The Future of Youth Housing - APRIL 2021 VOLUME 34 - ISSUE 03
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APRIL 2021 VOLUME 34 — ISSUE 03
I S S N 1 0 3 2 - 6 1 7 0
The Future of Youth Housing
Contents
Parity Editorial — Still a long long way to go | 3
Jenny Smith, Chief Executive Officer, Council to Homeless Persons
Chapter 2:
Models of Youth Housing and Support
Australia’s national News Part 1: Programs in Place | 42
homelessness publication Homelessness in Victoria: | 5 Transitional Housing Plus (Youth):
Published by Council to Homeless Persons What is the Solution? Longer‑term Accommodation for At-risk and
Jenny Smith Chief Executive Officer Kieran Crowe, Inquiry Officer, Legislative Council Standing Homeless Young People, Linked to Support,
Committees, Parliament of Victoria and Fiona Patten, Chair, Education and Training
Noel Murray Parity Editor Legal and Social Issues Committee, Parliament of Victoria. Rebecca Mullins, Chief Executive Officer,
noel@chp.org.au My Foundations Youth Housing Company
(03) 8415 6201 Introduction:
A Wraparound Model of Youth Housing to | 46
0438 067 146/0466 619 582 A Data Overview from the Australian Support Long-term Transitions to Independence
www.chp.org.au/parity/subscribe Institute of Health and Welfare Angeli Damodaran, Project and Policy Officer, Junction
2 Stanley Street Collingwood
Address Young People Needing Support | 7 Australia, Claire Taylor, Senior Manager Child Protection
Services, Junction Australia, Tracey Dodd, Undergraduate
Melbourne VIC 3066 from Homelessness Services Project Management Program Director, University of Adelaide
Phone (03) 8415 6200
Jodi Coppin, Housing and Homelessness Reporting and
Data Development Unit, Australian Institute of Health and Welfare
The Future With the First Response | 48
E-mail parity@chp.org.au Youth Service Model
Chapter 1: Donna Bennett, Chief Executive Officer,
Website www.chp.org.au Hope Street Youth and Family Services
The Youth Housing Crisis:
The Toga Social Housing Pop‑up: | 51
Sources and Issues A Conversation with Rebecca Mullins
The Dual-edged Sword | 9 Rebecca Mullins, Chief Executive Officer, My Foundations
of the ‘Homeless in Hotels’ Program Youth Housing Company in conversation with David
MacKenzie and Tammy Hand, Upstream Australia
@counciltohomeless @CHPVic Brendan Pearl, Senior Clinician, Substance Use and Mental
Illness Treatment Initiative, NorthWestern Mental Health, Senior The Youth Accommodation Program | 54
Parity magazine is online Practitioner, Homeless Youth Dual Diagnosis Initiative, Hope St Israel Bull, Tenancy and Property Manager, Accommodation
Youth and Family Services and Holly Clarkson, Senior Clinician, Programs, Gold Coast Youth Services
chpaustralia-portal.force.com
To read online editions, log into your Member Portal
Substance Use and Mental Illness Treatment Initiative,
NorthWestern Mental Health, Senior Practitioner, Homeless Melbourne City Mission’s | 56
account at the above address or become a subscriber Youth Dual Diagnosis Initiative, Melbourne City Mission Youth Housing Initiative
Emma Bruce, Project Officer, Frontyard Youth
(details below). A Couch is Not a Home: | 11 Services, Melbourne City Mission
Subscribe to Parity New Ways of Understanding and Housing First for Youth in Australia | 58
chp.org.au/parity/subscribe Assessing Risks with Young People Professor Stephen Gaetz, York University and Homeless Hub,
Parity readers have access to information and Who Are Couchsurfing Canada, Melanie Redman, President and Chief Executive Officer,
A Way Home Canada, Associate Professor David MacKenzie,
resources not available anywhere else. Subscribers Ratna Beekman, Jacqui Byrne, and Upstream Australia, and Dr Tammy Hand (Upstream Australia)
will also have access to a 13-year online Parity Rhianon Vichta‑Ohlsen, Brisbane Youth Service
back catalogue. If you are a staff member or a CHP Transitional Housing Management | 14 The Future of Youth Housing: The Need | 61
Organisational Member, you are already entitled to to Integrate a Trauma-Informed Approach
for Young People: Time for a Change Shelley Karpathakis, Youth Reconciliation Practitioner,
free access to online editions of Parity. Your employer Zoe Vale, Senior Manager, Youth and Family Homelessness Hope Street Youth and Family Services
can help you activate your account. and Ellie McGrath, Case Manager, Creating Connections,
Become a CHP Member Youth and Family Homelessness, Melbourne City Mission Rent Choice Youth: The Albury Experience | 63
Jon Park, Client Services Manager, Elizabeth Cattell, Early
chp.org.au/membership-portal Getting Teens Out of the ‘Too Hard’ Basket: | 17 Intervention Specialist, Yes Unlimited, Albury New South Wales
Receive member benefits and further support Housing Options for Homeless Future Housing and Accommodation | 65
CHP’s work by becoming a Member. Membership is Young People with Complex Needs for Young People with Complex Needs
available to individuals and organisations. Dr Elizabeth Watt, Research and Policy Manager, Hope Street Youth and Family Services
Olivia Iannelli, Senior Research and Policy Officer and
Promotion of Conferences, Shoshana Booth, Research and Policy Assistant, Yfoundations Village 21 | 66
Events and Publications Young People, Income, and | 20
Pete Zwiers, Head of Programs, Kids Under Cover
Organisations are invited to have their
Housing Support: Keeping Young People Living Client-centred Responses | 67
promotional fliers included in the monthly to Young People in Crisis
mailout of Parity magazine. Below the Poverty Line and in Rental Stress Hope Street Youth and Family Services
Rates are: National distribution: $90 Dr Tammy Hand, Upstream Australia and
Associate Professor David MacKenzie, Youth Housing Initiative: | 69
Statewide distribution only: $70 University of South Australia and Upstream Australia Integrating Therapeutic Approaches into a
Write for Parity Young People in Housing Crisis in Tasmania | 24 Housing and Support Model for Young People
chp.org.au/parity/contribute Joanne Horton, YNOT Project and Policy Officer Zoe Vale, Senior Manager, Youth and Family Homelessness
and Amy Liddy, Project Coordinator, Youth Housing
Contributions to Parity are welcome. Each issue The Role of the Intake Assessment | 26 Initiative, Frontyard Services, Melbourne City Mission
of Parity has a central focus or theme. However, for Homeless Youth is Not to
prospective contributors should not feel restricted by Life-changing Support Integrated with Stable,
this as Parity seeks to discuss the whole range of issues Provide a Housing Only Result Safe, and Low-cost Housing
Mark O’Brien, Senior Manager Frontyard Youth Services Hope Street Youth and Family Services
connected with homelessness and the provision and Hannah Smith, Manager Systems and Reporting
of housing and services to people experiencing Frontyard Youth Services, Melbourne City Mission Youth Housing Now: | 72
homelessness. Where necessary, contributions The Salvation Army Youth Services Perspective
will be edited. Where possible this will be done in Reimagining Social Housing | 28 The Salvation Army Victorian Youth Housing
consultation with the contributor. Contributions can be for Young People and Homelessness Portfolio Group
emailed to parity@chp.org.au in Microsoft Word or rtf Shorna Moore, Head of Public Policy and Government
Relations, Strategy and Engagement, Melbourne City Mission
Frontyard Accommodation Program | 75
format. If this option is not possible, contributions can Staffing Model Designed to
be mailed to CHP at the above address. Making Social Housing Work | 31 Enable Good Client Outcomes
The 2021 Parity Publications Schedule for Young People Mark O’Brien, Senior Manager, Frontyard Youth Services and
May: In the Heart of the City: Responding to Sebastian Antoine, Policy and Research Officer Leanne Nicholson, Operations Manager, Accommodation
YacVic and Kirra-Alyssa Horley, Lived Experience Program, Frontyard Youth Services, Melbourne City Mission
Homelessness in the Capitals
June: Where to Now for Social Housing?
