The Magazine of FEANTSA -The European Federation of National Organisations Working with the Homeless AISBL 19 17 14 11 9 6 5 3 2 IN THISISSUE Commission is not responsible for any use that may that use any for responsible not is Commission be made of the information contained herein. contained information the of made be Jim Withers Inside Working from theOutsideto &DavidCoffman Eric Ares Cities U.S. AdvocatesName“Meanest” Illegal tobeHomeless: Peter ZuidamandGeertienPols are homelessinRotterdam andpeoplewho On criminalisationof Stephan Nagel Hamburg begging –Theexampleof Disputes abouttheprohibition of David Giannoni Brussels SouthTrain Station The Control ofPublicSpace: Jesús RuizFarrona in Spain againsthomelesspeople Violence Julien Damon For publictoilets… Eoin O’Sullivan Homeless? Criminalizing Peoplewhoare Editorial FEANTSA is supported financially supported is FEANTSA by the European Commission. European the by The views expressed herein are herein expressed views The those of the author(s) and the and author(s) the of those who areHomeless Criminalisation ofPeople Summer 2007 who areHomeless Criminalisation ofPeople homeless homeless people in people in Violence Violence against against Spain Spain Page 6 Page Page 6 Page 2 HOMELESS in summer 2007 Editorial cation, forcing outthepoorer groups. have beenthrough rapidprocesses ofgentrifi- the socialclimate.Equally, manyurbanspaces ture ofcontrol where theStateseekstocontrol and globalisationhavebrought agrowing cul- to different factors.Certainlyeconomicgrowth reaction whichtheyprovoke hasbeenrelated rather thanmeetingtheirneeds.Thissecurity and efforts tendtoward makingtheminvisible homeless are thusincreasingly nottolerated economic policiesandthinking,peoplewhoare In thepresent contextofneo-liberalsocialand their ownsituation. homeless peopleresponsible andevenguiltyfor better policyapproaches, asitseekstomake people whoare homelessandadvocatingfor very problematic fororganisationsworkingwith terms ofpublicorder andnuisanceprevention is framing oftheproblem ofhomelessnessin situation ofpovertyandmarginalisation.This rather thanafocusonpoliciestoaddress their carry outinpublicspace(eating,sleepingetc.), ties thatpeoplewhoare homelessare forced to dency towards thecriminalisationofactivi- America, where itseemsthere isagrowing ten- at thesituationacross Europe andinNorth less andtheiractivitiesinpublicspace.Itlooks coercive approaches topeoplewhoare home- on thegrowing trend towards repressive and This issueofthe have becomemore demandingandarbitrary”. until veryrecently were public,open and free, the credentials toentermanyplaces,thatup who havenotbeenspecificallyinvitedin.[…] manent securityforces tothrow outallthose estates, withrestricted accessstreets andaper- More andmore there are privatedistrictsand towards privatetake-overofwhatwaspublic. “There isastronger andstronger tendency who are homelessare increasingly unwelcome: gence of“quasi-publicspaces”where people there isadetailedexaminationoftheemer- Rooflessness andtheUseofPublicSpace”, Profiles ofHomelessPeople:Conflict, Report, Meert,Henketal:“TheChanging the 2006 ties asthesebecomeincreasingly privatised.In in thenature ofmanypublicspacesandameni- spaces inthecities.Theyhaveledtoachange factors haveledtoashiftinpowerpublic 2 1 research. In factthecriminaljusticesystemcon- effectiveness hasbeenthoroughly disproved in poverty hasgrown inpopularity, althoughits tolerance approach foundedonpenalising O’Sullivan from Ireland highlightshow azero- different aspectsofthisproblematic trend. Eoin present issueofthemagazinehavehighlighted The authorswhohavekindlycontributedtothe Meert, Henk et al (2006): “The Changing Profiles of Homeless People: Conflict, Rooflessness and the Use of Public Space” available o available FEANTSA’s RooflessnessandtheUse ofPublicSpace” website: Conflict, “TheChanging ProfilesofHomelessPeople: Henketal(2006): Meert, Routledge. London: andtheRevanchistCity. Gentrification ThenewUrbanFrontier, (1996): N: Smith, FEANTSA http://www FEANTSA .feantsa.org/files/transna Research Observatory magazine focuses 1 tional_reports/2006reports/06W2en.pdf These 2 them to: ments regarding themagazine,please send of themagazine.Ifyouhavequestionsorcom- sincere thankstothecontributorsthisissue As always, “Inreach”. slow process isdesignatedbytheterm conflict withpeoplewhoare homeless.This of workingwithgroups whoseinterests are in security tendenciesbyfindingcooperativeways people whoare homelesstocounterthese discussion ontherole ofthoseworkingwith Street MedicineintheUS,offers athoughtful shaming list.Finally, workingin JimWithers, in theformof“meanestcities”namingand erful advocacystrategyagainstcriminalisation tions haveworkedtogethertobuildupapow- Homeless, describehowthesetwoorganisa- David Coffman NationalCoalitionforthe Law CenteronHomelessnessandPoverty tive. Inanarticlefrom theUS,EricAres National and theoverallimpacthasinfactproved posi- homeless themselves,hasalsobeenpartofit holders andsectors,includingpeoplewhoare focus oncooperationbetweendifferent stake- egy havebeenveryproblematic, anincreased Although certaincoercive elementsofthestrat- Rotterdam thathasemergedsince2002. security drivenapproach tohomelessnessin Zuidam from theNetherlandsexamine poor andhomeless.GeertienPolsPeter served toreassert therightsofpeoplewhoare concerted, publiccampaignanddebatethat in Hamburg,Germany, resulted inastrong, lights howefforts tobringinabanonbegging gically used.ThearticlebyStephanNagelhigh- nalising trend canbecountered orevenstrate- offer more positiveexamplesofhowthecrimi- The otherarticlesinthisissueofthemagazine spend timethere. has hadonthepeoplewhoare homelesswho gentrification ofthestation,andimpactthis lineshaveledtothe where newinternational in theBrusselsSouthTrain StationinBelgium, the exampleofchangesinpublicspace tudes againstthem.DavidGiannonihighlights tural violencethatjustifiesitandhardens atti- the structuralviolencetheysuffer andthecul- they are increasingly thevictims,isaresult of He arguesthatthephysicalviolence,ofwhich Farrona isonviolenceagainsthomelesspeople. The focusofthearticlefrom SpainbyJesúsRuiz have acontraryeffect towhatwasintended. public toilets–andhowsuchpoliciesoften ticular themajorreduction ofthenumber space inhospitabletohomelesspeople–inpar- ines policiesinFranceintendedtomakepublic tributes tohomelessness.JulianDamonexam- [email protected] FEANTSA would liketoextendits g . • n ensure publicstreet safetyofcitizensfrom aggressive solicitation’.In Safe Streets Act,implemented inJanuary2005,whichaims‘to cities duringthe1990s,mostcontroversially, theBritishColumbian begging legislationwasalsointroduced inanumberofCanadian 30,000 arrests were madeundervariousvagrancy statutes.Anti- strong incitieswithlowlevelsofwelfare benefitsandby2000,over regulations from the1990sonwards. Thistrend wasparticularly In theUnitedStatesofAmerica,manycitiesadoptedanti-begging THE RETURNOFVAGRANCY LAWS not especiallylucrative. rather thanpreference andthatthis desperate meansofsurvivalis that thosewhoengageinbeggingactivitydosooutofdesperation had more frequent episodesofhomelessness. Theauthorsargue homeless forlongerthegeneralpopulationandtohave the overallhomelesspopulation.Forexample,theytendedtobe less whobeggedwere aparticularlymarginalizedsub-populationof the Americanparlance).Theirdataalsosuggestedthathome- minority (15percent) ofhomelesspeoplebeg(orpanhandle touse ropolitan areas intheUSA,LeeandFarrell (2003)foundthatonlya nearly 3,000homelessindividualsin76metropolitan andnon-met- sons beg.Intheirlarge-scalerepresentative surveydataanalysisof sleeping rough, butthatonlyasmallproportion ofallhomelessper- tively highproportion ofthosewhobegare literallyhomeless,i.e. tionship betweenhomelessnessandbeggingsuggeststhatarela- a humiliatingstrategyofsurvival.Theresearch evidenceontherela- persons whoinmanycaseswere homelessandutilizing beggingas by theincreasing incarceration ofindividualsconvictedbegging, observed increase intheprisonpopulationcouldbe accounted for lation andcriminalprosecution ofstreet beggars.Thus,someofthe One elementofthis‘culture ofcontrol’ istheincreased Stateregu- sequences. fellow citizensandatthesametimebeensoindifferent tothecon- have democraticsocietiesresorted tolockingawayso manyoftheir (Garland, 2001:14)and,asaconsequence,neverinlivingmemory and seeminglyindispensablepillarofcontemporarysocialorder’ the newarrangementsisreinvention oftheprison asa‘massive of neo-liberalsocialandeconomicpolicies.Onekeycomponent nations andthispenalisationofpovertywasunderpinnedbytherise poverty wasincreasingly beingpenalizedacross industrialized in 2001.Thus,according tosomecommentators,it appeared that ties forpublicorder offences rose from 12,400in1980to129,900 emulating. ThoseinthecustodyofAmericancorrectional authori- social marginality’,andonethatEuropean societieswere gradually the Americanpenalsystemwasakeyinstrumentin‘governing over 2.3millionattheendof2005,someobserversconcludedthat from around 500,000peoplein1980to1,150,000by1990and As theAmericanprisonpopulationgrew rapidlyfrom the1980s, Europe. those inSouthern countries showedincreases, mostnotablytheNetherlandsand with over700per100,000intheUSA.Between1990and2004all that constitutedtheEuropean UnionpriortoMay2004,compared over 100prisonersper100,000populationinthe15memberstates United StatesofAmericaandEurope. There were onaveragejust emphatically upward, althoughasubstantialgapexistsbetweenthe rate andpaceofexpansionvariesconsiderably, theoveralltrend is populations inadvancedindustrialnationsare expanding.Whilethe Mid-way through thefirstdecadeoftwenty-firstcentury, prison By Criminalizing People whoareHomeless? Eoin O’Sullivan , Department of Social Studies - Trinity College Dublin College Trinity - Studies Social of Department interferes withanindividualsrightoffreedom ofexpression that prohibited beggingwasunconstitutionalbecauseitexcessively High CourtruledinearlierthisyearthatthesectionofAct Actof1847remains inoperation,butsignificantly, the years’ imprisonment.Conversely, InthecaseofIreland, the imprisonment whileforasecondorsubsequentoffence itistwo offence.’ Theprescribed penaltyforafirstoffence isoneyear’s encourages achildtobegorgatheralmsshallbeguiltyofan vides that‘[a]nypersonwhobegsorgathersalmsprocures or case ofbegging,section6(1)(d)theVagrancy pro- Act1966(Vic) ble meansofsupport,beggingandhabitualdrunkenness.Inthe and similarlawshaveresulted inongoingarrest forhavingnovisi- level disorder, includingbegging. InAustralia,vagrancylegislation England, certainareas were targetedbythepolicetotacklestreet- ‘quality oflifepolicing’to‘prove’ theeffectiveness ofthismethod approach. However, despiterepeated efforts bytheproponents of of thestrategyandbothpopular politicalopinionendorsedthe decline inthecity’s crimeratesappeared todemonstratethesuccess improvement inthe qualityoflifeinNewYork andthestriking adherents inotherNorthAmericancitiesandEurope. The verified inaseriesofstudies,thisapproach topolicinggained Arguing thatthe‘broken windows’approach hadbeenempirically “homelessness””(1996: 67). And virtuallyeveryanti-socialbehaviourcanbeframedasoneof as vastpossiblelendsacompellingurgencytotheirargument. not surprising.Afterall,makingtheproblem ofhomelessnessseem nates, defecates,orengagesinsexualactspublic,ishomeless aggressively, wholivesinanencampmentacitypark,oruri- “advocates shouldpreserve themyththateverypersonwhobegs prising, KellingandColesargue,that: poverty andhomelessnesswithanti-socialbehaviour. Itisnotsur- the AmericanCivilLibertiesUnionwere successful inconfusing homeless advocacygroups andcivillibertarianorganizations suchas tion, andoftentheinteractionofallthree’ (1996:66-67). However, rather was‘rooted inmentalillness,chronic alcoholism,drugaddic- access toaffordable housing,asmanyadvocacygroups argued,but Cole, homelessnesswasnotaconsequenceofpovertyandlack from thestreets duetotheiranti-socialbehaviour. ForKellingand the pastduetolegalprohibitions ontheirpowerstoremove people were, largely, unabletoregulate theiractionsastheyhaddonein ill-health, publiclydrunkoracombinationofallthree. Thepolice who were aggressively begging,displayingobvioussignsofmental der manifesteditselfinthegrowing numbersofhomeless persons loitering lawswere unconstitutional.Theembodiment ofthisdisor- drunkenness andthefindinginmanystatesthatvagrancyanti- patients from psychiatrichospitals,thedecriminalization ofpublic disorder onthestreets to,interalia,thedeinstitutionalizationof 1990 to3,099by2000.KellingandColestracetheemergenceof saw adeclineinreported indexcrimespercapita from 6,364in had resulted inthedramaticdecrease incrimeNewYork, which energetic efforts ofRudolphGuiliani,who,claimedthat suchtactics interpreted as‘zero-tolerance’ policingandpopularizedthrough the thethesiswaspoliticallyre- ‘broken windows’approach topolicing, andKelling(1982).Knowninitiallyasthe earlier workbyWilson begging isprovided byKellingandCole(1996)who elaborateon The theoretical basisforthisrenewed crackdownonvagrancyand HOMELESSNESS ANDDISORDER 3 HOMELESS in Europe summer 2007 4 HOMELESS in Europe summer 2007 more victimsthanperpetrators”(BarakandBohm1989:284). people are notaseriousordangerous threat tosociety;theyare experience ofhomelessnessformanypeopleand‘mosthomeless domiciled counterparts.’Fearofcrimeisasignificantpartthe portionately often,bothinanabsolutesenseandcompared totheir United States,foundthat‘homelesspeopleare victimizeddispro- 1074) intheirrepresentative sampleof2,401homelessadultsinthe harassment andviolence.Forexample,LeeSchreck (2005: victimization, includingverbalandphysicalabuse,robbery, sexual research evidencealsoindicatesthattheyare highlyvulnerableto While manyhomelesspeoplereport ahistoryof offending, the lessness priortoinitialincarceration. re-incarceration isintensifiedforthosewhohaveahistoryofhome- makes itmore likelythatpeoplewillre-offend andthelikelihoodof it more likelythatapersonwillbecomehomeless,but homelessness becoming (orremaining) homeless.Notonlydoesoffending make criminal justicesystemcanitselfincrease aperson’s chancesof homelessness. Thus,itappearsthatexperienceofprisonandthe larceny, theexperienceofimprisonmentisequallylikelytolead engagement insurvivalistcrimessuchasshoplifting,beggingand of homelessnesscanpotentiallycontributetoimprisonmentthrough among homelesspeople.Ontheotherhand,whileexperience most consistentpredictors ofcriminalactivityand incarceration prison. Lackofsecure shelterandlengthoftimeonthe street are the stable accommodationcontributestocrime,arrest andcommittalto many theseinvolvecriminalactivity. Livingonthestreets orwithout Homeless people,bynecessityusearangeof‘survival’strategiesand HOMELESS ASVICTIMSOFCRIME criminal, wasequallydebunked. ing thathomelessnesswasnotmerely anti-socialbutdownright order, wasleftintattersbytheresearch evidence,thesecondclaim- which attributedtheirsurvivalistbehaviourtogrowth ofpublicdis- If onekeyelementofthenewpunitivenesstowards thehomeless, these agencieshavetranslatedintopracticeisslight. cy thinktanks,thedegree towhichtherhetoricandpolemicsof viaanetworkofneo-liberalpoli- poverty isbeinginternationalised’ common sensefashionedinAmericaandaimingtocriminalize Although Wacquant (2004:163)hasarguedthat‘thenewpenal crime ratesfellinmostEuropean countriesduringthe1990s. unchanged andtherateofincarceration actuallydeclined.Likewise, decline incrimeduringthe1990s,yetpolicingpracticesremained Significantly, itwaspointedoutthatCanadaexperiencedasimilar orities tofocusonlow-leveldisorder inachieving lowercrimerates. States hashighlightedtheverylimitedrole ofchangingpolicingpri- of policing,mostresearch onthedeclineincrimeUnited 29-38. and NeighbourhoodSafety, AtlanticMonthly127,March 1982,pp ThePolice J.Q.andKelling,G.L.(1982)Broken Windows: Wilson, Publishing. Discourse, Knowledge.Cullompton:Willan G. andPratt,J.(Eds)Crime,Truth andJustice:Official Inquiry, the ‘Washington Consensus’onCrimeandPunishment.InGilligan, Wacquant, L.(2004)PenalTruth ComestoEurope: ThinkTanks and for PublicSpace.NewYork: theGuildford Press. Mitchell, D.(2003)TheRighttotheCity:SocialJusticeandFight Scientist, 48(8):1055-1081. amongstHomelessPeople.AmericanBehavioral and Victimisation Lee, B.A.andSchreck, C.J.(2005)DangerontheStreets: Marginality and ReducingCrimeinOurCommunities Kelling, R.andColes,C.(1996) in ContemporarySociety. Oxford: Oxford UniversityPress. Garland, D.(2001)TheCulture ofControl: CrimeandSocialOrder inalization andvictimization.ContemporaryCrises,13:275–288. crime ofhomelessness?Onthedialecticscriminalization,decrim- Barak, G.andR.M.Bohm.(.(1989)Thecrimesofhomelessorthe References harm istobeavoided. espouse suchstrategiesneedtobevigorously challengediffurther renewed campaignagainstthehomelessisflawedandthosewho this harmthrough theircriminalization.Thetheoretical basisforthe as aconsequenceoftheirhomelessness,andtheamplification trend thatfailstorecognize theimmenseharmcausedtoindividuals paign variesfrom nationtonation,butitrepresents adangerous populations across world.Theintensityofthiscam- theWestern nization andcriminalizationhascontributedtoever-increasing prison rights thanthoseofuswholiveinhouses’(2003:196).Thisdemo- less peopleseemsomehowthanhuman,endowedwithfewer more geared towards demonizinghomelesspeople–makinghome- States, DonMitchellhaspowerfullyarguedthat‘theofficial lineis of thosewhofindthemselveshomeless.Inrelation totheUnited tion ornewerlegislationfocusingontheallegedanti-socialbehavior either bytherenewed implementationofexistingVagrancy legisla- ness asanobjectiveconditionhasbeenincreasingly criminalized, Although difficult toquantify, over thepastdecadeorso,homeless- CONCLUSION • Fixing Broken Windows: Restoring Fixing BrokenWindows: . NewYork: Free Press. public lavatories. Between thetwoworldwars,Parishadmore thanonethousand observers havecalledthe“Decauxrevolution.” date onlyfrom thebeginningof1980s,with what shrewd to remain longexclusively–formen.Theircounterparts forwomen christened “lavatories”or“washrooms” were reserved —andwere superloos,then came intobeing.Theancestorsofthemodern and thefirststreet fittingsgeared tothemostbasicofhumanneeds the municipalitieswouldtakeinitiativestoinstallspecificfacilities, parallel developmentofurbanisation,industrialisationandhygiene, proximity the ofstoolsandwastegraduallybegantodrop. With Then —especiallytheolfactorythresholds oftolerance tothe would haveonlyrelatively putoff peasantsandcitydenizensalike. iii ii i The developmentofplanstogetpeoplewhoare homelesstomove cive responses tothepresence ofhomeless peoplecomestomind. deemed “undesirable”tomoveothersites.Theboomincoer- public spacemanagersandelectedofficials togetindividuals homeless. InFrance,openlyinhospitablemeasures were triedby lic toiletswasanexplicittechniquedirected atpeople whoare icy incertainrespects. InsomeAmericancities,theremoval ofpub- The increasing scarcity ofpublictoiletshasevenbecomepol- INHOSPITABLE ANDDISCRIMINATORY PRACTICES Roger HenriGuerrandsetsoutthehistoryof«lavatory» In oneoftherare worksdevotedtothese subjects, thehistorian SUPERLOO REVOLUTION FROM THEAPPEARANCEOFSTREETURINALSTO rary urbanenvironments crete terms,itisacrucialproblem forhumanbodiesincontempo- the poor, thosewhohavehousingfrom thosewhodonot.Incon- entiates menfrom women,theyoungfrom theold,richfrom point –itisanimportantissueofdailylife,onethatclearlydiffer- contrary –aseveryonehassurely experiencedfirsthandatsome latrines innowayconstituteaminorormarginalproblem. Onthe Developments inwaterclosets,publictoilets,superloosandother By For publictoilets… of the18 through from theMiddleAgestopresent. Untilthebeginning he chronicles thechangesthattoiletsandlavatorieshavegone people whoare homeless. continue tobeusedbyapartofthepopulation,however, namely more andmore stigmatisedastheircollectiveusedeclined.They tution, illicitencountersandseedyrelations, thesefacilities became toilets. Decriedfrom theoutsetasseethingdensofdisease, prosti- sharply, however, asdwellingswere betterfitwithbathrooms and Associate Professor at the Institute for Political Studies in Paris in Studies Political for Institute the at Professor Associate h pbi aaois r ml tutrseetdo h ulctoogfr kok,uias toilets). urinals, aresmall structureserectedonthepublicthoroughfare(kiosks, The “public lavatories” Roger