 12
4
1
0 0
0
accommodation (living on the 6 2 1 0 1
homelessness, Auckland Rough Sleepers
streets, in deserted buildings,
Initiative has carried out a count of people 7 11 6 3 2
improvised dwellings, in
sleeping rough within 3km radius of the 8 6 5 1 0
parks etc.)
sky tower in Auckland city.
Total 65 51 11 3
Source: Chamberlain and Mackenzie
This year the count was carried out on the 1992, p.291
night of Sunday 17th June, slightly later than
previous counts. 2004 and 2005 were in Results — Primary Homeless —
May and no count was carried out in 2006. 2007 Street Count Ethnicity 2007
This brief report presents the count results For ease of comparison the zones remained NZ Pacific
for 2007 along with comparison to previous the same as 2005 count with eight zones. Zone European Māori Asian Island Indian Unknown
years. For the purpose of this report, the 1 2 1 0 0 0 0
following established definitions of Total number found to be 2 2 13 0 0 0 2
“Homelessness” will be used. Primary Homeless = 65 3 3 6 0 0 0 0
Culturally recognised Total rough sleepers 4 2 2 0 0 0 0
exceptions Secondary Homeless = 69
5 4 3 2 1 1 2 9
Where it is inappropriate to Total = 134
6 0 1 0 0 0 1
apply the minimum standards —
Responding to Homelessness in New Zealand
e.g., seminaries, prisons, 7 1 4 0 0 0 6
student halls of residence etc. Location of other 8 3 3 0 0 0 0
Rough Sleepers No Total 17 33 2 1 1 11
Marginally housed
People in housing standards close Social Detox 5 % 26.2 50.8 3.1 1.5 1.5 16.9
to the minimum standard Nightshelter 19
Police Cells 2
Tertiary homelessness Primary Homeless —
People living in single rooms in Auckland Hospital Emergency Dept 2
Age 2007
private boarding houses on a James Liston Hostel 32
Zone
long-term basis — without their Epsom Lodge 9 /Age 15-20 21-30 31-40 41-50 51+ Unknown
own bathroom, kitchen or
Total Secondary Homeless 69 1 3
security of tenure
2 4 6 4 2 1
3 1 4 3 1 0
4 1 3
5 2 2 2 7
6 2
7 2 4 1 4
8 3 3
Total 1 11 19 14 13 7
% 1.5 16.9 29.3 21.5 20 10.8
Primary Homeless —
Length of Time sleeping Rough 2007
Zone/
Years 0-1 1-2 2-3 3-4 4 + Unknown
1 2 1
2 4 7 2 2 2
3 3 1 2 3
4 1 2 1
5 1 2 10
6 2
7 11
8 4 2
Total 13 10 4 0 8 30
% 20 15.4 6.1 0 12.3 46.2PARITY · Volume 20, Issue 9 · October 2007 Primary Homeless results Homelessness — NZCEH) set up since
Age Comparison 2004, 2005 & 2007
compared to previous years: 40 March 2007 with representation from
30 around the country, to bring the issues to
% of Rough Sleepers
Comparison of total results 2004, 2005 & 2007
Actual No of Rough Sleepers
150
20 the national agenda.
100 10 Homeless people remain some of the most
0 socially excluded and marginalised in
50 15-20 21-30 31-40 41-50 51+ Unknown our community and extensive international
0
2004 17.2 25 21.8 20.3 1.6 14.1 research has shown that they feature
Temporary 2005 2.5 34.6 28.4 16 9.9 8.6
Streets
Accommodation Total highly in health, forensic, alcohol and drug
2007 1.5 16.9 29.3 21.5 20 10.8
2004 64 32 96
Age in Years
services, abuse and suicide statistics.
2005 81 26 108 There are a number of factors common
2007 65 69 134
Age has seen a fluctuation over the three to many homeless people including mental
counts, especially around young people distress, dual diagnosis, family
From the results it would seem that the (15–30 age groups). It may be that the breakdown, substance use, debt, poverty,
total number of people who are primary same group of young people are remaining family and/or relationship violence and
homeless has reduced. However, the homeless and just getting older, or that this abuse, low educational outcomes,
number of secondary (and primary plus group, as is known from research overseas, physical health issues, few coping skills,
secondary) homeless has increased. experience short periods of primary and a lack of social and family supports.
homelessness and thus there is a high Fifty to eighty percent of homeless people
This may be due to a number of factors,
number of different young people and the also have a co-existing mental health and
the main one being methodology used
fluctuation is shown as a random sample. substance use issues.
but also because the profile of homeless
people has increased within Auckland Ages 31 to 50 appears relatively stable Accommodation prices are also a big
since 2004. over the 3 counts. However, the 50+ age issue, especially in the larger cities when
group appears to have increased. The compared to the level of benefit income.