Consultant, Y-Change, Berry Street
The Future of Youth Housing: | 77
July: Learning from Lived Experience Roseberry Queensland Shelteristic 2025 | 33 Are Youth Foyers the Answer?
August: ‘Every Grain of Sand: Preventing Michelle Coats, General Manager, Roseberry Queensland Keith Waters, Executive-Officer and Dev Mukherjee,
Homelessness Deaths’ Support Through Community: | 35 Senior Research Officer, National Youth Commission Australia
October: Rethinking Early Intervention Supporting Young People to
November: Understanding and Responding to
Opinion 1
Indigenous Homelessness Access Their Community Networks Rebecca Mullins | 80
Slavica Lasic, Youth Coach, Detour Program, Youth and Family Chief Executive Officer, My Foundations Youth Housing Ltd
December: Ending Homelessness in Homelessness and Marita Hagel, Youth Coach, Detour Program,
Western Australia Youth and Family Homelessness, Melbourne City Mission Jo Swift | 82
Cover art Fostering Social and | 36
Chief Executive Officer, Kids Under Cover
Street art, Melbourne. Community Connection David MacKenzie and Tammy Hand | 83
Upstream Australia
Artwork Mark O’Brien, Senior Manager, Frontyard Youth
The artwork for Melbourne City Mission articles Services and Arry Valastro, Operations Manager, Donna Bennett | 85
Frontyard Youth Services, Melbourne City Mission Chief Executive Officer, Hope Street Youth and Family Services
(pages 10, 14, 15, 36, 37, 56 and 65) was provided
by Kelly Hartley from the Melbourne City Mission Still Missing Out: | 38 Lorraine Dupree | 87
Hester Hornbrook Academy. Young People and Social Housing Executive Officer, Queensland Youth Housing Coalition
The views and opinions expressed in Parity Dr Tammy Hand, Upstream Australia and Wayne Merritt | 89
Associate Professor David MacKenzie, General Manager, Homelessness,
are not necessarily those of CHP. University of South Australia and Upstream Australia Justice and Family Services, Melbourne City Mission
2
Editorial
Jenny Smith, Chief Executive Officer, Council to Homeless Persons
Still a long long way to go
Providing a safe home to young Alongside these factors pushing
people to prevent an experience young people into homelessness,
of homelessness, or to make an is the ever increasing difficulty
experience very brief, means young of accessing housing that is
people have the best chance affordable to those on low
to bounce back from adversity, incomes. This is something that
and to make a positive and well is horrendously problematic for
supported transition into adulthood. young people who are both on
our very lowest incomes and face
In the late 1970s and early discrimination in the housing
1980s, the prevalence of youth market, just by virtue of their age.
homelessness prompted
voluminous and ongoing research, The pioneering work of Chris
investigation, and analysis of Chamberlain and David MacKenzie
the causes and consequences demonstrated the value of
of youth homelessness in early intervention in helping to
Australia and beyond. prevent youth homelessness,
leading to the establishment
This research clarified that family of the Reconnect program.
conflict, family violence, and
The imperative to intervene early to the impact of the trauma that From the early 2000s, the Foyer
make sure that young people in our follows, are all drivers of youth model and Foyer-like approaches
community have a home that is safe homelessness. It highlighted have become more prominent and
and well supported is clear. Without that young people living in have gained considerable traction
a safe home, young people struggle poverty — with the associated and support from government.
to remain connected to education, unequal access to education Nationally, the number of Foyers
their health suffers, and for many this and employment opportunities continues to grow, including in
results in a lifetime of unemployment, — are also more vulnerable to regional areas and particularly with an
and poor health and wellbeing. experiencing homelessness. emphasis on education and training.
3
There is now a growing focus on
the interface between specialist
youth homelessness services and
the work of mainstream youth and
other community services ‘in place’.
The much‑celebrated Victorian
Geelong Project is an important
example of a successful approach.
Nationally and internationally it
is being adopted and adapted
in the context of different
community environments.
Youth refuges are also an important
part of youth homelessness
responses, but are no longer
considered adequate to be the sole or
main response to youth homelessness.
As many of the articles in this edition
attest, youth refuges are an important
crisis response, one that is only one
part of a system response providing
the necessary support and housing.
In this edition of Parity,
Angeli Damodaran, Claire Taylor
and Tracey Dodd propose an
enhanced model of youth housing.
They outline a ‘wraparound model
of youth housing to support long-
term transitions to independence’.
This type of model builds of the
strength and work of existing
models like the Education Foyer
and Youth Foyer models.