HenriGuerrand, », d’aisance Lesservitudes « inJulienDamon, oftheissuewhichappeared This takesupamoredetailedtreatment Julien Damon th century, thepresence andcontactoffilthurination iii Les Lieux. Histoire des commodités des Histoire Lieux. Les The useandreputation ofstreet urinalsdeclined , i . Head of the Department of Social Issues at the Strategic Analysis Centre. Analysis Strategic the at Issues Social of Department the of Head ai,L éovre 1985. LaDécouverte, Paris, , ii , where more uncomfortableforeverybody. no longerwantedtosee;andsecond,itmakesthesepublicspaces First, itcanmakeevenmore visiblewhatthepublicspace managers stantly innon-comfortsituation,hashadtwounexpectedeffects. ure intendedtomakelifeuncomfortableforthose who are con- they are stillthere, andevenmore visiblethanbefore. Soameas- next tothebenchthattheycannolongeruseforpurpose.So on them.Iftheywanttoliedown,candosotheground, sarily discouragedbythemore uncomfortableconditionsimposed who are homelesswhousedtolieonthebenches,are notneces- strollers round theportorusersofmetro. Thatsaid,people homeless cannolongerlieonthem;andneitherofcourse,the benches andseatshavebeenchangedsothatpeoplewhoare Around theoldportinMarseille,orParismetro stations,the long time.Thesamelinehasbeenfollowedinparksandgardens. prevent themfrom lyingthereon andforcing themnottostaya transport companieshaveordered lesscomfortableequipmentthat To prevent homelesspeoplefrom lyingonbenches,managersof on thequalityofpublicspace. restriction oftheiraccesstopublictoilets)havehadageneralimpact tion, slowevaporationwaterinshoppingcentres, theprohibition or from theareas where theystayed(“anti-tramp”picksintrainsta- tion canbeeasilyreversed. benefit from them.Itwouldbemistakentobelievethatthissitua- ices (inthecollectivesenseexclusivelyhere), sothateveryonecan and facilities,buthowtoadaptmanagepublicspacesserv- lem isnottodivertpeoplewhoare homelessfrom certainservices has madepublicspaceslesspleasantforeverydayuse.Sotheprob- for everybody. Itisprecisely theeffort togetridoftheproblem that less havehadnegativeconsequences In short,themeasures takentochaseawaypeoplewho are home- needs. people whoare homelesswhoare constantlyconfronted bysuch disproportionate forpersonswithoutprivatespacesand toilets,i.e. places notintendedforsuchpurposes…Thedilemmaisobviously cautions orself-restraint, orasalastresort, tofindsolutionsin or whocannotfindsuperloosare forced toadoptunpleasantpre- body. Furthermore, allpassers-bywhodonothavechangeonthem relieve themselvesdirectly oninthepublicspacefront ofevery- no longergo,buttheybecomeevenmore visiblebybeing forced to same effects. Thosethatthemeasures were intendedtokeepaway these toiletsorcharging,albeitminimal,fortheiruse,havehadthe The samecanbesaidaboutpublictoilets,thedisappearanceof EASEMENTFACILITIES RATHER THANDESTROY, RESTORE, Informations sociales Informations • °8,20,p.106-117. pp. 2000, 85, n° , 5 HOMELESS in Europe summer 2007 6 HOMELESS in Europe summer 2007 (which arenotvisible). visible resultofother people areoftenthe against homeless against forms ofviolence Acts ofviolence One oftheseinvisibleformsviolenceis visible result ofotherformsviolence(whichare notvisible). with equallyseriousconsequences.Infact,actsofviolenceagainsthomelesspeopleare oftenthe However, thisformofviolence,despitebeingthemostvisible,isnotonlyone.There are others ture, beatings,insults,verbalaggression... We callthisviolence direct violenceeffectively. and beabletointerveneinadvanceminimizestructuralcultural violenceinorder toprevent This analysisshouldnotbeusedtojustifydirect violence,butrathertounderstanditsdimensions By Violence againsthomelesspeopleinSpain What wegenerallyunderstandby What is“violence”? positive mannerasamotorofchangetoachievemaximumlevelssocialwellbeing. conflict. We takeanactivepartinthisprocess anditisinourhandstomanagetheseconflictsa The formsofthisviolenceare diverseandhavemultiplecauses,partofaprocess whichwewillcall street. hard, butthedailyfightforsurvival,andcausesthatleadapersontospendtheirliveson changebut nottheactorswhosufferfurniture theconsequences.Itisnotonlytheirdeaththat Deaths ascrueltheonesuffered byRosariohappendailyinourcountry, thescenariosand on thestreets, itwasmore thansimplyanobituary. lights forjustseveraldays,weeksatthemost.Forthosewhoworkdailywiththousandsliving homeless people;herdeathbrought usbacktoreality. Formedia,itmeantwidelybroadcast high- alivebyteenagers,drew theattentionofSpanishsocietytowards50 yearoldRosarioE.Pburned Introduction 2 1 art, science...)whichare usedtojustifyorlegitimate structural ordirect violence Another is tion, training... income, housingpolicies,lackofhealthservices(speciallyformentalhealth),nourishment,educa- structure andprevents thesatisfactionofbasicneedsasaconsequencesocialdifferences suchas this socialviolence problems accessingsocialservices,sanitaryservices)and are supportedbydiscourseswhichjustify group orasociallyunfairsituation(unfairdistribution ofinsufficient resources, unequalincome, cultural violence:manysituationsare theconsequence ofanabusepowertowards aspecific Often, thecausesofdirect violenceare related tosituationsofstructuralviolenceandjustifiedby or d’acollida Assís. Qualified for the School of Culture of Peace of the of Peace of Culture of School the for Qualified Assís. d’acollida violence. Social violence: Bilbao2003. Bakeaz/GernikaGogoratuz. development andcivilization. Peace andconflicts, Peace bypacifism. Johan. GALTUNG, Autonomous University of Barcelona of University Autonomous culture ofviolence Jesús RuizFarrona cultural violence oe rmsca nqaiisafcigapro nterttlt,adsosisl hog utrl structuralanddirect itselfthrough cultural, and shows comes fromsocialinequalities affectingapersonintheirtotality, 2 . “Introducing theconcepts:peace,violence,conflict” ? , whichhasamore symbolicaspect(media,culture, language,religion, , Director and Social Worker of Centre Centre of Worker Social and Director violence Autonomous UniversityofBarcelona structural violence is aphysicalorpsychologicalaggression: , tor- Culture ofPeaceSchool. . Violence whichispartofthesocial . Violence direct violence . 1 . Culturalviolence

S pa in sented are justthetipoficebergandthatviolence isoftenendured anonymously. The peoplewhoworkwithandforhomelessare consciousofthefactthatresults pre- NEWS ANALYSIS (RESULTS): • • • • • • • • • • • • • • MAIN CONCLUSIONSANDRESULTS OFTHEREPORT: peoplewhoare homeless. in Spain2006concerning The aimwastodocumentandcontextualisethesituationsofviolenceinalltheirformsthatoccurred homeless peopleinSpainduring2006. the newsarticlesinSpanishmediarelated todirect, structuralandculturalviolenceagainst The largeamountofmediacoverageMaríaRosarioE.P’s death.inBarcelona, ledustogather First ReportuponviolenceagainstHomelessPeopleinSpain2006 homeless people. All the137newsitemshaveacommondenominator:structuralandculturalviolenceagainst 47 articlesoutofthe137gathered havetheaggression ofhomelesspeopleincommon. We considerthattheactualstatistics couldbeuptotwiceashightheonesreported. for menand80.7women. The averageageofthepeoplewhodiedis47. 4% inhostelsand25%unknownplaces. 43% ofthepeoplewhodiedspenttheirnightsinpublicspaces,28%inadequatehousing, place inpublicspaces. According tothem,86homelesspeoplediedinSpain during2006.73%ofthedeathstook sources. violenceagainsthomelesspeoplewere gathered137 articlesconcerning from 51different media tural violencesuffered bythem. Direct violenceagainsthomelesspeopleisinmanycases thevisibleresult ofstructuralandcul- It isnecessarytoincrease thecoordination andinter-agency working It isnecessarytoestablishoverarching andpersonalised inclusionstrategies. ment andcontrol. Public healthandmentalservicesdonotfulfiltheirfunction:prevention, attention,treat- (with lowincomelevels)verydifficult. financed housingpoliciesare scarce whichmakesaccesstohousingforthesociallyexcluded The real estatemarketmakeshousingpracticallyinaccessibleforhomelesspeopleandsocially is 301,59?permonth. threshold isof6.346,8euros yearly(528,90monthly).Theaverageincomeofhomelesspeople Condiciones deVida 2005 favours socialexclusionand“homelessness”.According totheresults ofthe“ The SpanishStatewithitsinsufficient socialpoliciescontributestotheincrease inpovertywhich er to30.000people. less peopleinSpain2005.Organisationsworkingwithhomelessplacedthisfigure clos- According tothesurveycarriedbyINE(SpanishInstituteofStatistics),there were 21.900home- ”, publishedbytheINE,inNovember2006,Spanishpoverty Average lifeexpectancyinSpainisof74.6years Encuesta de 7 HOMELESS in Europe summer 2007 8 HOMELESS in Europe summer 2007 more difficult toovercome. gap). Thiswillrelease aspiralofviolence,injusticeand alackofcommunication,whichwillbeever are boundtobroaden thedistanceandsocialbreach betweenpeopleacross ofsociety(societal If weare notcapableofdealingwithandresolving violentsituationsinalltheirmanifestations,we lence againsthomelesspeople. resources andstrategiestofacesolvesituationsarisingfrom direct, structuralandculturalvio- the causesthatproduce andsupportit.Thisistheonly wayinwhichonecanhaveadequatetools, howtoanalyseit,discoveritsoverallnature and,mostofall, motor forachange,wemustlearn To movetowards understandingviolenceasaconsequenceofsocialconflictandusing • PROPOSALS: • • • • • • • • • • • Elaboration ofsocialpoliciesadaptedtothereality ofthesociallyexcluded. Creation ofandputtinginplaceanational tions. on providing, developingskills,strategiesandresources todealwithviolenceinallitsmanifesta- In thiscontext,weunderstandthatthestrategycannotonlybebasedonprevention, butalso as wellinthestigmatisationofsociallyexcludedorhomelesspeople. Media mustavoidnegativeandviolentconnotationswhichresult inthecreation ofstereotypes poverty line. Establish socialsecuritysubsidiesandminimumincomesovertheeconomyindexrelated tothe thus promoting corporatesocialresponsibility. Favour labourpoliciestoencouragesocialandworkingskills,asameansofproducing quality mental disorders. Encourage andincrease orpersonssuffering placesforlongtermresidence from fortheinterned housing forrent atareasonable priceforvulnerablegroups andthesociallyexcluded. of theindividual’s