OCTOBER 2017 VOLUME 30 – ISSUE 8 ISSN 1032-6170

Responding to Homelessness in Aotearoa New Zealand Contents

Council to Homeless Persons Editorial — Ten Years On | 3 Auckland Council’s Role | 32 Jenny Smith Chief Executive Officer Jenny Smith, Chief Executive Officer, in Addressing Homelessness Kate Colvin Manager — Policy and Council to Homeless Persons The Community Empowerment Unit and Communications Glossary | 4 Community and Social Policy Teams, Ian Gough Manager — This glossary has been prepared using the online Auckland Council Consumer Programs version of Te Aka Māori–English, English–Māori | 34 Dictionary and Index. This glossary is not definitive, Housing First Auckland City Centre Lynette Deakes Office Manager and refers to this publication only. Programme: Responsiveness to Māori Noel Murray Parity Editor | Sophia Beaton (Kāi Tahu, Kāti Mamoe) Kia hiwa rā, Kia rite 5 and Sarah Greenaway Lanie Harris Communications Jade Kake, Poutohu Mātua, Coordinator Te Matapihi, National Māori Housing Advocate Housing First: | 37 Belinda Lack Digital Communications Introduction | 6 People Working with People Officer Brook Turner, Head of Community Services Angela Kyriakopoulos HAS Coordinator Chapter 1: Development, VisionWest Community Trust Cassandra Bawden Peer Education and Understanding Homelessness The Role of Local Government | 39 Support Program Team in Aotearoa New Zealand in a Homeless Response Leader The People’s Project: | Trish Westmore Capacity Building Understanding Homelessness 8 A Collaborative Community Response in Rural Aotearoa Coordinator to Rough Sleepers in Hamilton Damien Patterson Policy and Tao Faneva, Chief Executive Officer, Te Rūnanga O Whaingaroa Carole McMinn, The Peoples Project, Advocacy Officer part of the Wise Group Homeless Wāhine Māori | 10 Natasha Trajanovska Accountant Responding to Homelessness | 41 Address 2 Stanley Street and Survival Sex: An Emerging Link? Jade Kake, Te Matapihi, in New Zealand: Homelessness Collingwood National Māori Housing Advocate and Housing First for Māori: Melbourne VIC 3066 | Meaning and Optimisation Phone (03) 8415 6200 We Need a Strategy 11 Brennan Rigby, Principal Advisor, Social Outcomes, Fax (03) 9419 7445 to Address Homelessness David Zussman and Angie Cairncross Independent Māori Statutory Board E-mail [email protected] of Community Housing Aotearoa (CHA) Chapter 3: Website www.chp.org.au Kāinga tahi, kāinga rua:| 13 Promotion of Conferences, A kaupapa Māori Response Perspectives on Housing Events and Publications of Te Puea Memorial Marae Is it a Housing Crisis or | 44 Organisations are invited to have their Jenny Bol Jun Lee-Morgan, Waikato-Tainui, Just Housing Pressure? Ngāti Mahuta and Rau Hoskins, Ngāti Hau, promotional fliers included in the Bernie Smith, Monte Cecilia Housing Trust Ngāpuhi monthly mailout of Parity. Rates: $90 National | distribution, $70 Statewide distribution only. Enumerating Homelessness | 15 Tūrangawaewae: 46 Whānau Wellbeing for All Write for Parity! in Rural Māori Communities Jade Kake, Te Matapihi, Dr Lily George, Paul Gilberd, Anthea Napier, Contributions to are welcome. Parity National Māori Housing Advocate Reverend Dr Paul Reynolds, Reverend Jolyon Each issue of Parity has a central focus or White, Anglican Church in Aotearoa, New Zealand theme. However, prospective contributors Te Hā Tangata: | 17 and Polynesia A Human Library on Homelessness should not feel restricted by this as Parity seeks Housing Northland’s Homeless: | 49 to discuss the whole range of issues connected Elspeth Tilley, Associate Professor with homelessness and the provision of and Wellington Campus Coordinator, From Crisis to Confidence School of English and Media Studies, Adrian Whale, Executive Officer, housing and services to people who are Massey University Tai Tokerau Emergency Housing Charitable Trust homeless. Where necessary, contributions will | be edited. Where possible this will be done in Towards the Design 20 Chapter 4: consultation with the contributor. of Culturally-Based Supportive Housing Facilities Health and Homelessness Parity on the CHP Website Jade Kake, Te Matapihi, | www.chp.org.au/services/parity-magazine/ National Māori Housing Advocate Easy Access Housing: 50 Contributions can be sent