Donna Bennett from Hope Street
Youth and Family Services outlines
the work of the First Response Youth Street art, Melbourne Photo by Anne Cabrié
Service model in stabilising young
people in crisis. Donna makes it clear to work around and attempt to housing for young people, remains
that this work is constrained by the compensate for this glaring deficit problematic given the absence
lack of access for young people to in affordable housing supply. of youth-specific social housing.
sustainable and affordable housing, Thankfully this edition of Parity
in either private housing market The point is well made that the shows that the work of articulating
or in any form of social housing. aetiology of youth homelessness is what the continuum of housing and
not always to be found in housing support to end homelessness for
A number of contributors focus on issues per se. This valid point does young people should look like in
the dearth of affordable housing need to be balanced against the fact Australia, is now well underway.
options for young people at risk of that exits from youth homelessness
homelessness, or seeking to exit and ending youth homelessness Acknowledgements
homelessness, or indeed seeking invariably have their foundation in Council to Homeless Persons would
to leave the crisis or transitional obtaining and sustaining housing. like to acknowledge and thank all
accommodation that is provided edition sponsors, Melbourne City
by youth homelessness services. The private market has not, does Mission and Hope Street Youth and
Emma Bruce from Melbourne City not, and probably cannot, provide Family Services who have supported
Mission succinctly points out that the affordable housing solutions these youth homelessness editions
‘long-term housing in both the private needed by young people at risk for many years. Likewise, regular
and public spheres has become or experiencing homelessness. edition co-sponsors Kids Under
increasingly inaccessible’. This is an Social housing is the only realistic Cover, Brisbane Youth Services, the
obvious source of ongoing frustration option for a sustainable solution. Queensland Youth Housing Coalition
given the innovative work that is However, as the articles by and Yfoundations. We would also
being undertaken by best‑practice Shorna Moore, Sebastian Antoine like to welcome and thank new
services. These services have had and Kirra-Alyssa Horley point out, edition co-sponsors My Foundations
to develop programs and models access to the affordable social and Gold Coast Youth Services.
4
News
Homelessness in Victoria:
What is the Solution?
Kieran Crowe, Inquiry Officer, Legislative Council Standing Committees, Parliament of Victoria
and Fiona Patten, Chair, Legal and Social Issues Committee, Parliament of Victoria.
The Parliament of Victoria’s experiences and let us know where that, for the first time, some forms of
Legislative Council Legal and the system was failing them.’ homelessness could be ended in a
Social Issues Committee tabled matter of weeks if the Government
the final report for its Inquiry into Two huge events shaped the course had sufficient will to do so.
Homelessness in Victoria at the of the inquiry throughout 2020: first
beginning of March this year. the bushfires of 2019–20, and then the ‘That period of stability for people
The report is the result of one of onset of the COVID‑19 pandemic. in emergency accommodation has
the longest and largest Committee had such a beneficial effect. Instead
inquiries conducted by the ‘We were lucky to be able to travel of being moved around from crisis
Legislative Council in recent years. to Wangaratta before the onset of accommodation to rooming houses
COVID‑19 to hear about those who and motels, people had a secure place
The Committee Chair Fiona Patten lost their homes in the fires in the to call home and a shot at focussing
told Parity, ‘when we began this north-east. The resilience shown on the factors that will help them to
inquiry, we knew that homelessness by the affected communities was maintain housing in the future.’
was the ultimate expression of very moving and we know they will
disadvantage in our society and continue to rebuild and recover’. Prior to COVID‑19, the Committee
that to get to the bottom of it we was travelling around Victoria to hear
would have to consult extensively.’ The COVID‑19 pandemic was about the unique issues in each part
a watershed moment for the of the state that were contributing
The Committee received homelessness sector. The early to homelessness. Once the State
452 submissions and held 18 days stages of the pandemic saw of Emergency was declared, the
of public hearings with 131 separate rough sleepers provided with Committee switched to holding
organisations and individuals, emergency hotel accommodation online hearings so it could still
including those directly affected to keep them sheltered in light hear from people across Victoria.
by homelessness. These included of escalating case numbers.
organisations in the housing, family ‘Homelessness is not just a Melbourne
violence, mental health, drug ‘COVID‑19 had such a profound issue. Each and every part of the state
and alcohol and legal sectors, impact on the mindset of everyone has people at risk of, or experiencing
regional and rural bodies and in the homelessness sector. We saw homelessness and the issues that
government agencies in lead them there are unique.
Victoria and overseas. We felt it was so important
to continue our hearings
The Committee knew it so that the experiences
was vital to hear directly of people from regional
from people experiencing Victoria could feed into
homelessness so they had our recommendations.’
a say in what could be done
to improve homelessness The Committee made
services. However, it 51 recommendations to the
was mindful that it is not Victorian Government about
necessarily simple for people how homelessness can be
experiencing homelessness prevented and treated.
to participate in the online
submissions process. The evidence presented
to the Committee showed
‘Luckily, the Council that overall, the sector was
to Homeless Persons underfunded and much of its
stepped in to help us. They limited resources were used
arranged forms for people to meet the most urgent
at homelessness access needs of people seeking
points to tell us about their crisis accommodation.
5
help to end homelessness. Social
housing gives people the security
to address the issues that led to
their homelessness. It gives them
a chance to pursue education or
employment. Goals that are very
difficult to achieve when cycling
through rooming houses or motels.’
In 2020, the Victorian Government
announced the biggest social housing
building program in the state’s history.
The program, called the Big Housing
Build, will see more than 12,000
social and affordable homes built.
‘I commend the Victorian
Government on their decision to
commission the Big Housing Build.