personalandsocialautonomy. Forthesepersonsitisnecessarytoestablish Provide accesstodecent,stableandpermanenthousingwhichwillchangewiththedevelopment Increase andenhancemultidisciplinarysupportteams. and resources fortheindividualneedsofeachperson. Public andprivatecare servicesforhomelesspersonswillhavetoprovide thenecessarymeans attention tohomelesspeople. Sanitary andmentalhealthservicesmustestablishprotocols andclientliststoguaranteecorrect and positiverelationships, toinstituteaprocess ofchangeinthemediumandlongterm. Encourage andpromote amediationandsupportprocess thatestablishespointsofconfidence cultural violenceagainsthomelesspeople. • Observatory orAlertUnit Observatory for direct, structuraland Eurostar). high-speedtrains Thalysand and increasingly richontheother(travellersinternational important commercial centres anddraws clientsthatare ontheonehand increasingly international “security-first” approach. Whatismore, someofthesepublicspacesare becomingincreasingly yes, thiscertainlycorresponds toevergreater concessionstoneo-liberalwaysofthinkinganda clearly beentowards wantingto“erase”thesignsofpoverty, ofdirt,dilapidationthecity. So, tion asthe“windows”ontocity(forthosepassingthrough), thetendencytheselastyearshas It issomehow“dirty”toseeahomelessperson,mostofthetime.And asstationssomehowfunc- The problems thatitposesare varied. Some peoplecite“security”problems orproblems ofhygiene. tion, newshopsetc.? Why isthisaproblem andforwhom?Isduetoredevelopment ofthestation–gentrifica- • • • • • • • There are manydifferent reasons forthis: er therefore intheseplaces,whichare allatoncevery“public?”and“impersonal”,anonymous. The different figures ofthewanderingoutsider, thevillageidiot,tramporotherscometogeth- Station? Isitforpracticalreasons? Psychological reasons? Otherreasons? Why doalotofhomelesspeoplespendtimeinandaround theBrusselsSouthTrain But theyare alsoplaceswhere theindividualblendsintotocrowd, becomesanonymous. say. Alltheseareas are placesofpassage,theyare “borders”, placeswhere “possibilities”openup. eral public”sotospeak,themostmarginalisedpeople–“desocialised”somewould spaces, where allkindsofpeoplecometogetherfor“informalmeetings”.Thisgoesfrom the“gen- market places,theareas around superketsetc.havefunctionedforalongtimealready asmeeting city,In everymodern thestations,airports,portsandotherpublicspaceslikechurch squares, What isthesignificanceofBrusselsSouthTrain Stationforpeoplewhoare homeless? Questions: a majorthemefordiscussioninthepastyearsandmonths. Brussels SouthTrain Stationanditsimpactonthehomelesspeoplewhospendtimethere hasbeen homeless inBrussels.Theemergenceofanincreasingly coercive securitypolicyapproach inthe David Giannonicoordinates spacesfordiscussion,exchangeandparticipationofpeoplewhoare Introduction: David Giannoni, Brussels SouthTrain Station The ControlofPublicSpace: Interview withDavidGiannoni mer; etc. They are placesthatalsooffer, quitesimply, accesstotoiletsanddrinkingwaterinthesum- erosity, willgiveawayfoodordrinksmight“doaprice”forthosewhodon’t havemuch; They are alsoplaceswhere there are shopkeepersandbusinesseswhosometimes, outofgen- bad weatherandtheextreme wintertemperatures; Such placesare oftenheated(thewaitingrooms forexample)oratleastoffer someshelterfrom a potentialsource ofinformationandtheyare potentialspacesforexchangeofinformation; enced homelesspeople”andsocialworkerswillprobably passthrough theseplaces:soitisalso It isalsoaninformal“meetingpoint”:apersonwhonewlyhomeless“knows”that“experi- in acity; Such aplaceisalsopossibilityofcontact,connectionbetweendifferent populationgroups feel safeandsomehowprotected; A placewhere manypeoplemeetorpassthrough isalsoparadoxicallyaplacewhere onemay to steal); A placeofpassagealwaysoffers economicpossibilities (tobegforexample,orothersperhaps Espaces de Parole Sans-Abri de Bruxelles de Sans-Abri Parole de Espaces

B elg iu m protected. safe andsomehow where onemayfeel paradoxically aplace through isalso people meetorpass A placewheremany 9 HOMELESS in Europe summer 2007 10 HOMELESS in Europe summer 2007 market square oreveninthesame…train. policy makersandmedia,around thetabletogether, justastheyalsosometimesmeetinasmall bated, through cooperationofalltheactorson ground, peoplewhoare homeless,thepolice, increasing. Itisthisveryapproach therefore thatneedstobedebatedanddiscussed andevencom- Every balancecanbeupset.Akindof“cleaningandrepressing” approach isstillinplaceandonly the ground. people whoare homeless,inorder tobeacounterpowerand“observe”whatreally happenson doesn’t it?Themediaalsohaveanimportantrole toplayinorder totransmitadifferent imageof inevitably risks“involuntarily”encouragingthistypeofproblem andactions.Thatseemsobvious framework. AMinisterforHomeAffairs oraMayor thatadoptsa“securityfirst”approach But itisinsufficient, andthisbringsustotherole ofpoliticstointerveneandsetthenecessary to bereduced andtheyhaveaboveallreduced thefrequency andtheseriousnessofincidents. All theseactionscertainlyhaven’t ledtoanendofall theabuses,butitcertainlyhasallowedthem clusions shouldbedrawnfrom theexperience– iscriminalisationinevitable? What are theperspectivesforfuture? Isthepresent situationsustainable?Whatcon- less tobringcomplaintsagainstyou. your actionswhere theyare violentandnegativeweare ready tohelp people whoare home- you willhavetoreckon withourexistenceandpresence. We willnotstaysilentinthefaceof ers wantedtogivewas:STOP, youcannottreat peoplelikethis.We are theirwitnessesandinfuture and ifpossiblethenameofagentsinquestion.Themostimportantsignalthatsocialwork- gested thattheyshouldsystematicallyrefer onanythingthathappened,notingthetimeanddate inadifficultIn order position,thesocialworkerssug- nottoputthehomelesspeopleconcerned the policeandsecuritycompanies. by theseactsofviolence,dared tomeetinworkinggroups anddecidedtochallengethepolicies, Well fortunatelysomehomelesspeoplestartedtotalk,testifyandsocialworkers,sensitised role ofpeoplewhoare homelessthemselvesintheactions? What actionshavebeencarriedout?solutionsfound?hasthe ation, sotheyare criminalised… ther excludedandtheare madenotonlyresponsible butactuallyguiltyoftheirownsitu- The impactonadailybasisofthisrepression iseasilyimaginable:themostexcludedare evenfur- ible becausetheyare “lessthannothing”! on thegrounds thattheywillneverdare tocomplainandeventheydidwouldneverbecred- the station;usingdogsasweaponsagainstpeoplewhoare homeless;beatingthemuntiltheybleed ging apersonwhoishomelessbytheneckorlegsinfront ofeveryoneto“puthimout” the interests ofshopsorbusinesses)whoare accusedofviolentandinexcusable.Forexample:drag- it isprivatesecuritycompanies(under-trained orbadlytrainedpersonnel,hired abovealltoserve Some oftheexperiencesthathavebeenshared are veryrevealing. Mostofthetime,here inBrussels, context? Whatimpactdoesithaveontheirdailylives? What formshavetherepression /criminalisationofpeoplewhoare homelesstakeninthis • in particulara“St.Jamesroundtable.” Here, conflicts abouttheutilisationofcitycentre practical solutionsandarrangementstocurrent are endeavouring,onaregular basis, tofind have triedtoreconcile conflictinginterests and tives, churches, theauthoritiesandpolice people, chambersofcommerce, socialinitia- Another result ofthisconflictwasthatbusiness and regulatory measures. out through aseriesofcloselypursuedpolicing hand, thehighlyvisibledrugscenewasdriven adjoining districtofSt.Georg,ontheother In thearea round themaintrainstationand plan ofaprohibition ofbeggingwasshelved. sions intheirprogramme. Forinstance,the the subsequentsenatehadtomakeconces- had acontradictoryresult. Thethensenateand The politicalresistance ofthisloosecoalition the localpress unitedagainsttheseproposals. Welfare Service,politicalinitiativesandpartof addicts andalcoholics.Churches, theSocial ures todriveawayhomelesspeople,drug inhospitality ofthecity,” andinparticularmeas- for sharp“measures againstthethreatening later becameknownasa“BeggarPaper”called affairs Wrocklage,minister forinternal inwhat back to1996,whenthethensocial-democrat To understandthisconflict,itisnecessarytogo cisely theissueofaprohibition ofbegging. begging,ormore pre-still goingon,concern which commencedattheendof2005andare and again.Themostrecent suchdebates, ile result ofdebatesconductedinthecitytime This comparativelyliberalapproach isthefrag- closing time. “bed down”attheentrancesofshopsafter Hamburg andhownumerous homelesspeople striking howmanypeopleare begging in Compared withotherGermanlargecities,itis the regulation ofaccesstopublicspace. importance oflocalconditionsandconflictsfor of thesamenationallegislationpointto from citytocity. Theselocaldifferences inspite differs sharply public spacebythoseconcerned visibility ofextreme poverty. Accessibility to large citiesencounterwidedifferences inthe Those whostroll through different German By The example ofHamburg Disputes abouttheprohibitionofbegging– Stephan Nagel of thecitycentre. general prohibition ofbeggingincertainareas foreign beggars.Furthermore, hesupported a inate between“good”domesticand“bad” ordinance, couldnot,forlegalreasons, discrim- Hepointedoutthatan anti-beggar ernment. affairs oftheconservativecitygov- for internal This motionreceived supportfrom the minister the basisforadecisionofprinciple. this regulation wouldbeassessedtoserveas lished beggarsofHamburg. bition wouldnotbedirected againstold-estab- of a“smugglingandexploitivemafia.”Aprohi- feared thatbeggarsfrom Bulgariawere victims prohibition of“organisedbegging.”Itwas idents. Thechamberofcommerce calledfora aroused theindignationofmanyHamburgres- abilities forbeggingpurposes,hadparticularly from ,whoexhibitedtheirphysicaldis- Europe.”gars from Groups Eastern ofbeggars to “prohibit atleastprofessional bandsofbeg- prised thefootballworldcup.Aregulation was March andOctober2006–aperiodthatcom- of begginglimitedintimeandspace,between chamber ofcommerce. Itcalledforprohibition began withaninitiativeoftheveryinfluential bition ofbeggingincertainareas ofHamburg, The mostrecent proposal, tointroduce aprohi- ofthebusinessworldunderthreat. turnover the averagecitizenisputtoquestionand iour.” Theundisturbeduseofthecitycentre by ging,” “excessivedrinking”or“loutishbehav- measures against“begging,”“aggressive beg- keepers andthemedia,whoare callingfor attack timeandagainfrom politicians,shop- This liberalconsensushashowevercomeunder reality inthecity. ed andtoleratedasanexpression ofthesocial and begginginthecitycentre hadtobeaccept- sensus foralongtime,that“beddingdown” consumption. Thiscircle hadreached acon- again thenextdayandready forundisturbed itary facilities,sothatthecitywouldbe“clean” sessions duringthedayandhaveaccesstosan- needed abasewhere theycouldputtheirpos- people “beddingdown”inshopentrances the ideagotgenerallyacceptedthathomeless 2 1 Experiences with

