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Evaluierung Wiener Wohnungslosenhilfe L&R SOZIALFORSCHUNG A-1060 Wien, Liniengasse 2A/1 Evaluierung Wiener Wohnungslosenhilfe Endbericht Auftraggeber: Dachverband Wiener Sozialeinrichtungen AutorInnen: Andreas Riesenfelder, Susanne Schelepa, Petra Wetzel Wien, September 2012 Inhalt 1 Vorwort 5 2 Einleitung 9 3 Das System der Wiener Wohnungslosenhilfe im Überblick 11 3.1 Ambulante Angebote 14 3.2 Nachtquartiere 15 3.3 Übergangswohnen 17 3.4 Zielgruppenwohnen 18 3.5 Mutter-Kind-Einrichtungen und Familienangebote 19 3.6 Betreutes Wohnen in Wohnungen 20 3.7 Sozial betreutes Wohnen 22 4 Der Bestand an KlientInnen in den Jahren 2006-2010 24 5 KlientInnenprofile der einzelnen Angebotsformen 27 5.1 Profile auf Basis der aktuellen Belastungen 28 5.2 Profile auf Basis biographischer Prägungen 29 5.3 Profile auf Basis von Risikolagen 30 5.4 Überblick Profile der Angebotsformen 33 6 Zum Leben vor der Wohnungslosigkeit – biographische Prägungen und die Wohnsituation vor Zugang zur WWH 39 6.1 Elemente der vorangegangenen Biografie 39 6.2 Zur Wohnsituation vor dem Erstkontakt mit der WWH 42 7 Nutzung von Angeboten der WWH 49 7.1 Erstkontakt und bisherige Verbleibsdauer im System der WWH 49 7.2 Nutzungsspektrum 55 7.3 Das Angebot der WWH in der Wahrnehmung der KlientInnen 61 7.3.1 Was ist den KlientInnen wichtig? 62 7.3.2 Subjektive Bewertung der Angebotselemente 65 7.3.3 Beratungsangebote 69 7.3.4 Angemessenheit der Angebotsform für die individuelle Lebenssituation 70 7.3.5 Wohnbiographische Bedeutung 75 8 Wirkungseffekte der Angebote der WWH 82 8.1 Arbeit und Erwerbstätigkeit – Zur Tätigkeitssituation der KlientInnen 83 8.1.1 Tätigkeitssituation zum Interviewzeitpunkt 83 8.1.2 Verbesserung der Tätigkeitssituation seit Kontakt mit WWH und möglicher Beitrag der WWH 85 8.2 Zur finanziellen Situation der KlientInnen 91 8.2.1 Schulden 93 8.2.2 Verbesserung der finanziellen Situation seit Kontakt mit WWH und möglicher Beitrag der WWH 94 1 8.3 Analysen zur Lebenssicherung auf Basis von Längsschnittdaten (Austritte 2009 und 2010) 98 8.4 Soziales Umfeld – Zur sozialen Teilhabe der KlientInnen 104 8.4.1 Aktuelle soziale Situation 104 8.4.2 Konflikte 109 8.4.3 Verbesserung der Situation mit sozialem Umfeld seit Kontakt mit WWH und möglicher Beitrag der WWH 110 8.5 Zur gesundheitlichen Situation der KlientInnen 116 8.5.1 Aktuelle Situation 116 8.5.2 Inanspruchnahme von Gesundheitsleistungen, Verbesserung seit Kontakt mit WWH und möglicher Beitrag der WWH 118 8.5.3 Körperliche Probleme 120 8.5.4 Psychische Probleme 123 8.5.5 Alkohol-/Drogenkonsum 125 8.5.6 Nicht-substanzgebundenes Suchtverhalten 127 8.5.7 Zusatzmodul der Befragung: Epidemiologisches Profil der KlientInnen 128 8.6 Andere belastende Lebensbereiche 136 8.6.1 Verbesserung seit Kontakt mit WWH und möglicher Beitrag der WWH 137 8.7 Zur Lebenssituation insgesamt - Belastungsdimension 139 8.8 Resümee zu Verbesserungen in den verschiedenen Lebensbereichen 141 8.9 Verbleib nach Austritt aus dem Angebot für die Abgangskohorten 2009 und 2010147 8.10 Wirkungseffekte Zwischenfazit 164 9 Interne Schnittstellen im System der Wiener Wohnungslosenhilfe 169 9.1 Thema „Unklarheiten und Ermessenspielräume im Zusammenhang