It will make a huge difference in
the lives of many disadvantaged
Victorians. Unfortunately, decades of
underinvestment in social housing
mean that Victoria will still not meet
the national average of social housing
as a proportion of total housing once
‘There was not enough of a to these kinds of services to help these homes are built. More needs
focus on preventing people from people who experience temporary to be done to meet the demand
reaching that crisis point. We know setbacks stay in their home.’ for social housing into the future.’
that preventing the trauma of
homelessness has far better outcomes One early intervention program The Committee made a number of
for individuals and it saves the the Committee studied was the recommendations regarding the
Government money in the long run.’ Community of Schools and Services provision of long-term housing,
(COSS) Model. It aims at identifying including the provision of more
In addition, the Committee heard disadvantaged young people at social housing to meet the national
there was a serious lack of long‑term risk of homelessness to keep them average and the need to consider
accommodation for people engaged in school and with their mandatory inclusionary zoning in
experiencing homelessness. community. Engagement in education new major housing developments.
is a predictor in gaining employment, Pop-up housing, and the use of
‘The lack of long-term accommodation both of which are key protective surplus government land and
was creating a bottleneck in the factors against homelessness. buildings should also be considered
system. People who needed to meet the housing needs of
help were only able to access ‘The beauty of the COSS model disadvantaged Victorians.
crisis accommodation because is that it utilises the strengths of
there were few other options.’ local communities to support ‘We know that homelessness
disadvantaged young people to make is solvable. We need more
The Committee decided on a dual positive decisions around continuing early intervention services to
approach to break the cycle of education and engaging with their prevent homelessness and a
homelessness that would see more community. The ultimate goal is to concerted housing-led effort to
of a focus on early intervention see these young people lead stable, provide a roof over the head for
services as well as the provision of productive lives and the COSS model those who need our help.
more secure long-term housing. gives them a better chance to do that.’
‘It is not only solvable but the
Fixing the Bottleneck: The other key aspect to fixing Committee also recognised that it is
A Change in Focus From homelessness is the provision of a fundamental human right and as
Crisis Accommodation more long-term secure housing. such we have recommended that the
to Early Intervention and This includes public housing first right to housing be incorporated into
Long-term Housing and foremost, but also community Victoria’s charter of human rights.
‘Some of the early intervention housing and affordable housing.
services we already have in place The Committee heard that long-term ‘The Victorian Government has until
are working well, such as the Private housing is both a prevention and September 2021 to consider the
Rental Assistance Program which a cure when it comes to housing. recommendations in our report and
provides help for disadvantaged we hope they will be taken up so that
people to stay in their rental ‘Provision of secure, long-term people experiencing homelessness
property. We need to expand access housing is the key policy that will can live with the dignity they deserve.’
6
Introduction: A Data Overview
from the Australian Institute of Health and Welfare
Young People Needing Support
from Homelessness Services
Jodi Coppin, Housing and Homelessness Reporting and Data Development Unit,
Australian Institute of Health and Welfare
In 2019–20, almost 42,400 young or relative’s place, or sleeping Young People Presenting Alone
people aged 15 to 24 presented alone in temporary shelter without Young people presenting alone
to Specialist Homelessness Services guarantee of continued residency are defined as any client aged
(SHS) for assistance, accounting for or permanency) are difficult to 15 to 24 who presented to an
15 per cent of all SHS clients. Of these estimate because of the transient SHS agency alone in their first
young people, around two in three nature of couchsurfing and the fact support period in a financial year.
(65 per cent or 27,400) needed some that young couchsurfers often do
type of accommodation or were not classify themselves as homeless. In 2019–20, almost 42,400 young
seeking assistance to maintain their people aged 15 to 24 presenting
housing tenure (33 per cent or 14,100). Specialist Homelessness alone to SHS agencies received
While youth homelessness does not Services Clients assistance. Half (51 per cent)
always stem from a lack of housing,1 The Specialist Homelessness of all young people presenting
the need for accommodation or a Services collection includes data on alone were known to be
housing crisis is one of the main issues all people who present to services experiencing homelessness at
for young people seeking assistance for assistance, not all people first presentation, with almost
from Specialist Homelessness Services. who are currently experiencing one in three (29 per cent)
or at risk of homelessness.4 couchsurfing (higher than
According to the Australian Bureau the overall SHS population,
of Statistics (ABS), around 27,700 • In 2019–20, almost 290,500 17 per cent) and a further
young people aged 12 to 24 were people received support eight per cent rough sleeping
experiencing homelessness on from SHS agencies, most (lower than the overall SHS
Census night in 2016, making (57 per cent) were housed but population, 10 per cent). Of those
up around 24 per cent of the at risk of homelessness upon who were housed but at risk
total homeless population.2 presentation, and of these, most of homelessness, one in three
Youth homelessness is likely to be were living in private or other (33 per cent) were in private
underestimated in Census‑based housing (61 per cent) or public or or other housing (compared
estimates, as many others are in community housing (24 per cent). with 39 per cent of the overall
‘hidden homeless’ situations.3 SHS population), while one
For example, those who are • Two in five (44 per cent or in 10 (10 per cent) were in
‘doubling up’ (one family living almost 126,200 clients) were public or community housing
with another) or couchsurfing aged under 25 years, with (compared with 15 per cent of
(living in garages, at a friend 17 per cent aged under 10. the overall SHS population).
Table 1: Service use over time for young people presenting alone,
2015–16 to 2019–20
2015–16 2016–17 2017–18 2018–19 2019–20
Number of clients 44,621 44,197 43,180 42,960 42,387
Proportion of all SHS clients 16 15 15 15 15
Rate (per 10,000 population) 18.7 18.3 17.6 17.2 16.7
Length of support (number of days) 44 47 49 54 55
Average number of support periods 1.8 1.8 1.9 1.8 1.9
Proportion receiving accommodation 34 31 31 31 31
Median number of nights accommodated 41 44 45 45 43
Source: AIHW Specialist Homelessness Services, 2015–16 to 2019–20
7
Additional characteristics of has also increased over time from most (87 per cent) were assisted
young people presenting alone to 41 in 2015–16 to 43 in 2019–20 to avoid homelessness. Of those
Specialist Homelessness Services (compared with 33 in 2015–16 and who began support experiencing
for assistance in 2019–20 include: 28 in 2019–20 for all SHS clients). homelessness, around a third
(36 per cent) were not experiencing
• The majority (63 per cent) Housing Services homelessness at the end of support.
were female. Needed and Provided These trends indicate that by the end
Young people presenting alone had of support, many young people who
• Around one in four (26 per cent) a higher need for accommodation presented alone to SHS agencies
were aged 15 to 17 compared with all SHS clients. achieved or progressed towards a
years with the remainder Despite this, young people were more positive housing solution.
aged 18 to 24 years. less likely than all SHS clients to be
provided short-term or emergency Where to From Here?