G erm a n y reconfirmed. was consumers, and notonlyto belonged toallpeople and accessible toall, city shouldbe the that The demand, 11 HOMELESS in Europe summer 2007 12 HOMELESS in Europe summer 2007 measure were thatthesebeggarsengaged in specified places.Thereasons givenforthe handicapped beggars,mostlyfrom Bulgaria,in traffic lawprohibited beggingby physically the nextmonths,anordinance basedonthe was thereby averted(forthetimebeing),butin The introduction ofaprohibition ofbegging ed hispositionpubliclyonthedisputedissue. tion ofbegging.Theburgomasterhadnotstat- known thatthere wouldbenogeneralprohibi- president ofthesenatemadehis“opinion” became allbutofficial inApril2006,whenthe in parliamentforaprohibition ofbegging.This soon emergedthatthere wouldbenomajority came outstrongly againstsuchaprohibition. It to consumers, to all,andbelongedallpeoplenotonly The demand,thatthecityshouldbeaccessible mirror ofthesocialfracture couldalsobeheard. Fundamental considerationsaboutthecityasa as longthere ispovertyanddeprivation. as one(andoftenthesole)strategyofself-help, tion ofpoorpeople,whofallbackonbegging ance andunderstandingforthedifficult situa- important elementhere wasthecallfortoler- rejected withmanydifferent arguments.An The demandforaprohibition ofbeddingwas any actorsonthestreet. media andinvariouscommittees,butnotby The disputewaswagedpredominantly inthe opposition paritieswere verymuchinvolved. Hamburg, andrepresentatives ofchurches and for manyinstitutionsthehomelessin welfare andsocialservicewhichisresponsible und Hunzt’[EveryTom, DickandHarry],the formed, inwhichthelocalstreet paper‘Hinz the cityformonths.Again,abroad resistance This ledtoadisputethatoccupiedthepublicin ging. slight majorityagainstaprohibition ofbeg- public opinionpollinthoseweeksrevealed a come ofthedifferences ofopinion.Alocal on theirobserverrole andwaitedfortheout- thenembarked The membersofgovernment begging from thelegalpointofview. ly questionablebasisofapossibleprohibition of of argumenttookupthethemeextreme- 5 Churches andwelfare organisations 3 was reconfirmed. Anotherline 4 inappropriate. ment. Makingareas off limitswouldbefully be acaseforthepoliceandjusticedepart- by peoplebehindthescenesdidexist,itwould to criminallaw. Ifthemuchtoutedexploitation found, thenitshouldbeprosecuted according dence ofcriminalactivity. Ifsuchevidencewas the policedidnotmanagetouncoveranyevi- Social Welfare Servicefurtherpointsoutthat tle thoughtisgiventohelpingthem.”The are dealtwiththrough ordinances andhowlit- howoftenbeggingpeople cause forconcern capped peopleisdisturbing.(…)Itshouldbea gars isapparently thatthesightofpoor, handi- “The onlycrimeofphysicallyhandicappedbeg- Social Welfare Service,Annegrethe Stoltenberg: instance, thechairwomanofHamburg This actiontoowasopenlycriticised.For tion ofbeggars. was intendedasmeanstoprevent theexploita- applied, theycouldnotobtainoneeither. This couldnotproduce and,ifthey concerned cise acommercial activity, which thebeggars ing legalregulations required apermittoexer- organised andcommercial begging.Theexist- pies. against foreign beggarswhobeggedwithpup- and mostrecently (February2007)extended capped foreign beggarsonseveraloccasions, were declared off limitstophysicallyhandi- Hamburg. Inthemonthsthatfollowed,places elicited onlyminorpoliticalresistance in The actionagainst“alien,”“foreign” beggars legal means. German, didnotcountersaidprohibitions with the placesmadeoff limits,whodidnotspeak by As expected,theforeign beggarsconcerned “advantage ofGermancompassion,”finding Europe“bands ofbeggars”from taking Eastern ed apicture of“foreign” “mafiacontrolled” discourse, asthemajorityofpress present- was partiallydistortedinHamburgbyaracist justice andallocationproblems. Thisdiscussion more generaldiscussionaboutpovertyissues, about prohibiting begginghavealsoledtoa The Hamburgexampleshowsthatthedebates commercial activityrequiring apermit. in support,theywere allassumedtoexercise a 7 Without anyvaliddocumentaryevidence Without 6 9 8 7 6 5 4 3 2 1 come therepresentative policy. part inthedebatehavemadenoeffort toover- interests. Theorganisationsthathavetaken aged toassertanddefendtheirownrights canbesupportedandencour- sons concerned rial forbroaching theissueastohowper- The Hamburgexamplesoffer nopositivemate- action. soap-box oratoryandreal socialandpolitical sentation ofinterest assumedinposturingand There isalargegaphere betweentherepre- against aprohibition makingplacesoff limits. opposition tothestatutesthrough acomplaint come toterms.There isnopoliticalorlegal welfare organisationshaveinlargemeasure hibit begginginparticular, withwhichthesocial of largeandsmallcitiesinGermany, thatpro- that specialusestatutesare inforce inaseries for successmustbestressed inviewofthefact role. Thisroom formanoeuvre andprospects welfare organisationshaveplayedasignificant the businessworld.InHamburg,churches and ging evenagainsttheinterests ofpoliticiansand the introduction ofmeasures prohibiting beg- poor people,canbesuccessfulandprevent legal defencefortheinterests ofhomelessand public campaignsbyorganisationstoprovide Furthermore, theHamburgexampleshowsthat beggars legitimateandself-evident. “domestic” beggarsasopposedto“foreign” differences inthetreatment ofour“own,” f ors enad 05 ihretasPout–Itretoe o oie n rnnseödni fetihnRu,p.8ff. http://www pp. vonPolizei undOrdnungsbehördenimöffentlichenRaum, Sicherheit alsProdukt–Interventionen 2005: Reinhard: Mokros, Cf. andthe Viability ofHomelessSMO 1089–1090. Benefactors, pp. Resources, 6: theMargins: at Mobilization ASR61/1996, 1996: in: David A.: DanielM.;Snow, Cress, cf. ness, against ofUSinitiatives study homelessnesshasbeenstressedinacomparative tocombat forinitiatives society organisations charitabl significanceofthe resourcesofchurches, Thegreat competingEasternEuropeanbeggarsonatouristvisa. sive against assomeofthelocalbeggarswereclearly toandevenag negative thisissuehasbecomeevenmorecomplicated, In concreteterms, „AllesMafiaoderwas?HysterieinderCity…“ ‘Hinz undKunzt’ March2007: Press releaseoftheHambourgSocial of15May2006 Welfare Service Ablehnung vonObdachloseninderdeutschen 135 –138. 2005: pp. Kirsten, 4/2005: wohnungslosNr. Endrikat, in: Cf. Bevölkerung, thisfigureamountedto38.4%. In2004, pedestrian areas.” withthestatement only34.6%oftherespondentsagreed orentirelybanned “Should begginghomelessberather conducted in2002, on study Inahighlyrepresentative misanthropyintheFederal“group-related RepublicofGerm 2006. 1. Hamburger 7./8. Abendblatt May2001. Endbericht, Minimierung derPräsenzsozialSchwacherindenInnenstädten. undandereInstrumentezur Wem gehörtderöffentliche Raum?Gefahrenabwehrverordnungen Titus 2001: Simon, bywayofexample, Cf. enshrined intheconstitution. thefreedevelopmentofone’s aprohibitionwouldviolate particular becausebeggingassuchentailsnodangerandthat persona areunconstitutionalandlegal locallyenactedprohibitionsofbegginginGermany The prevailingviewinlegaldoctrineisthat about accesstopublicspace. combineandpoliticiseintra-regionally totackle, triedasolutionentitled Germany “The citybelongstoall” In themid1990s, http://www 2005 30.12. Hamburger Abendblatt 2005 29.12. Hamburger Abendblatt .polizeiforschung.de/050105_Mokros_Sicherheit_als_Produkt.pdf .abendbla tt.de/da ten/2005/12/30/518245.html http://www http://www 8 .abendbla .abendbla tt.de/da tt.de/da ten/2005/12/30/518241.html ten/2005/12/29/517895.html?s=2 basic rightsofusall. human andcivilrights,forthenwedefendthe ments beggingforunderstanding,buton tinted,argu- sympathetic, oftenpaternalistically defence musthowevernotbebasedsolelyon motion oftheserightsandtheirpolitical Thepro- tion oftherightsthoseconcerned. tion and,incaseofdoubt,onthelegalasser- city conflictsofusebasedonlyontherecogni- ments are neededonhowtodealwithinner Consequently, pragmaticsolutionsandarrange- behaviour daytoday. who decidewhatwillbesanctionedasdeviant competent parliament,butthemunicipalelites trol threatens toarise,where itisnolongerthe tem ofstate,municipalandprivatesocialcon- constitutional andpoliticalpointofview–sys- As aresult, ahighlyquestionable–from the and “goodrapport”atrisk. in aneffort nottoputthe“goodcooperation” that curtailtherightsofpersonsconcerned, reach compromises andtoagree onregulations In suchcommitteesthere isoftenpressure to (e.g. the“St.JamesRoundtable”)onother. organisations, authorities,churches, thepolice and thebusinessworld,socialwork,welfare the city authorityandsocialworkontheonehand, and incooperationcommitteesbetween action isthatof“quietlobbyingwork”intalks the rightsofpoor. Thesecondfieldof of compassion,andapolicybasicdefence debate rangingbetweentwoextremes: apolicy action. Thefirstisapublic,argumentative This representative policyhastwofieldsof and • 9 the disputes yivld in ly invalid, ,andcivil- e, homeless- from gres- any,” lity s, 13 HOMELESS in Europe summer 2007 14 HOMELESS in Europe summer 2007 flag ofpublicsafety.flag imposed underthe Cooperation inthe Cooperation requested and homeless was interest ofthe people whoarehomelessinRotterdam On criminalisationofhomelessnessand the policewithpowersforlaw enforcement Thesenewrulesprovide the localgovernment. been addedtothegeneralpoliceregulations by imprisonment. Elevenrulesofthis typehave to afineofup These three examplesdescribesituationsliable and voices. ing tohim.Hismindisalready fullofrumours shelters. Helikesaquietplaceandnobodytalk- But atnightthere are notenoughplaces inthe a nurse,orspendtimeondifferent activities. where hecantakeashower, haveacoffee, visit