mit Zugangskriterien“ 170 9.2 Übergangsmanagement / Fallbezogener Austausch zwischen den Angeboten 171 9.3 Brüche bei Übergang zur Finalwohnung 175 10 Externe Schnittstellen 176 10.1 Schnittstelle MA40 177 10.2 Schnittstelle psychiatrische Versorgung 178 10.3 Schnittstelle Jugendwohlfahrt / MA11 181 11 Regeln, Grenzen und Grenzverletzungen 182 12 „Leistbares Wohnen“ / Soziale Wohnungsvergabe 184 13 Strategien der sozialen Arbeit und Betreuung 185 14 Diskussion zu einzelnen Zielgruppensegmenten 190 14.1 Junge Erwachsene 190 14.2 Frauen 192 15 Housing First – eine Alternative zum Wiener Stufenplan? 194 15.1 Housing First aus der Perspektive der KlientInnen 198 16 Begriffsreflexion 200 2 16.1 wohnungslos / obdachlos 202 16.2 Wohnkompetenz 203 16.3 Betreuungsbedarf 207 16.4 Eigenkompetenz 210 16.5 Partizipation 212 16.6 Nachhaltigkeit 214 16.7 Soziale Integration 216 17 Resümee und Handlungsoptionen 219 18 Literatur 226 19 Abbildungsverzeichnis 229 20 Übersichtsverzeichnis 231 21 Tabellenverzeichnis 232 22 Glossar 246 22.1 Begriffsdefinitionen zu gesichertem Wohnen, Obdachlosigkeit, Wohnungslosigkeit und prekärer Wohnversorgung 246 22.2 Migrationshintergrund 247 23 Methodische Anmerkungen 249 23.1 Anmerkungen zur Aufbereitung der Längsschnittdaten 249 23.2 Zusammenfassende Bewertung der Datengrundlage für die Längsschnittdatenanalysen 252 23.3 Exkurs zur Qualität der Kodierung der Wohnform nach Austritt aus den Angeboten 254 23.4 Erläuterungen zu den Interviews mit der Zielgruppe 255 23.5 Erläuterungen zur Methodik der ‚Begriffsreflexion‘ 260 24 Tabellenanhang Zielgruppeninterviews 263 24.1 Sample 263 24.2 Leben davor 265 24.2.1 Biographische Prägungen 265 24.2.2 Risikolagen 266 24.2.3 Wohnsituation vor Erstkontakt 270 24.3 Nutzung des Angebotsspektrums der WWH 274 24.3.1 Erstkontakt 274 24.3.2 Nutzungsspektrum 278 24.3.3 Housing First als Alternative 285 24.4 Einschätzungen aktuelle Angebotsform 288 24.4.1 Charakterisierung der Angebotsformen 288 24.4.2 Passgenauigkeit 308 24.4.3 Rolle der derzeitigen Situation im Kontext der Wohnbiographie 311 24.5 Tätigkeitssituation 318 24.6 Finanzielle Situation 322 3 24.7 Soziales Umfeld – Soziale Teilhabe der KlientInnen 329 24.8 Gesundheit 337 24.9 Körperlich 340 24.10 Psychisch 342 24.11 Alkohol und Drogen 343 24.12 Sonstiges 345 24.13 Belastungen Rang 346 25 Tabellenanhang Gesundheitszusatz zu den Zielgruppeninterviews 351 26 Tabellenanhang Begriffsreflexion 369 27 Tabellenanhang Längsschnittdaten 370 27.1 Bestand an KlientInnen 370 27.2 Qualität der Zuordnungen von Förderfällen zu Personen 381 27.3 Qualität der Codierung des Indikators „Wohnform nach dem Abgang“ 383 27.4 Betreuungsschlüssel 384 27.5 Abgänge nach Angebotsform und Sozialvariablen 387 27.6 Verweildauer der Abgänge nach Angebotsform und Sozialkategorien 393 27.7 Wohnform nach dem Abgang nach Angebotsform und Sozialkategorien 395 27.8 Abgangsart nach Angebotsform und Sozialkategorien 398 27.9 Verläufe Bezug SH/BMS, Erwerb, Transfer ALG/NH, Pensionsbezug, Lebenssicherung 400 27.10 Detailtabellen BEWO 417 27.11 Detailtabellen SOBEWO 422 27.12 Detailtabellen ÜWO 427 27.13 Detailtabellen ÜWOMUKI 432 27.14 Detailtabellen ÜWOZG 436 4 1 Vorwort Sehr geehrte Damen und Herren! Dass Wohnen ein Menschenrecht ist, hat die Stadt Wien frühestmöglich erkannt. Unter der Führung des Roten Wien ist es hier wie in keiner anderen Millionenstadt gelungen, Wohnen leistbar zu machen. 