Mean Streets: a Report on the Criminalisation of Homelessness In
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COORDINATED BY Guillem Fernàndez Evangelista EDITED BY Samara Jones A REPORT ON THE CRIMINALISATION OF HOMELESSNESS IN EUROPE Criminalising and penalising homeless people for carrying out life-sustaining activities in public because there is no where to go is a problem across the EU. Policies and measures, be they at local, regional or national level, that impose criminal or administrative penalties on homeless people is TION A OPE counterproductive public policy and often violates human rights. LIS A R U E IMIN R Housing Rights Watch and FEANTSA have published this report to T ON THE C R OMELESSNESS IN draw attention to this issue. This report brings together articles H A REPO OF from academics, activists, lawyers and NGOs on the topic of human rights and penalisation. Divided into three main sections, the report provides an important theoretical and historical background, before highlighting examples of penalisation across A REPORT ON THE CRIMINALISATION the EU, and finally suggesting measures and examples on how OF HOMELESSNESS IN EUROPE to redress this dangerous trend. Cover design : Genaro Studio [Lyon - France] European Federation of National Associations Working with the Homeless AISBL Fédération Européenne d’Associations Nationales Travaillant avec les Sans-Abris AISBL 194 Chaussée de Louvain - 1210 Brussels - Belgium Tél. +32 2 538 66 69 - Fax +32 2 539 41 79 - [email protected] - www.feantsa.org ISBN: 978-2-8052-0218-6 FEANTSA is supported financially by the European Commission. The views expressed herein are those of the authors and the Commission is not responsible for any use that may be made of the information contained herein. List of Experts and Correspondents Guillem Fernàndez evanGelista Associació ProHabitatge, Government and Public Policy Institute (IGOP), Autonomous University of Barcelona samara Jones Coordinator, Housing Rights Watch, Policy Officer, FEANTSA, Brussels Quim arruFat ibañez BA in Political Science and Public Administration at Autonomous University of Barcelona Łukasz browarczyk Research and Publications Coordinator in Pomorskie Forum na rzecz Wychodzenia z Bezdomności Jaime burton Doughty Street Chambers carme Fortea busQuets Head of the Department of Attention to Vulnerable Persons. Quality of Life, Sports and Equality Area. Barcelona City Council Padraic kenna Faculty of Law, National University of Ireland, Galway antonio madrid Pérez Coordinator of the ‘dret al Dret’ project, Faculty of Law University of Barcelona lucie martin Sociologist, Research Coordinator at Diogènes balint misetics The City is for All and Lecturer, College for Advanced Studies in Social Theory (Budapest) eoin o’sullivan School of Social Work and Social Policy, Trinity College Dublin cory Potts Criminologist, MA candidate, Université Libre de Bruxelles iñaki rivera beiGas Observatory of the Penal System and Human Rights, Faculty of Law, University of Barcelona louis schetzer Policy Officer, Homeless Persons’ Legal Service, Sydney, Australia marc uhry Fondation Abbé Pierre Rhone-Alpes, Lyon Table of Contents Foreword Nils Muižnieks, Council of Europe Commis- sioner for Human Rights ...................................................................... 9 Foreword Raquel Rolnik, United Nations Special Rapporteur on adequate housing, and Maria Magdalena Sepúlveda Carmona, United Nations Special Rapporteur on extreme poverty and human rights ...................................................................... 11 Executive summary ...................................................................... 15 Part i: THEORETICAL Framework Chapter 1: Applying Human Rights Based Approach to Homelessness, Dr Padraic Kenna and Guillem Fernàndez Evangelista ...................................................................... 31 Chapter 2: Penalization of Homelessness, Guillem Fernàndez Evangelista OF CON TABLE ...................................................................... 53 Part ii: What does PenalisinG T homelessness look like? EN T S Chapter 3: Penal visions of homelessness and responsibili- � zation in Belgium – Cory Potts and Lucie Martin ...................................................................... 75 5 Chapter 4: Criminalisation of homelessness in Poland - Łukasz Browarczyk ...................................................................... 91 Chapter 5: Criminalisation of homelessness in Hungary - Balint Misetics ...................................................................... 101 Chapter 6: Penalisation of Homelessness and access to housing - Marc Uhry, Jamie Burton, Dr Padraic Kenna, Samara Jones, Guillem Fernàndez Evangelista ...................................................................... 