by email to Transitional and Emergency Housing Single Women’s Homelessness | 22 [email protected] in a Microsoft Word or for Homeless tāngata whaiora in Aotearoa/New Zealand rtf format. If this option is not possible, Angie Cairncross, Communications Coordinator, Angie Cairncross, Communications Coordinator, Community Housing Aotearoa contributions can be faxed on (03) 9419 7445 Community Housing Aotearoa and Paula Lloyd, or mailed to CHP. Manager, Wellington Homeless Women’s Trust and Zap Haenga, Te WaiOra Tira Coordinator, Easy Access Housing Proposed 2017 Parity Publications Schedule Chapter 2: Housing First | NB: Please note that this may be subject to change. Elderly at 43: 52 Please check out the CHP website: www.chp.org.au Housing First Auckland: | 25 On Health and Homelessness for updates. A Collective Impact Approach to Jacqueline Humm, Strategic Communications November: Responding to Homelessness Ending Chronic Homelessness Lead and Communications Lead for Housing First Auckland in Queensland in New Zealand’s Largest City December: Victorian Homelessness Housing First Auckland Backbone Team Measuring Iterative Homelessness | 54 Conference edition Responding to Homelessness | 28 in Mental Health in Cover in Aotearoa New Zealand Aotearoa New Zealand Everyone has a story — Through Home-grown Best Practice Sho Isogai and Dr Nicky Stanley-Clarke Ngake and Whataitai Mural (detail). Stephanie McIntyre, Director, DCM1 Wellington Opinion Mural Artist: Daniel Mills. Photo: Jane Monaghan. One Housing First to Rule Them All? | 30 The views and opinions expressed in Parity Clare Aspinall, Jenny Ombler, Dr Nevil Pierse, Patrick Gemmell | 58 are not necessarily those of CHP. Professor Philippa Howden Chapman General Manager, Te Matapihi 2 Editorial — Ten Years On Jenny Smith, Chief Executive Officer, Council to Homeless Persons

This understanding is something that This Parity edition makes it clear that Australians are yet to grasp as fully in our capacity to deliver best practice relation to Aboriginal Australia. housing support is underpinned by a The September 2016 edition of Parity, supply of housing affordable to those Responding to Indigenous on the lowest incomes. Unfortunately, Homelessness in Australia and a supply of low cost housing does not Aotearoa New Zealand explored these appear to be forthcoming in Aotearoa issues and underlined that rates of New Zealand, just as it is not in homelessness experienced by Australia. However, the solutions to Aboriginal and Māori people are vastly homelessness are within our grasp. disproportionate to their share of the Both our countries are crying out for overall population in both countries. a plan, a strategy and the investment that is required to address the This edition belongs to Aotearoa housing crisis and to end New Zealand. It brings together the homelessness. specialist community focussed on homelessness. It celebrates and Acknowledgements showcases the expertise within the This edition of Parity was made country. It documents the progress possible thanks to the support and It is ten years, since the the 2007 and successes and clarifies the assistance provided by a number of Responding to Homelessness in New challenges that remain. organisations and bodies in Aotearoa Zealand edition of Parity. In the time New Zealand. since, both Australia and New Zealand This edition clarifies the way in which have seen homelessness increase in homelessness is articulated and First among these is Robert MacBeth the context of a growing and ongoing counted. Whether it is through the from the Māori Housing Network, affordable housing crisis. Both have census, the Social Housing Register, or Te Puni Kōkiri, National Office. neglected social housing and made it our service activity; whichever way you Without his support, this edition harder for people to live with dignity slice it, the numbers are only going up! would not have been possible. on statutory incomes. We have largely Likewise, the support and assistance shared the dominant public policy Many articles demonstrate a cutting- of the Te Matapihi he Tirohanga mo te settings, seeing governments in both edge understanding of international Iwi Trust has been central to the countries continue to