night. Inthedaytimehegoestoadayshelter, could befineduptoamaximum for himself.Itisnotallowedthoughandhe John issleepingrough inanicespacehemade way thatitisnotintendedfor. other peopleandtheyare usingthestatueina statue becauseitisconsidered anuisancefor not happyeitherwithsixteenmensittingonthe order tohideitfrom thepolicemen.Theyare ceal itbehindhisbackinasuspiciousmanner this area onthestreet. Heisnotallowedtocon- allowed tohaveanopenbeercanwithhimin They findthebeerandgivehimafine.Heisnot notice thathehassomethingbehindhisback. look atHenrysittinginthissmallcrowd and temporary home.Two policemen walkby. They totheirown the drillisoverandtheycanreturn panions are sittingnearthestatuewaitinguntil fire alarmprocedures. NowHenryandhiscom- rules are tightonbeingfire proof andpractising the bigfires wehadinTheNetherlandsthe practising inthissocialboarding house.After with hisbeerinhand.Thefire-brigade was metres distance.Henrylefthisroom quickly go outsideandgathernearastatueat100 when thefire alarmstarted.Everybodyhadto in acoupleofmonths.Hewashavingbeer ing house.Heexpectstostartlivingonhisown Henry wassittinginhisroom inasocialboard- herself asbeingnobetterthandirt? exist inRotterdam? Doesshehavetolookon nuisance tootherpeople.Issheevenallowed sight ofhersittingsomewhere isconsidered a paid. Butthere ismore: itseemsthatjustthe and dousefulthings.Nowthere isafinetobe She istryingtopickupherlife,findaroom not allowedtositthere. Shedidnotknowit. might beanuisancetootherpeople.Shewas her for her backpackbesideher. Policeofficers fined doors, sittingonabenchunderthetrees with waiting outsidetheshelteruntilitopenedits Jacky wasveryangryandindignant.She By Peter Zuidam € 60 forloiteringthere, inawaythat € 2,500, orupto3months and Geertien Pols € 2,500 per neglected bythecitygovernment. did notvoteforsomeyearsbecause theyfelt the social-democratpartyandmany ofthem old quarters.Inthepastthesecitizens votedfor political changeinfavourofthecitizens experience, butwithastrong drivetomakea politicians inthecitycouncil,withnopolitical It alsomeantthatthere were now 17new was widespread. A generalfeelingofun-safetyanddiscomfort Dutch, andwithdifferent habitsand life-styles. immigrants livinginthecity, notspeaking shift thathadtakenplacewiththeincrease in needed tobeaddressed. Italsoarose from the coping withthepublicnuisanceandissuesthat city. Onadailybasis,theyexperiencedandwere electorate residing intheoldquartersof establishmentandthe former citygovernment that there wasamajordiscrepancy betweenthe the citycouncilwithahugemajority. Itshowed tional neo-conservativepartygotelectedinto parliament inmay2002.Hisbrandnewopposi- was shotashorttimebefore theelectionof city councilelectionsinRotterdam hedied.He ters oftheCityRotterdam. Shortlyafterthe and stoodforliveableconditionsinallthequar- 2002. PimFortuynstartedhispoliticalcareer There washoweveradifferent politicalarena in years before 2002. been created, asaresult ofcooperationinthe care. Thecare providers networkhadalready shelters andboarding housesandorganisethe Rotterdam. Theapproach wastoorganisemore onwards, notonlythrough housingevictionsin 1994. Homelessnessincreased from 1990 on policyapproaches thathadalready startedin Rotterdam -infactthecityhasbeenbuilding pointtowards coercivethe turning policyin For anoutsider, itmightseemthat2002was the issuewillbeaddressed inthisarticle. ties oforganizationstoraiseawareness about inalising approach inpolicyandalsotheactivi- tion withthepolice,atendencytowards acrim- present article.Issueslikebegging,collabora- does itwork?isuseful?)thefocusof coercive. Ashortanalysisofthisapproach (how Rotterdam couldbeconsidered tobequite In generaltermsthehomelessstrategyin unsafe intheirpresence. are thatthepubliccouldbeafraid,orfeel creating nuisanceinpublicspace.Thegrounds ple, orgroups ofyoungstersorothersthatare pose oftheseistheremoval ofhomelesspeo- and actioninthepublicdomain.Themainpur-

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d s municipal authorities. and care programmes. Thiswashelpfultothe problem ofhomelessness andprovide housing worked togethertomakeapolicy to attackthe on thenationalagenda.Fourdepartments In 2002theproblem ofhomelessnesswasalso the clients’interest. ests andresponsibilities were solved,benefiting conflicts onself-proclaimed domainsandinter- and thepublicoffice andinterest. Particular laboration betweenthecaretaking institutions The spin-off effect here wasanimproved col- ment since2002. cutor andheadofpolice.Thiswasthenewele- with accountabilitytothemayor, publicprose- directed bytheMunicipalPublicHealthService, coordination, andpublichealthmanagement, The keywords involvedhere were safety, central a care program, sometimesstartinginprison. case forthecourtofjusticetodirect peopleinto started thisarticlewith,were usedtobuilda representative groups. Thefines,thesubjectwe health care, homelessorganizationsandclient the PublicProsecutor, theMagistracy, mental tutions andorganizationsincludingthepolice, care inacombinedeffort ofallthepublicinsti- One ofthetargetswastotake700peopleinto homeless citizensandthecare providers. Indeed itoffered opportunitiesforboththe otherwise shouldhavetakenalotmore time. and workingtogetherinarrangementsthat safety. Italsooffered opportunitiesforcreativity requested andimposedundertheflagofpublic Cooperation intheinterest ofthehomelesswas byordinance anddecree.guage: governance defining finalresults andusingstronger lan- mulation ofpolicies,settingmore intotargets, There were alsosemanticchangesinthefor- engagement andcooperation. operation. There wasarenewal oftherules with thesocialpartnersindirect fieldof sequence wasaredefinition oftherelations the organizationofmunicipality. Onecon- civil servantstransferred tootherpositionsin One effect wenoticedwasthatexperienced clear whowasincharge. was thepoliticalspokesmanonthisissue;it officer incharge.Itwasn’t immediatelyclearwho the finalresponsibility andwasaccountablepublic public safetypolicywiththemayor, whocarried in theperiod2002–2006shared responsibility for These firstandsecondaldermanforPublicHealth Homelessness andSafetywasacriminologist. in thistermonthedossiersPublicHealth, da duetotheeventsof9/11.Thesecondalderman Public safetydominatedthegeneralpoliticalagen- ness, care andsafetyinonepolicydossier this typeofbusinesshadtocombinehomeless- a newaldermenwithnotsomuchexperiencein Safety wasthekeypolicywatchword. Itmeant . us isbigger. What canwedoaboutthat? we havetopayfor. Theproblem torehabilitate new address. Then wehaveanenlargeddebt room ofourown.Thenthebillfindsusatthis we hopetolivesooninaboarding houseor client organisation.Theironlyargumentwas: brought toattentionthepolicymakersby chance for3monthsimprisonment,were also The discussionsonthefinesof are homelessandlivinginterribleconditions. aim oftheoperationwastohelppeoplewho During theprocess wewere convinced thatthe other care organizations. and with policymakersofthecitygovernment andalso ization hadthesediscussionsinternally and proper way?We asacare providers organ- we adjusttherulesandlawinanappropriate question was:doesithelpourpeople?Howdo the rightsonprivacy, onthedossiers.Theirmain ization wasintenselyinvolvedinadvisingabout grammes. TheClientadviceboard ofourorgan- toorganizebetterpro- the localgovernment health care organizationsworkedtogetherwith Organizations forthehomelessandmental speak aboutitscitizens. the policybutwantedtofindanotherway since2006continued new localgovernment were alsothesubjectofsuchreferences. The migrants andyoungstersfrom specificgroups had tobechallenged.Alsoothergroups like their appearance,thattheyare anuisance- considered asnobetterthandirtbecauseof rity -animplicationthathomelesspeopleare ing from thesettledcitizen’sfeelingofinsecu- The negativeconnotationsandreferences com- was notacceptedbypeoplewhoare homeless. definitely guage usedbythecitygovernment get accesstocare. Ontheotherhand,lan- accepted, becauseyouare betteroff whenyou The coerciveness isasamatterofspeaking house forsupportedliving. people cometoliveinaplaceoftheirownor are newtargetsthatmore (2900)homeless prosecutable. Fortheperiod2006–2010there prostitution isacriminaloffence andtherefore of thesewomenindespairasa’consumer’ tracy asaprotective necessity. Taking advantage actions ofmentalhealthinstitutionandmagis- justified aninterventionthrough thecombined is placedintheparadigmofmentalillness.This Street prostitution bywomenaddictedtodrugs supported accommodation. health care andsupportstartedlivingin Health Billmanyprostitutes received mental prohibited andthrough utilizationtheMental cy onstreet-prostitution. Street prostitution is the publicprostitution zone,duetoonewlega- more care. Thecityalsosucceededinclosing women inanewdirection inlife,withaccess to altogether succeededinhelping700menand In fouryears,asaresult ofthecooperation, we € 2,500, orthe 15 HOMELESS in Europe summer 2007 16 HOMELESS in Europe summer 2007 as a coalition partner in city government. as acoalitionpartnerincitygovernment. when thesocialdemocraticpartywasrestored public wasproved intheelectionsof2006, approval ofthesemeasurements bythegeneral are homelessbutthesettledcitizens.The the offenders were inthiscasenotpeoplewho search ofdrugsandweapons.Themajority check oneverypersoninsidethesafetyarea, in The policegotalegalpermittocarryoutbody jeopardy increased thefeelingofpublicsafety. Proclaiming safetyareas inneighbourhoods new policestrategytorestore publicsafety. anti-social behaviour. Thiswasthebasisfora eral publicisalsoasource ofdisturbanceand caused bypeoplewhoare homeless.Thegen- It becameclearthatpublicnuisancewasn’t only there were 500rough sleepers. facilities. We havehadtimesinthepastwhen These personsare irregular usersoftheshelter shelters and46semipermanentrough sleepers. sleepers, whoconsistentlyrefused theoffered Our fieldworkerslocated46permanentrough Also wenoticedadecrease ofrough sleeping. 