More agencies are interested in the issue
reasons for this may also be the subject For example, the average price for a single
and thus have come forward to have their
of future investigation, observing again person to rent a room in Auckland is
statistics included in the secondary
the limitations of this style of count $150 a week. A single person over 25 on
homeless figures. For example, in 2004
methodology. the sickness benefit receives about $178
the number of people in the Emergency a week. They would receive an
Department, social detox and Police It must also be noted that age is often a
accommodation supplement of about $75
cells (central) were unknown. guestemate by the counters, as it is not
a week. They are left with about $103
10 In 2005 Auckland City Council formulated
always possible to get exact figures with
and that is before such things as court
this methodology.
a Homeless Action Plan in partnership costs, child support bills or food is
Responding to Homelessness in New Zealand
with major stakeholders. From this came In line with overseas research, these figures deducted. As a consequence, some find
a d d i t i o n a l re s o u rc e s , i n c l u d i n g t h e are unremarkable and fairly consistent over it more affordable to live on the street or
Street Outreach service, which accesses the 3 counts. The most commonly accepted in their car than to rent a room.
people on the streets three times a reason is that women often make up a larger
Many primary and secondary homeless
week. This service started in February percentage of “hidden” and tertiary
clients are on the Housing New Zealand
2007 and was thus was not available to homeless population figures. This is often
waiting list and many have been for a while.
both the 2004 and 2005 teams. Given this due to having dependent children and
It is evident that there is a shortage of
resource input, it is encouraging to see a thus that they are often more likely to put
suitable housing for the lowest socio-
up with unacceptable conditions before
reduction in the numbers of the primary economic group in society. It is also
moving into the primary and secondary
homeless population. important to note that there is a shortage
homeless situations.
However, it must also be considered that of support services available to help this
that despite these factors there may also Length of Time Sleeping Rough group adapt to a more structured lifestyle
50
have been a genuine increase in the overall in order to maintain their tenancy.
% of Rough Sleepers
40
numbers of people in the secondary Unstable living conditions often equates
30
homeless situation in Auckland City (96 to stress in one form or another which in
in 2004 to 134 in 2007). 20 turn can instigate or exacerbate symptoms
10 of stress or even psychiatric illness, making
Ethnicity Comparison 2004, 2005 & 2007
80 0 it more difficult for people to organise their
0 to 1 1 to 2 2 to 3 3 to 4 4+ Unknown
affairs, seek support, sustain a tenancy
60 2004 9.4 10.9 3.1 0 34.4 42.2
% of Rough Sleepers
2007 20 15.4 6.1 0 12.3 46.2
and maintain treatment for health issues.
40
Number of Years These circumstances can often lead them
20 back into a primary or secondary homeless
0 situation for a longer period. They become
Pacific
Islander
NZ
European Asian Indian
Middle
Eastern Unknown
Conclusion stuck in the cycle of poverty and
/Maori
2004 60.9 21.9 3.1 0 0 14.1 The three street counts have obvious homelessness. In the long term this
2005 58 27 0 0 1.3 13.7 limitations in their methodology and are thus situation costs both individuals, families
2007 52.3 26.2 3.1 1.5 0 16.9
just a sample of a much larger issue. and society at large. ■
Ethnicity
However, from the results it would seem
that the total number of people who are For more information on these issues raised
Unfortunately there was not the primary homeless has reduced and the in this report contact:
opportunity to separate figures for Māori number of secondary (and primary plus
and Pacific Island people in the 2004 and Auckland Rough Sleepers Initiative:
secondary) homeless has increased.
2005 counts. However, in the 2007 count Lynsey Ellis —
it is noted that the figures for Māori were As mentioned, since the first 2004 count
Homeless Team Coordinator,
50.8% and Pacific Islanders was 1.5%. the issue of homelessness has become
Community Mental Health —
more prominent, with the 3rd National
lynseye@adhb.govt.nz).
W ith over 50% of Primary homeless conference on the issues due in December
people being Māori this is an issue for this year. Auckland and Wellington City Wilf Holt —
Māori service providers and will need Councils having dedicated resources to Team Leader Crisis Care —
further investigation as to what the issues and there is now a National Auckland City Mission
interventions best suit this group. Group (New Zealand Coalition to End wilf.h@aucklandcitymission.org.nzYou can also read