withdraw from best practice housing and support edition’s development and providing social housing while models, as well as showcasing preparation. enacting welfare policies demonising adaptations appropriate to local individuals rather than addressing the circumstances. The Housing First Also vital is the sponsorship support structural drivers of poverty. philosophy is clearly the preferred provided by Auckland City Council, policy response to homelessness in Housing First Auckland and the This current edition of Parity is Aotearoa New Zealand, as it is in Salvation Army New Zealand. underpinned by the understanding Australia. that homelessness and the response to Finally, our thanks and appreciation it in Aotearoa New Zealand can only be Encouragingly, these accounts are go to the work of the edition’s guest fully understood in its Indigenous permeated by the voice of the lived editors: Jade Kake Programme context. That homelessness and its experience of homelessness. Manager at the Te Matapihi he responses can only be fully Contributors spell out the importance Tirohanga mo te Iwi Trust, appreciated through a recognition of of social inclusion and economic Angie Cairncross , Communications the importance of the lived reality of participation, and the related costs of Coordinator, Community Housing the concepts Whānau (extended family, failure to both health and mental Aotearoa and Kate Amore, or family group), Whanaungatanga health. We are well placed to Research Fellow with He Kainga (relationship, kinship, sense of family benchmark and compare ‘across the Oranga/Housing and Health connection) and Iwi (extended kinship ditch’, as these approaches develop Research Programme at the group, tribe, nation). over time in both our countries. University of Otago. 3 Glossary This glossary has been prepared using the online version of Te Aka Māori–English, English–Māori Dictionary and Index. This glossary is not definitive, and refers to this publication only.

Aroha (noun) affection, sympathy, charity, whānau (family). Can refer to the open Rūnanga (noun) tribal council, the tribal compassion, love, empathy. area in front of the wharenui, where formal administrative unit. greetings and discussions take place, or Hapū (noun) kinship group, clan, tribe, (noun) children — normally used the whole complex. Tamariki subtribe — section of a large kinship group only in the plural. and the primary political unit in traditional Mataawaka (noun) Māori living within a Māori society. It consisted of a number of rohe who are not in a mana whenua Tāngata whaiora (noun) Māori mental whanaū sharing descent from a common group. health service users. ancestor, usually being named after the Mātauranga (noun) knowledge, wisdom, Taonga (noun) treasure, anything prized — ancestor, but sometimes from an understanding, skill. applied to anything considered to be of important event in the group’s history. value including socially or culturally Mauri (noun) life principle, life force, vital Hauora (noun) health, vigour. valuable objects, resources, phenomenon, essence, special nature, a material symbol ideas and techniques. Hui (noun) gathering, meeting, assembly, of a life principle, source of emotions — the seminar, conference. essential quality and vitality of a being or Taumai (noun) used to describe rough sleepers or people experiencing chronic Iwi (noun) extended kinship group, tribe, entity. Also used for a physical object, nation — often refers to a large group of individual, ecosystem or social group in homelessness; people descended from a common which this essence is located. tau (verb) to settle down, subside, abate ancestor and associated with a distinct Mihi whakatau (noun) speech of Tautoko (verb) (-hia, -na, -tia) to support, territory. greeting, official welcome speech — prop up, verify, advocate, accept (an Kai (noun) food, meal. speech acknowledging those present at a invitation), agree. gathering. For some tribes a pōhiri, or (noun) The Māori world Karakia (verb) (-tia) to recite ritual chants, pōwhiri, is used for the ritual of encounter Te Ao Māori say grace, pray, recite a prayer, chant. on a marae only. In other situations where Te Aotūroa (noun) light of day, world, Kaumātua (noun) adult, elder, elderly