57% onbeggingand45%rough sleeping. decrease offinesisshownfor2005and2006- enforced thenewlegislation.Asignificant sleeping. Thismakesitclearthatthepolice place in2004,especiallyforbeggingandrough 2003 till2006asevere increase offinestook eral policerulesshowsthatforovertheyears were obvious.Therecent evaluationofthegen- The effects ofthegeneralpolicerulesfrom 2003 All thishasapenaltyofmaximum3monthsimprisonmentor Also forbiddenis: • • • • • • • • • • It isprohibited to: listed below. police greater powerstoactintheirdailystreet surveillanceofpeoplewhoare homeless,are The generalpoliceregulations inRotterdam coercive care, Sometimescare willstartinprisonandcontinues aftertheimprisonment. infringements recorded thenitgivesthecityauthoritiesabasistoconsider takingyouinto Every timetherulesare breached, itis anewitemaddedtoyourpolicerecord. Ifthere are it ispushy, orpeopleare blockedfrom passingorare intimidated) begging, especiallywhere peoplefeelunsafebecauseofthewaybeggingisdone,(ie: the overtpossessionofknifesandweapons stay onthestreets ingroups ofmore thanfourpeople; a waythatisnuisanceforothers(creating feelingsofinsecurity); be inapublicplaceanddisrupttheorder, tobethere withoutareasonable goal,in damaged; stay inpublicplacesunderaroof (likethepostoffice) becauseitusuallyisleftdirtyand urinate inpublicplacesthatare notmeantforit; dirty thepublicsurroundings; use alcoholordrugsopenlyinthestreets; cause nuisanceinthepublicspace(aimedatpeoplelyingonbenches); ment. Afterthathewillhaveacare plan. is inamentalhealthcare institutionfortreat- made acomplaintaboutthispoliceaction.John care planofsupportedliving.Theorganization year again.Henryistakinghisnextstepin Jacky leftthecity. Maybewewillmeethernext What happenedtoJacky, HenryandJohn? direction inthisapproach. They tookonastrong role ofcoordination and the fundingthatwasneededformore care. wanted tochangeandwhy. Theyalsoprovided homeless peopleanddiscussedwhatthey stayedintocontactwith city government that were usedwere basedonlegislation.The So doestheendjustifymeans?Themeans tive catalystinhomelesspolicyanddailypractice. Thus criminalisationactuallyproved tobeaposi- for peoplewhoare homeless. opportunities inthearea oflabourreintegration and activitieswere givenaboost.Thisincludes ple andopportunitiesinthearea ofhousing vide them.Thequalityoflifeforhomelesspeo- using servicesandtheorganisationsthatpro- improved therelations betweentheclients It andnon-governmental. both governmental and cooperationbetweenseveralinstitutions, true thatitimproved thecoordination ofcare But takingaverygeneralperspective,itisalso some criminalisationconnotationsandeffects. a vehicleforgeneralsafetypolicyindeedhas This showsusthatfocusingonthehomelessas , whichwere changedin2003togivethe € 2,500,- • David Coffman to address homelessness through thepassingof increasingly sought 1990s aslocalgovernments actions thatcriminalizedhomelessness inthe NLCHP continuedtomonitorcity andcounty inalization ofhomelessness. amongst othermodelsforcounteringthecrim- nances andsweeps,protective legislation, reach, toanti-panhandlingordi- alternatives ples ofpolicedepartmenttrainingandout- “No HomelessPeopleAllowed”includedexam- tion measures. Detailingmodelsin17cities, totheuseof criminaliza- positive alternatives importantly beganNLCHP’s efforts to highlight inalization ofhomelessness.Thisreport also account ofthegrowing trend toward thecrim- people. Thereport provided amore thorough representingproviders andattorneys homeless and letters,interviewswithservice documents,unsolicitedphonecalls government report through mediasearches, searches of Cities.” NLCHPgathered informationforthe in49UntiedStates Litigation, andAlternatives Allowed: AReportonAnti-HomelessLaw, sive analysiswith“NoHomelessPeople In 1994,NLCHPattemptedamore comprehen- and Washington, D.C. Vegas, Miami,NewYork, SanFrancisco,Seattle, in ninecities:Atlanta,Chicago,Dallas,Las of increasing hostilitytoward homelesspeople other laws.Thereport alsoexaminedpatterns anti-sleeping laws,andunequalenforcement of handling laws,anti-loiteringandvagrancy focused onfourtypesofmeasures, anti-pan- Anti-Homeless Ordinances.” This1991report “Go Directly toJail:AReportAnalyzingLocal on Homelessness&Poverty(NLCHP)published nalizing homelessness,theNationalLawCenter Recognizing thisgrowing trend ofcitiescrimi- people whowere nothomeless. police generallyoverlookedwhencommittedby and, attimes,arrested forminoroffenses that resulting inhomelesspeoplebeingharassed selectively enforced othermore neutrallaws, vagrancy. Inadditiontotheselaws,manycities handling, sleepinginpublic,loitering,and ple. Theselawsincludedprohibitions onpan- passing ordinances thattargetedhomelesspeo- began ness, manycitiesandlocalgovernments addressing theunderlyingcausesofhomeless- of becominghomeless.However, ratherthan tance tohomelesspeopleandthoseindanger lessness andprovided someemergencyassis- many citiesrecognized theproblem ofhome- cally throughout theUnitedStates.Attime, In the1980s,homelessnessincreased dramati- By Cities AdvocatesName “Meanest” U.S. Illegal tobeHomeless: Eric Ares , National Law Center on Homelessness and Poverty and Homelessness on Center Law National , National Coalition for the Homeless the for Coalition National lessness andformore productive approaches. advocating againstthecriminalization ofhome- report asaneducationtoolandameansfor tocriminalization,hasimproved the alternatives along withtheinclusionofalistconstructive providers andadvocates,theMeanestCitieslist, media andvariousinterviewswithservice based onqualitativeinformationgathered from Reported intheformofdescriptivenarratives nalization legislationinthecity. existence ofpendingorrecently enactedcrimi- criminalization measures inthecity,and port forthemeanestdesignation,historyof homeless peopleinthecity, localadvocatesup- penalties, thegeneralpoliticalclimatetoward enforcement ofthoselawsandseverities ber ofanti-homelesslawsinthecity, the meanest citieswere chosenbasedonthenum- cities around thecountry, thereport’s top20 results ofasurveylawsandpracticesin224 Homelessness inU.S.Cities.”Includingthe Dream Denied:TheCriminalizationof and NLCHPcollaboratedonceagainon“A lessness: TheMeanestCitieslist.In2006,NCH models foraddressing theroot causesofhome- ness andadvocatingformore constructive lic discourseonthecriminalizationofhomeless- new strategyinadvocatingincreasing thepub- in theUnitedStates”sawadoptionofa Homeless: TheCriminalizationofHomelessness Homeless, the2004versionof“Illegaltobe Published bytheNationalCoalitionfor to anti-homelesslegislation. of federalandstatecourtcaseschallenges nearly 60communitiesandamore thorough list through theuseofastandardized surveyof including amore methodologicalapproach built ontheaccomplishmentsofpastreports by Homelessness intheUnitedStates.”Thisreport be Homeless:TheCriminalizationof first collaborativereport onthetopic,“Illegalto Homeless (NCH)andNLCHPpublishedtheir In 2002,theNationalCoalitionfor sweeps. homeless peopleand48%engagedinpolice ment, orcrackdowns,ofapplicablelawsagainst addition, 36%initiatedaggressive enforce- less people’s useofpublicspacesorbegging.In amended existingonestorestrict eitherhome- begging and18%enactednewordinances or ordinances oramendedexistingonestorestrict available from 1996-1999,12%enactednew Among the49citiesforwhichinformationwas ordinances thattargetedhomelesspeople. and

US A people. targeted homeless passing ordinancesthat governments began cities andlocal many of homelessness, the underlyingcauses thanaddressing Rather 17 HOMELESS in Europe summer 2007 18 HOMELESS in Europe summer 2007 applying the“meanest”designationtoacity. ative measures are takenintoaccountwhen sources ofinformation.Bothpositiveandneg- of acityiscreated through usingthesevarious A holisticpicture ofthecriminalizationpractices websites. report publishedonNCH’s ( the surveycanbefoundin“Dream Denied” encampments ofhomelesspeople.Examples harassing measures suchaspolicesweepsof laws againsthomelesspersons,aswellother discover theextentofselectiveenforcement of side. NCHandNLCHPaskotherquestionsto must performinpublicbecausetheyliveout- and otherlawstargetingactshomelesspeople tions onsharingfood,anti-panhandlinglaws, tions aboutlawsandpolicies,suchasrestric- the UnitedStates.Thesurveyincludesques- ing homelessnessinover200citiesthroughout cates, serviceproviders, andpeopleexperienc- NCH andNLCHPuseasurveytointerviewadvo- METHODOLOGY encouraging citiestomakepositivechanges. the meanestcitiesdesignationcanbehelpfulin Flagstaff, AZ,provides ausefulexample ofhow target thepersonexperiencinghomelessness. approach homelessnessasasocialissueandnot better equippedtoencouragecities benefits ofproviding housing,advocatesare nomic andthesocialcostsincomparisonto their community. Usinginformationontheeco- considered orhavealready beenenactedin counter criminalizationpolicieswhichare being Advocates are encouragedtousethereport to $30 perday. seling, housing,andothersupportservicesis Whereas, theaveragecostofproviding coun- where from $40-$140perdayonjailcosts. can beshockedtofindouttheyspendany- of thecostcriminalizinghomelessnessand homelessness. Manycityofficials are notaware with theeconomicimpactofcriminalizing homeless peopleare targetedintheircity, along The report armsadvocateswithdetailsofhow homelessness into implementingmore positiveapproaches to on the20meanestcitieslistwillbepressured cities report, NCHandNLCHPhopethatcities thebiannualpublicationofmeanest With ADVOCACY THE VALUE OFTHEREPORT IN homeless.or g ) andNLCHP’s ( www www .nlchp.or .national g - ) lessness. measures dealingwiththeproblem of home- ment officials canbegintoenactconstructive shortcomings ofcriminalizationpoliciesgovern- of localadvocatesandareport detailingthe thehelp counter criminalizationpolicies.With NCH, NLCHP, andlocaladvocateswork to and litigationagainstcriminalizationpolicies public educationonthecausesofhomelessness towards eradicatinghomelessness.Through of orunwillingtotakeconstructivesteps the meanestcitiesdesignation,are stillunaware exceptions totherule.Manycities,regardless of The storyofFlagstaff, AZandFortMyerare several cities. less personsfacingcriminalizationordinances in media hasledtopositiveoutcomesforhome- officials and with sympatheticgovernmental nation ofnationalandlocaladvocates,along would havegonelargelyunnoticed.Thecoordi- to aproposed anti-feedingordinance which