• Over one-quarter were accommodation and slightly more The SHS data collection is limited
Indigenous (28 per cent). likely to be provided medium-term/ to those clients seeking assistance,
transitional housing or long-term it does not report on all young
• More than half (58 per cent) were housing, although the proportion people who may be experiencing
returning clients. This was most of young people presenting alone homelessness, or all of those
prevalent for those aged 18 to 24 who were provided accommodation facing housing insecurity. Linking
years (80 per cent) compared with remains low (Table 2). this data to other sources — for
those aged 15 to 17 (66 per cent). example, information on rent
Additional housing-related assistance, income support, or social
• Young people presenting services needed by young housing — would provide more
alone made up 15 per cent of people presenting to services comprehensive information on
all SHS clients but accounted alone for help included: people’s circumstances, journeys,
for 73 per cent of all SHS and outcomes. In addition,
clients aged 15 to 24. • assistance to sustain tenancy further work on identifying and
or to prevent tenancy failure or improving the estimation of
• The largest number of eviction (33 per cent needed this homelessness, particularly youth
young people presenting service and it was provided to homelessness, is important to
alone accessed services in 82 per cent of those needing it) facilitate transparent and reliable
Victoria and New South Wales measures that will inform effective
(both around 13,700 clients). • assistance to prevent policy and service responses.
foreclosures or for mortgage
Service Use by arrears (one per cent Endnotes
Young People needed this service and it
1. Moore S 2017, Couch surfing limbo: legal,
There has been little change over was provided to 62 per cent policy and service gaps affecting young
time in the number and proportion of those needing it). couch surfers and couch providers in
of young people presenting alone Melbourne’s west, WEstjustice, Melbourne
however the rate of young people Housing Outcomes for Young 2. Australian Bureau of Statistics (ABS)
presenting alone has fallen (Table 1). People Receiving SHS Support 2018, Census of population and
housing: Estimating homelessness,
There has been an increase in There were around 30,900 clients 2016. Cat no. 2049.0, ABS, Canberra.
the level of service use by young who finished support during 2019–20. 3. Ibid.
people. In 2015–16, young people Of the almost 24,300 clients with a 4. Australian Institute of Health and
received on average a median of known housing situation at the end of Welfare (AIHW) 2020, Specialist
44 days of support; by 2019–20, support more were housed than were homelessness services annual report
2019–20, AIHW https://www.aihw.gov.
this had increased to a median of experiencing homelessness. Of the
au/reports/homelessness-services/
55 days of support. The median 11,700 clients who started support specialist-homelessness-services-
number of nights of accommodation at risk of experiencing homelessness annual-report/contents/summary.
Table 2: Accommodation services needed and provided (per cent), 2019–20
Provided (as per cent Neither provided
Needed of those who needed it) or referred
Young All SHS Young All SHS Young All SHS
Service people clients people clients people clients
Accommodation provision 64.6 58.8 48.1 50.5 35.7 33.6
Short-term or emergency accommodation 42.5 38.9 51.6 59.0 36.4 30.8
Medium term/transitional housing 40.0 29.3 26.4 25.8 55.3 56.5
Long-term housing 44.4 38.5 4.3 3.5 73.0 70.9
Source: AIHW Specialist Homelessness Services, 2019–20
8
Chapter 1: The Youth Housing Crisis: Sources and Issues
The Dual-edged Sword
of the ‘Homeless in Hotels’ Program
Brendan Pearl, Senior Clinician, Substance Use and Mental Illness Treatment Initiative,
NorthWestern Mental Health, Senior Practitioner, Homeless Youth Dual Diagnosis Initiative,
Hope St Youth and Family Services and Holly Clarkson, Senior Clinician, Substance Use and Mental
Illness Treatment Initiative, NorthWestern Mental Health, Senior Practitioner, Homeless Youth Dual
Diagnosis Initiative, Melbourne City Mission
With much relief from the sector, The Homeless Youth Dual Diagnosis youth Specialist Homelessness Sector
people who were rough sleeping Initiative (HYDDI) has been written to respond to mental health and
in 2020 were placed into vacant about in Parity over a number of substance use issues amongst young
hotels as part of the Victorian years. This past year, the initiative was people, and to provide specialist
Government’s response to fortunate to receive news that the clinical support to young people
COVID‑19 — the ‘Homeless in program would receive permanent who are engaged with the sector.
Hotels’ program. More excitingly, in funding instead of the year-to-year
July 2020 the Victorian Government funding that had been in place for The housing sector and the Victorian
announced an extension of the the previous decade. For those who Government’s responses to COVID‑19
hotel funding arrangements and have not heard of the program, it is a in 2020 provided many young
the plans to lease large numbers partnership between youth Specialist people like Kara the opportunity
of private rental properties while Homelessness Services and clinical to experience some housing
social housing units were being Area Mental Health Services. Our aim stability. The simple knowledge that
built.1 This has, mostly, helped. is to jointly support the capacity of the they could remain in one place,
Kara’s Story
‘Kara’ (not her real name) Like others residing in the cause unknown. She knew them
has had a chequered hotels,2, 3 Kara is terrified of all. Emergency services are a
housing history for most of what will happen when the regular attendee to the hotel
the two years that she has scheme wraps up. Kara herself to serve warrants, respond to
been engaged with HYDDI. has noticed an improvement overdoses, or arrest perpetrators.
Her complex mental health in her mental health which, Kara is very articulate about
needs and substance use have as much as it may be due to her surroundings: ‘This is like
precluded her from maintaining the long-term work she has rough sleeping, the same
placements in refuge settings. done with our program, is people with the same issues,
She is not eligible for most overwhelmingly attributable to the only difference is that there’s
other housing programs the security she experiences a security guard’. Since she is
because, as a New Zealand in a stable hotel room. ineligible for income support,
citizen, she is not eligible Kara has to rely upon casual
for unemployment benefits, But this improvement is paid employment. But she
despite having been living in tempered, because at times cannot safely attend work when
Australia for more than 10 years the hotels are just as marginal her neighbours are knocking
and growing up largely in the as rooming houses, caravan on her door all night asking for
out-of-home-care sector. parks, or squats. Her access to cigarettes or to use her phone.
communal cooking facilities
Like many young people and laundry is cut off at a Kara is also very articulate about
experiencing homelessness, moment’s notice. One day, her position: ‘I’m not ungrateful
her mental health is not ‘the dryers have been set on for being placed here, I know that
‘severe enough’ to qualify her fire’. Another day, ‘the stove is it costs money, I’m just scared
for specialist mental health broken’. She is told to use local to be here but I’m scared that if
supported accommodation. coin laundries, but without I turn down [an offer] they’ll kick
Her main non-professional an income, that option seems me out onto the street’. In two
‘supports’ [and I place that unlikely. Three people have died years, this is the most reflective
word in quotation marks very in the hotel where she is staying Kara has been — a testament
deliberately] have been male over the past few months. Her to the improvement she has
partners who have been neighbour, by suicide. One, by experienced having been able
controlling and abusive. avoidable overdose. The last, to stay in one place for months.