11 3 Chapter 7: Penalisation of Homelessness and prison, Eoin O’Sullivan and Guillem Fernàndez Evangelista ...................................................................... 133 Part iii: Good Practices Political measures Chapter 8: Prevention, Homelessness Strategies and Housing Rights in Europe, Guillem Fernàndez Evangelista ...................................................................... 159 Chapter 9: Homeless people at the Barcelona Airport. A model of Inter-administration coordination – Carme Fortea Busquets ...................................................................... 171 LeGal initiatives Chapter 10: Addressing legal needs of homeless people in Sydney, Australia - The Homeless Persons’ Legal Service - Louis Schetzer ...................................................................... 181 Chapter 11: The role of the University in promoting access to legal rights for people living in social exclusion- Antonio Madrid Perez S T ...................................................................... 191 EN T Chapter 12: Ombudsmen and NGO’s: Defending the rights of homeless people - Quim Arrufat and Guillem Fernàndez Evangelista ...................................................................... 203 TABLE OF CON TABLE Chapter 13: The City is For All from the Human Rights � Based Approach - Balint Misetics 6 ...................................................................... 213 Chapter 14: NGO’s, legal services and strategic litigation. Fighting against homelessness from a Human Rights Based Approach, Antonio Madrid Perez and Guillem Fernandez Evangelista ...................................................................... 221 EpiloGue Iñaki Rivera Beiras ...................................................................... 235 TABLE OF CON TABLE T EN T S � 7 Preface to FEANTSA Report: Penalisation of Homelessness and Human Rights in Europe A growing number, of people across Europe are experiencing a great need for housing. Many have nowhere to live and sleep, in doorways, squats, abandoned buildings, parks and other places unfit for human habitation. Among those facing major difficulties are Roma, victims of domestic violence, street children, people with disabilities, refugees, migrants, internally displaced persons, tenants without security and people in the lowest segments of the labour market. The penalisation of homelessness reflects deep-rooted prejudices about homeless people and ignorance of the daily deprivation and discrimination they suffer. Being homeless is not an individual choice, but a situation resulting from a variety of disadvantages. Living and sleeping rough in public spaces constitutes a huge risk to one’s health, social well-being and security. Everyone, including homeless people, would prefer adequate and safe housing if it were available and affordable. Laws, regulations and administrative measures penalising homelessness are being introduced during an economic crisis that has resulted in record levels of unemployment and poverty, driving entire families to live on the streets. Such measures are often motivated by the desire to reduce the visibility of homelessness and poverty and hide them as social issues. The criminalisation of begging and migration are part of the same trend. A conscious policy of exclusion is applied to mask the unwillingness of the state to assume its responsibilities for upholding the human rights of all of its residents. The state has an internationally recognised obligation to ensure everyone’s rights to adequate housing and an adequate standard of living. Everyone has the right to live somewhere in security, peace and dignity. The right to adequate housing is also an inseparable condition for the enjoyment of many other human rights. Social, PREFACE economic and cultural rights, such as the rights to water, food, health, education and work, cannot be fully exercised without a home. The same can also be said about many civil and political rights such as the rights to privacy and family life. � 9 Instead of criminalising homeless persons, governments should work towards the elimination of the conditions that cause and perpetuate poverty and social exclusion. In addition to punishing and stigmatising people without a home, the penalisation of homelessness creates new obstacles to serious efforts to alleviate poverty and deprivation. Repressive laws that specifically target homeless people amount to discrimination on the basis of economic and social status. Rather than raising a fist, the authorities should extend a hand to encourage homeless people to claim the rights they are entitled to. Nils Muižnieks Council of Europe Commissioner for Human Rights PREFACE � 10 Foreword This excellent publication from FEANTSA is extremely timely. As United Nations Special Rapporteurs on extreme poverty and human rights, and