1923 beschloss der Wiener Gemeinderat, innerhalb von fünf Jahren 25.000 Gemeindewohnungen zu bauen. Geachtet wurde damals insbesondere auf eine geringe Bebauungsdichte und großzügige Gemeinschaftseinrichtungen - Waschküchen, Bäder, Kindergärten, Gesundheitseinrichtungen, Büchereien und Vieles mehr. Als der Karl-Marx-Hof fertig gestellt wurde, sprach Bürgermeister Karl Seitz die wahren Worte: "Wenn wir einst nicht mehr sind, werden diese Steine für uns sprechen." Die Steine des Karl-Marx-Hofes haben für die Erbauer gesprochen, ebenso wie jene Ge- meindebauten und geförderten Wohnbauten, die in der Folge entstanden sind, heute noch für den politischen Anspruch dahinter sprechen. Aktuell gibt es in Wien 220.000 Gemein- dewohnungen. Mit dieser Zahl gelingt es nach wie vor, einen klaren Einfluss auf den Wohnungsmarkt zu erhalten und damit Wohnen in Wien für sozial Schwächere zugänglich zu machen. Wer dennoch wohnungslos wird, weshalb auch immer, muss nicht auf der Straße schla- fen. Wien ist in Sachen Wohnungslosenhilfe weltweit für viele Städte ein Vorbild. Die Wie- ner Wohnungslosenhilfe bietet ein flächendeckendes und mehrstufiges Angebot, um wohnungslosen Menschen rasch wieder ein eigenständiges Leben zu ermöglichen. Über 43 Millionen Euro investiert die Stadt Wien jährlich in die Wiener Wohnungslosenhilfe. So vielfältig die Gründe für Wohnungslosigkeit sind, so vielfältig sind auch die Unterstüt- zungsmöglichkeiten: von Tageszentren und medizinischer Versorgung über Nachtquartie- re bis hin zum Wohnen mit zielgruppenspezifischer Betreuung. Das Angebot an betreuten Wohnplätzen wird stetig erweitert. Insgesamt stehen in Wien nun über 1.000 Dauerwohnplätze, rund 3.000 Übergangswohnplätze und über 400 Nacht- quartiersplätze zur Verfügung. Ein besonderer Schwerpunkt lag in den letzten Jahren auf dem Ausbau der sozial betreuten Dauerwohnplätze. Mit der nun vorliegenden Evaluation werden die Maßnahmen der Wiener Wohnungslosenhilfe über weite Strecken als erfolg- reicher Wiener Weg bestätigt. Der Bericht wird als Grundlage für die weitere Bedarfspla- nung und Weiterentwicklung eingesetzt werden. Maga Sonja Wehsely Stadträtin für Gesundheit und Soziales 5 Sehr geehrte Damen und Herren! die Mitgliedschaft der Organisationen der Wiener Wohnungslosenhilfe im Dachverband Wiener Sozialeinrichtungen eröffnete für diesen viele neue und herausfordernde Themen- felder in der inhaltlichen Auseinandersetzung. Diese kann durch die vorliegende Studie weiter vertieft werden und soll die Weiterentwicklung der Angebote unterstützen. Wohnungslosigkeit hat viele Gesichter, und die Risikolagen und Ursachen dafür sind viel- fältig. Daher bedarf es eines differenzierten Unterstützungsangebots für die heterogene Gruppe der obdach- und wohnungslosen Menschen. Die Stadt Wien hat in vergangenen Jahrzehnten auf diese vielfältigen Problemlagen reagiert und ein breit gefächertes Ange- bot entwickelt. Die bisher erreichten Erfolge basieren auf guter Kooperation, Innovationsbereitschaft und Engagement
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