9
premier.vic.gov.au/homes-homeless-
because of promised funding services play being able to provide victorians-during-pandemic-and-beyond>
arrangements for the hotels, led to trauma‑informed and immediate 2. Boseley M, ‘Fears for Melbourne’s homeless
improvements in their mental health. connections for people in need. We forced out of Covid hotel accommodation’,
hope that it can also underlie a call for The Guardian, 2020
term poor mental health has been with integrated support options.
3. Paul, M, ‘How do you transition thousands
recognised by the recent ‘Royal This would enable people like
of homeless people out of coronavirus
Commission into Victoria’s Mental Kara to move from homelessness hotel accommodation?’, ABC News, 2020
Health System’.4 But this stability into housing while simultaneously
have largely moved into the hotels. health and substance use issues. 4. State of Victoria 2021, Royal Commission
into Victoria’s Mental Health System
Endnotes Final Report, State of Victoria, https://
We would like to hope that in Kara’s 1. Premier of Victoria, ‘Homes for Homeless finalreport.rcvmhs.vic.gov.au/wp-content/
case can demonstrate the important Victorians During Pandemic and Beyond’, uploads/2021/02/RCVMHS_FinalReport_
role that specialist youth housing Premier of Victoria, 2020A Couch is Not a Home: New Ways of
Understanding and Assessing Risks with
Young People Who Are Couchsurfing
Ratna Beekman, Jacqui Byrne, and Rhianon Vichta-Ohlsen, Brisbane Youth Service
Couch surfing is the most common, if sleepers, and those who have a roof staying in other people’s homes
the least visible, form of homelessness over their heads but do not have a should be not be predicated on
for young people in Australia. Faced ‘home’ of their own — a space where assumptions that it is a safer, less
with a lack of affordable, safe, or crisis they have security, stability, safety, risky form of homelessness — nor
housing options, couchsurfing is and a sense of belonging. While that young people are necessarily
often assumed to be a safer option highly likely to be disproportionately relatively ‘OK’ while they are able
than other forms of homelessness. under-reported, as a ‘hidden’ form of to couchsurf. Previous research has
Since young couchsurfers are homelessness, the rates of recorded demonstrated that there are a wide
often considered ‘housed’, albeit couchsurfing have escalated faster range of serious risks associated with
temporarily, they commonly become than other forms of homelessness.3 couchsurfing for young people.5, 6, 7, 8
viewed as a lower priority for support. This is likely to continue to grow as Young couchsurfers report
Similarly, qualitative research with young people face an increasingly disproportionately poorer mental
couch-surfers suggests that many do tight affordable housing market and health, increased risk of suicide and
not seek housing support because ever‑increasing demand for crisis self-harm and less connection to
they do not view themselves as and transitional housing. In Australia, professional and community support
homeless, or as ‘deserving’ as the number of people who presented than young people in other forms of
those who fit the rough sleeping to specialised homelessness services homelessness or housing insecurity.9
stereotype of homelessness.1 and said they were couch‑surfing
increased by 33 per cent from Young couchsurfers, despite
However, Brisbane Youth Service 2011–12 to 2014–15, with the frequently financially contributing,
(BYS) research and specialised largest proportion of couch-surfers were found in BYS research and
intervention has shown that young reporting they were under-25.4 practice to be highly vulnerable to
people who are moving transiently both being suddenly cast out and
between houses without a stable There are many commonly held to physical, sexual, and financial
home are a concerningly vulnerable misconceptions about young exploitation at the hands of their
population. In particular, the people’s couchsurfing. It sometimes hosts. Their couchsurfing is found
disproportionately high mental health appears to be the only, and therefore to be frequently characterised by
impacts of couchsurfing require best, housing option, particularly in very high levels of transience and
specific consideration and targeted rural and regional areas. However, instability, with young people moving
service responses. With increasingly decisions about young people between sometimes 50 or more
limited other housing options, it
is critical to undertake targeted
and evidence-informed risk
assessment with young people
who are couchsurfing to ensure the
safest possible practice responses.
Developed through the evaluated
trial of a dedicated Couch Surfing
Support Service undertaken by BYS,
this paper shares key learning about
the use of a targeted couchsurfing
risk screening tool, to identify and
respond to situational risk factors
commonly associated with young
people’s couchsurfing experiences.
We know that, in 2019–2020,
more than 42,400 young people
(ages 15 to 24) were experiencing
homelessness or housing insecurity
in Australia.2 This includes rough
11different places during their period disconnected from support — largely
of couchsurfing. Young couchsurfers because they don’t know where to
report very high levels of anxiety go — are not connected to peers
about ‘where next, what next?’. for word‑of‑mouth, or do not feel
The instability itself also becomes a eligible for homelessness support
barrier to stable income and finding because they, technically, have a
housing, as well as to education, place to stay. Thus, they frequently
employment, social connection, remain in unsafe situations as long as
and personal relationships. they can, and only reach out for help
when they have to leave. High‑risk
In 2018, quantitative analysis of levels of AOD use and physical
more than 800 BYS client records safety concerns were found in some
identified concerning patterns of environments. The critical questions
demographics and co-occurring were around the expectations of
issues and risks of young people staying, and the mental health
couchsurfing.10 This evidence was impacts of couchsurfing. These
used to design a targeted intervention assessments showed that young
for young couchsurfers, funded people’s mental health was a
by the Queensland Mental Health significant concern while couchsurfing
Commission. This evaluated trial and, as such, required specialist
aimed to increase practice knowledge responses to stabilise their safety
and develop tools for effective while couchsurfing and alternative
responses to the risks associated d) the mental and emotional housing options were sought.