NLCHP, andlocaladvocatesattractedthemedia person dressed inasquirrel costumeNCH, theaidofa tion alsoproved tobehelpful.With In theFortMyercasespecificallymediaatten- address theissuesofthoseconcerned. indoorfeedingprogram will a newalternative the proposed ordinance andiswaitingtoseeif ordinance. Asaresult, thecitycouncilrejected ence, topressure thecitytotableproposed costume squirrels, andthreats ofcivildisobedi- as grassroots organizing,theatricsinvolving stitutionality oftheproposed ordinance, aswell used threats oflitigationtochallengethecon- challenge thepassageofthislaw. Advocates the 2006criminalizationreport tosuccessfully NLCHP, localadvocatesusedinformationfrom anti-feeding law. thesupportofNCHand With recently consideredernment thepassageofan In anothercase,theFortMyerFloridacitygov- city whoare leavingincarceration. supports transitionservicesforpersonsinthe their situation.Thecityalsopassedataxwhich cates tohelphomelessindividualsgetoutof less individual,shelters,andhomelessadvo- criminalization lawsbutworkwiththehome- the city. Citypolicenowdonotenforce the taxes tohelpsupporthomelessindividualsin over thepastyeartocreate newpoliciesand city todialoguewithhomelessserviceproviders last year’s report. Thisdesignationspurred the stunned tobedesignateda“meanestcity”in at homelessindividuals,Flagstaff, AZ,was After passingcriminalizationordinances aimed • embrace theopportunitiesforpositivechange. apositiveattitude, wecanhelptherest ofthecommunity to With pital socialserviceandemergencyservices,etc)ishighlyeffective. process ofmeetingwithexistingagencies(suchasthepolice,hos- whom theyinteract.Manyofushavefoundthatanassertive “clients” are notjustthehomeless,butalsothoseentitieswith intended tobenefittheiralready existingefforts. Inessence,our always trytomakeclearournew“partners”thatservicesare “graft”, thetrusttheyhavewithustonewrelationship. We encounter. Duetotrustissues,itisalsoessentialtransfer, or many timestoaccompanythehomelessthrough theinitial ural advocates.Ithelpstoestablishadvancecommunicationsand Being direct witnessestothatpath,weare inapositiontobenat- lowed thepathsofourclientstothoseservicesthattheyneed. bridges withthegreater community. Mostofushavesimplyfol- There are avarietyofapproaches thathaveemergedtobuild What lessonshavethosewhoprovide Street Medicinelearned? the system. us tothestreet, webecometheambassadorsfor homelessinto As ourformerlyhomelessoutreach workerswere ambassadorsfor “ with ourclientsfrom theoutsideintoservices theyneed, the rest ofthecommunity. Ihavecalledthisprocess ofworking the moralimperative–ofbuildingbridgesunderstandingwith unwelcome. Itdoesnottakelongtorealize theimportance–infact ical services,weare disturbedtoshare theirexperienceofbeing gather forourservices.Whenwebegintosendclientsmed- being forced toleavecertainareas whenthehomelessbeginto possible drugdealers,accusedof“enabling”thestreet homeless,or war withthestreet homeless.Itisnotunusualto be searched as the frustrationsofnon-homeless,whosometimesseemtobeat political environment. Manyofusare immediatelyconfronted with Once inthestreets, cliniciansare confronted withacomplexsocio- the membersofthisgroup. following observationsare acompilationofinsightsfrom manyof from,who workinthestreets andsupporteachother. tolearn The in Pittsburgh,Pennsylvaniatocreate aforumformedicalpersonnel Street MedicineSymposiumgatheredIn 2005thefirstInternational the riverbanksandinabandonedbuildingswhere theydwell. begun toworkwiththeunsheltered homelessinthealleys,along who remain “outside”.Inresponse, clinicianshaveincreasingly these largelyshelterbasedinitiativesstilldonotreach manyofthose Health Care fortheHomelessprogram since1987.Nonetheless, progress hasbeenmadethrough thefederallyfunded(McKinney) less personswho“sleeprough” Much are ofparticularconcern. In theUnitedStatesaselsewhere, thehealthneedsofthosehome- www By Working fromtheOutsideto theInside Inreach Jim Withers, .opera ”. Itisthenaturalextensionofgoingoutintotheirworld. tionsafetynet.net MD, Operation Safety Net Safety Operation MD, • www .streetmedicine.net had aconflictwithherbusinesscommunity. Asshedescribesit, Donna Kelly, aStreet MedicinenurseinClevelandOhio,recently cussions maybedifficult, buttherewards canbegreat. cacy” strategywiththosewhohaveseemedoppositional.Thedis- part oftheirdiscussions.Itmayrequire are-thinking ofyour“advo- to identifytherelevant communitygroups andmakeaneffort tobe inclined tofeelweare perpetuatinghomelessness. It isimportant less, givingtothemitemssuchasblanketsandfood,theyare when theyseehealthcare workerskneelingbesidethestreet home- Unfortunately,en theircustomers.Theseare legitimateconcerns. their doorsteps,leaveitemsonproperty andpotentially fright- business community. Theyare facedwithindividualswhosleepon Oftentimes, itismore challengingtodeveloppartnerships withthe gram togreat effect. WallsDoctors Without medicalprogram workscloselywiththispro- approach ratherthanonlyonincarceration andrecidivism.” The goals ofasystemthatis“...focusedonrehabilitative andrecovery Theyare realizingPolice modelinSantaBarbara,California. their homeless related problems. OnesuchexampleistheRestorative developing wellcoordinated partnershipsthatwork togetheron part ofthepolicetrainingprocess. Atahigherlevel,many citiesare credibility toourcommitment.Itisparticularlyuseful tobecome assistance. Havinga24hourhotlineispracticalservicethatadds reliable resource isavailable,mostpoliceofficers are gratefulforthe good intentionsoftheofficers inthefield.Oncetheyrealize thata logue withthepolice,onemustfirstacknowledgeexpertiseand ficult tochangethatculture withoutproviding newoptions.- entrenched, theybecomepartoftheculture ofthegroup. Itisdif- develop defensivepostures. As“protective” mechanismsbecome actions. Inthatvacuum,unfortunately, weare allsusceptibleto is avacuuminhowtodealwiththefrustrationsofhomelessinter- veryspecific,constructiveleadership,there like thepolice.Without many similaritiesbetweengroups ofhealthcare workersandgroups encounter are thepolice.Irecognized veryearlythatthere are may beinconflictwiththehomeless?Thefirstgroup manyofus homeless isjustthebeginning.Howaboutgroups whoseinterests Making agreeable relationships withagenciesthatworkthe my homelessclients. Downtown Alliancetocleanthesidewalks)yellingatoneof nessed a“StreetAmbassador”(apersonhiredbythe I hadadifficultywiththeDowntownAlliancewhen,wit-

US A 19 HOMELESS in Europe summer 2007 20 HOMELESS in Europe summer 2007 in SanJuan,PuertoRico: MD, whowasinitiallyimprisonedforhisworkwithneedleexchange other communitygroups. Inthewords ofDr. JoseVargas-Vidot, grams eventuallydevelopveryspecificstrategiesforworkingwith smooth thingsout.Butittakesanongoingeffort. Experiencedpro- ship withthebusinesscommunity, Donnaeventuallywasableto By engagingpartnersinthecommunitywhoalready hadarelation- and theysupportedherposition.Then, client despitefreezing temperatures. Donnaengagedthepolice The Street Ambassadorwastryingtotaketheblanketsfrom the with usbecausethecommunitywillprotectus. repressive forcewillbemorecarefulinthewaytheyintervene are “oneoftheplayers”andnotanoutsider. Policeorany ourconsistency,job. With thecommunityrecognizedthatwe in conductmodificationthatwillaffectapositivewaytheir willresult any otheragencywillbeawarethatourintervention formalscheduleofvisits.Thepoliceor then weestablishavery to theplace(events,criticalsituations,birthdaysandsoon), thatisimportant toknoweverything local people.We alsotry tobuildaninformalnetworkwith general andwealwaystry ty leaders,communitystakeholders,localpolice,commercein tobuildarelationshipwithcommuni- section inwhichwetry media tojustifyourpresenceinthestreets,wedoamapping this oppositionindifferentways.Ingeneralterms,weusethe and fromsomekindofreligiousgroups.We havedealtwith encountered someoppositionspecificallyfromthepoliceforce positive,occasionallywehave out kids.Theexperienceisvery ing homeless,drugusers,commercialsexworkersanddrop Our organizationhas15yearsofoutreachexperiencetarget- them touseprivatepropertyholdtheiritems. clients clutteringthestreetswithblanketsandencouraging the CareAllianceagainstmeforsupportinghomeless The nextweektheDowntownAlliancefiledacomplaintwith compelled todoso. respect. From ourstrategicpositionbetweentwoworlds,weare new visionofcommunityinwhichallmembersare treated with best tounifyandhumanizeourcommunities.We needtocreate a directly withthoseonthestreets haveamoralobligationtodoour their fatecouldbeours.Thoseofuswhoare privileged towork society.ed asthe“lepers”ofmodern We donotliketorealize that resentment are likelytogrow. Homelesspersonsare oftenexclud- “outside” ourreality. Inthegapbetweenusandthem,fear ly becausewecannotreadily identifywiththosewho are living tions thatsocietyadoptsare notalwaysconstructive. Thisislarge- shortened. Thoughthefeelingstheygenerateare strong, thereac- them. Thelivestheyare livingare desperate,lonelyandgreatly fail toarouse emotions,wewillhavecompletely dehumanized should homeless whosleeponourstreets are, bynature, provocative. They We cannotwaituntilthatdaytoaddress theirhealthneeds.Those resources to“getthemoff thestreet”, there willbestreet homeless. Ultimately, wemustalllivetogether. Anduntilthere are enough local circumstances isanartform. to bringthecommunitytogether. Finetuningtheapproach tofit Thus, programs likeOutsideInhaveusedtheirleadershipposition Portland Oregon: In thewords ofWayne Centrone, MDoftheOutsideInprogram in tions. striving toteachthemofthebenefitscreatingcareconnec- ness leadersaboutthecomplexityofhomelessness.We are create morebusiness.We arereachingout toeducatebusi- a comprehensiveadvocacyenvironment–isreally“tool”to – aprogramthatworkstogetpeopleoffthestreetsandinto We areworkingtoshowthemthatastrongoutreachprogram that weareworkingtoensuretheymoreprofitable. Our maingoalinbuildingthesebridgesistoletthemknow tobuildbridges. trying nesses towardshomelesspopulations-andweareconstantly level ofdiscontent,however, amongstthedowntownbusi- In fact,theywilloftenreferpatientstous.Thereisagrowing We (inPortland)haveareallygoodrelationshipwiththepolice. provoke usbecausetheyare people,justlikeus.Whenthey •