with young people couchsurfing. health impacts of being in the
couchsurfing environment, The Risk Screening Tool was found
Through this initiative, a targeted and of the couchsurfing to serve multiple purposes in a
Risk Screening Tool was developed, experience itself homelessness practice environment.
which was trialled with young people It achieved its intended purpose of
using the dedicated Couch Surfing e) access to support networks effectively guiding workers to ask less
Service and in generalist housing appropriate to their needs common but important questions that
intake service, before finally being enabled identification of risks that may
refined into a tool suitable for f) alcohol and other drug, otherwise have been over-looked if ‘a
use in multiple contexts. The Risk (AOD) use and exposure roof over your head’ was the primary
Screening Tool was designed within, around, or arising focus. While in some circumstances
to be used to enable workers to from the living environment this led to rejecting the couchsurfing
better understand, assess, and arrangement as a safe option, in
respond to risks experienced by g) physical safety risks including other situations young people
young people in the context of violence, health risks, criminal were able to be supported with
their couchsurfing environments. behaviours, abuse, assault etc. additional referrals and interventions
The questions within the tool were that mitigated those risks.
formulated based on risks already The Risk Screening Tool was used
identified through the previous to gather data about risk patterns Concurrently, the tool served an
research; risks commonly recognised and as a pre/post intervention educative purpose in building young
in the wider homelessness sector measure of change in young people’s people’s capacity to self-assess risks
(such as substance use risks); couchsurfing risks. The 42.5 per cent of their wellbeing. The questions
and also some of the lesser- of young people identified being served to increased awareness about
acknowledged, but found to be as ‘high’ or ‘very high’ overall the potential risks of couchsurfing,
common risks, associated with how risk level at intake to the service enabling young people to increase
young people find and negotiate reduced to 3.5 per cent (one young their knowledge and confidence
couchsurfing arrangements. person only) post support. For the in making safer, better-informed
50 per cent of young people who choices around where and who to
Specifically, the Risk Screening were found to be at a medium risk stay with and how to negotiate places
Tool guides workers in assessing: level, mental health issues and a to stay in future. Likewise, the tool
lack of support for mental health also served an educative purpose
a) young people’s access to basic were found to be key risk factors. for generalist housing workers
necessities while couchsurfing who had not previously unpacked
For the young people at highest risk, the complexity of couchsurfing.
b) young people’s access to it was clear that they were in highly The tool was also used to guide
privacy including sleeping unstable and insecure living situations conversation with family members,
and bathroom arrangements that frequently lacked access to basic couch providers and other services
necessities such as food, facilities who contacted the Couch Surfing
c) the expectations of hosts to wash, clean bedding, or a bed at Service for information and advice.
— what are young people all. They are often uncomfortable Raising awareness of the common
expected to do in return or unsafe due to a lack of privacy or risks associated with couchsurfing,
for accommodation? space to themselves. They are often assumedly resulted in enhanced
12support responses for young
people. The tool’s dual purpose was,
therefore, to challenge assumptions
and misconceptions, and to build
community capacity to respond to
young people’s couchsurfing risks.
While inherently problematic in its
instability, temporarily couchsurfing
cannot always be avoided —
particularly in highly disadvantaged
or non‑metropolitan areas where
safe crisis housing services are
not available or are inadequate to
meet demand. This makes it critical
to sensitively assess the impact of
couchsurfing arrangements and
environments and, where possible,
provide stabilising support until
alternate safe and sustainable housing
can be accessed. Knowing that
there are support services that are
both available and responsive to the
wide range of risks experienced by
couchsurfers can significantly improve
young people’s safety and capacity to
manage their own risks, identify their
own support needs and strengthen
their support networks. For some,
only moving into more stable forms
of housing will effectively reduce
risks. For others, using a targeted Risk
Screening Tool can assist workers
and others with implementing
risk mitigating strategies. These
may include specialist supports
for mental health issues, AOD use,
relationships, exposure to violence,
or other concerns that may otherwise
be overlooked. It can help young sector to share learning from 3. Australian Institute of Health and Welfare
people develop knowledge, language the couchsurfing service trial (AIHW) 2018, Couch surfers: a profile
of Specialist Homelessness Services
and capacity to negotiate their and our broader quantitative clients, AIHW Canberra, viewed 22
own needs. To assist this process, and qualitative research about March 2021, https://www.aihw.gov.
services need to ask questions couchsurfing. Titled: A Couch is au/reports/homelessness-services/
that are informed by awareness Not a Home — Let’s change the couch-surfers-a-profile-of-specialist-
homelessness/contents/table-of-contents
of the complexity of couchsurfing way we look at young people
4. AIHW 2015, Specialist homelessness
beyond the assumption that ‘at couchsurfing, the full presentation services 2014–15, viewed 22 March
least it is a roof over your head’. 11 is available at www.youtube. 2021, https://www.aihw.gov.au/reports/
com/watch?v=bQSJGiMeqSQ homelessness-services/specialist-
The BYS Risk Screening Tool homelessness-services-2014–15
is available to support youth For further information, please 5. AIHW 2018, op cit.
homelessness workers engaging with contact research@brisyouth.org 6. McLoughlin P J 2013, ‘Couch surfing
on the margins: the reliance on
young couchsurfers in responding
temporary living arrangements as a
to the underlying or less obvious Endnotes
form of homelessness amongst school-
risks associated with couchsurfing. 1. Hail-Jares K, Vichta-Ohlsen R and Nash aged home leavers’, Journal of Youth
The tool provides a useful guide C 2020, ‘Safer inside? Comparing the Studies, vol. 16, no. 4, pp. 521–545, DOI:
experiences and risks faced by young 10.1080/13676261.2012.725839
to meaningful conversations
people who couch-surf and sleep 7. Hail-Jares K, Vichta-Ohlsen R
with young people, their family, rough’, Journal of Youth Studies, DOI: and Nash C 2020, op cit.
couch providers and other service 10.1080/13676261.2020.1727425
8. Uhr R 2004, Couch surfing in the
providers and, at the same time, 2. Australian Institute of Health and burbs: Young hidden and homeless,
increases service capacity to provide Welfare (AIHW) 2020, Specialist Community Connections Brisbane.
effective practice responses. homelessness services annual report,
9. Hail-Jares K, Vichta-Ohlsen R
AIHW Canberra, viewed 22 March
and Nash C 2020, op cit.
2021, https://www.aihw.gov.au/reports/
In February 2021, BYS held a webinar homelessness-services/specialist- 10. Ibid.
for the wider youth homelessness homelessness-services-annual-report 11. McLoughlin P J 2013, op cit.
13Transitional Housing
Management for Young People:
Time for a Change
Zoe Vale, Senior Manager, Youth and Family Homelessness and Ellie McGrath, Case Manager,
Creating Connections, Youth and Family Homelessness, Melbourne City Mission
The Transitional Housing comes with Transitional support, health, well-being, education,
Management (THM) Program usually provided by a Specialist or employment outcomes. It is
Transitional housing and Homelessness Service (SHS) funded also widely accepted that the
transitional support are the largest agency. A network of housing program is no longer meeting
programmatic responses to providers and support providers its primary aim of transitioning
homelessness in Victoria. For young across Victoria work in partnership people to permanent housing
people experiencing homelessness, to provide the THM program. within a timeframe that would be
going from refuge or crisis The combination of housing and considered short to medium term.
accommodation into a transitional support is regarded as key to
housing property is still regarded as assisting people develop the skills Young People and THM:
one of the best outcomes available necessary to maintain a tenancy The Message is Confusing
in the system. However, as service and to address the issues that led to There are a number of ongoing issues
providers, we are all aware that their experience of homelessness. with the THM program that are widely
there are real problems with the understood and acknowledged by
program, and its fundamental The THM program is the most support and housing agencies:
premise — getting people ‘ready’ heavily-funded and longest‑running
for long-term housing — is outdated housing and support program Exit Points: Transition to where?
and increasingly untenable. in Victoria. However, there is no It is generally accepted that there
robust independent evidence that are limited housing options for
The main aim of transitional housing demonstrates its effectiveness as people exiting homelessness.
is to support people to transition a model for a range of cohorts The situation for young people is
into longer-term or permanent in either promoting stable exacerbated even further by their
housing over the short to medium housing outcomes over the ludicrously low incomes — both
term. Transitional housing always long‑term, or improving peoples’ Youth Allowance and youth wages.
This makes private rental virtually
unattainable and makes young
people unattractive from a financial
perspective for community housing
providers. In addition, public
housing waiting times are extremely
lengthy. At Melbourne City Mission
(MCM), the Creating Connections
program in the inner-south supports
a small number of young people
in transitional housing. Of the five
tenancies supported, four have
been in their tenancy for over two
years, with one young person in
their tenancy for over five years.
Since 2016, we have been working
with a young single mother of two
young children. The mother and
her children have moved around
to three different THM properties
within this time. Initially, the mother
engaged with the program while
pregnant and couchsurfing, following
a relationship breakdown. The young
person has a lived experience of
family violence, poor mental health,
Artwork by Darien Silarsah
14and Child Protection involvement with
her children. Since 2016, the family
have been on the public housing
waitlist. However, they have yet to
receive an offer of housing. A share
house is not an option for this young
person and rental properties within
her community network are well
outside of her financial capacity.
The mother would like to be able to
enter the rental market, reflecting
that she wants to ‘be able to raise
her kids in a rental, something that
no one in my family has been able
to do. All my family have always
had to rely on public housing’.
For this mother, there has been
significant growth in her parenting,
living skills, and mental health.
There is a motivation to work as her
children become independent and
there are now discussions about
her own education. In many ways, Artwork by Chris Laritt
we could argue that, as a family,
they would be ready to exit THM Young people that we spoke to to transitional housing, then to
support. But given the constraints of expressed both their relief in having long‑term housing as their final
the rental market, their most viable been given a transitional housing reward — is still well entrenched in
housing option is public housing, property, and then their distress and the Victorian service system, despite
for which there is an indefinite wait. anxiety when told that they needed growing support for the Housing
to immediately start looking for First ideal. It is likely that this will
Pressure to Move On somewhere else to live. The tension continue until the structural realities
Even though it is well understood between feeling that they were safe of the housing system are changed to
that exiting transitional housing and secure and then being told that match the Housing First approach.
is extremely challenging, there is in fact this wasn’t the case, was a
pressure applied from the outset for common experience. One young The Future of
young people to plan for their exit. person commented: ‘I remember Transitional Housing
Within the first three months of their when my worker told me I needed What we have in transitional housing
tenancy, young people are required to start looking for housing, and is a program that sends a range of
to work on a ‘housing exit plan’ with I was really confused, because confusing messages to young people:
their support worker. This plan, and I’d just moved into my transitional you are safe and secure, but you
the steps that have been taken to housing property, so I thought cannot stay here even though we
move toward it, are reviewed every I’d already found housing’. know it is extremely difficult to find
three months. Interestingly, despite anywhere else to live. We will support
the idea that transitional housing is Fundamental Problem with the you to maintain your housing, but also
meant to provide an environment in Concept of Transitional Housing need you to leave as soon as you can.
which the young person can ‘learn’ Transitional housing is based on If you do well in this housing, we will
how to maintain a tenancy and get the concept of ‘housing readiness’. reward you by making you leave.
the support they need to recover The program’s aim is to help the
from whatever it is that caused their young people address the issues With the imminent changes to
homelessness, their ‘readiness’ that have contributed to their the Residential Tendency Act
to move is not generally part of homelessness and help them become (RTA), it is unclear how transitional
the assessment of the timing of ‘ready’ to maintain a long-term housing will be managed into the
their exit planning. The transitional tenancy. The theory is that when future. So far there has been no
program has a limited time frame a person is ‘ready’ and no longer indication from THM managers of
— whether the young person requires a level of support, they will the Department of Families, Fairness
is ready to leave or not. If they then move into different housing. and Housing (DFFH) how leases
do receive an offer of housing It is unclear what it is people learn will be managed under the new
elsewhere, not being ‘ready’ during their time in transitional provisions. What is certain is that
to take it is not seen as a valid housing that they couldn’t also transitional housing as a model has
reason not to move, even though learn in long-term housing with probably had its day, and we need to
transitional housing is supposedly support in place. The continuum of look for other ways to provide housing
based on the idea of helping support idea — that people need to and support to young people to help
people become ‘housing ready’. move from crisis accommodation, them permanently exit homelessness.
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