formal speeches in Māori are made that Earth, nature, this world. are not on a marae or in the wharenui man, elderly woman, old man - a person of Te Reo Māori (noun) The Māori language. status within the whānau. (meeting house) the term mihi whakatau is used for a speech, or speeches, of Te Tiriti o Waitangi (noun) the original Kaupapa (noun) topic, policy, matter for welcome in Māori. Māori language version of an agreement discussion, plan, purpose, scheme, made between Māori and the British proposal, agenda, subject, programme, Ngā uri whakatipu (noun) future Crown in 1840. theme, issue, initiative. generations. (verb) to be correct, true, upright, Kawa (noun) marae protocol — customs of Nohoanga (noun) dwelling place, abode, Tika the marae and wharenui, particularly those encampment. right, just, fair, accurate, appropriate, lawful, proper, valid; related to formal activities such as pōhiri, Ora (verb) to be alive, well, safe, cured, speeches and mihimihi. (noun) truth, correctness, directness, recovered, healthy, fit, healed; justice, fairness, righteousness, right. Mana Māori motuhake (noun) separate (noun) life, health, vitality. identity, autonomy, self-government, self- Tikanga (noun) correct procedure, Pani me te rawakore (phrase) The poor custom, habit, lore, method, manner, rule, determination, independence, and dispossessed, sometimes used to way, code, meaning, plan, practice, sovereignty, authority — mana through self- describe those experiencing convention, protocol — the customary determination and control over one’s own homelessness. destiny. system of values and practices that have pani (noun) bereaved person, orphan developed over time and are deeply Mana Whenua (noun) territorial rights, rawakore (noun) poor, destitute, power from the land, authority over land underprivileged. embedded in the social context. or territory, jurisdiction over land or Papatūānuku (personal name) Earth, Tino rangatiratanga (noun) self- territory — power associated with Earth mother and wife of Rangi-nui — all determination, sovereignty, autonomy, possession and occupation of tribal land. living things originate from them. self-government, domination, rule, control, Also refers to the tribal group possessing power. these rights. Pono (adjective) be true, valid, honest, genuine, sincere; Tūrangawaewae (noun) domicile, Manaaki (verb) (-tia) to support, take care (noun) truth, non-fiction, validity. standing, place where one has the right to of, give hospitality to, protect, look out for stand — place where one has rights of invitation, rituals of — show respect, generosity and care for Pōwhiri (noun) residence and belonging through kinship encounter, welcome ceremony on a others. and whakapapa. marae, welcome. Manaakitanga (noun) hospitality, Waiata (noun) song, chant, psalm. kindness, generosity, support — the Rangatahi (noun) younger generation, process of showing respect, generosity youth. Whakawhanaungatanga (noun) process and care for others. Rangatiratanga (noun) kingdom, realm, of establishing relationships, relating well to others. Māori (noun) Māori, indigenous sovereignty, principality, self- New Zealander, indigenous person of determination, self-management — Whānau (noun) extended family, family Aotearoa/New Zealand — a new use of the connotations extending the original group, a familiar term of address to a word resulting from Pākehā contact in meaning of the word resulting from Bible number of people — the primary economic order to distinguish between people of and Treaty of Waitangi translations. unit of traditional Māori society. In the Māori descent and the colonisers. Rohe (noun) boundary, district, region, modern context the term is sometimes Māra kai (noun) food garden. territory, area, border (of land). used to include friends who may not have any kinship ties to other members. Marae (noun) fenced-in complex of Rōpū (noun) group, party of people, buildings and grounds that belongs to a company, gang, association, entourage, Whare (noun) house, building, residence, particular iwi (tribe), hapū (sub tribe) or committee, organisation, category. dwelling, shed, hut, habitation. 4 Kia hiwa rā, Kia rite1 Jade Kake, Poutohu Mātua, Te Matapihi, National Māori Housing Advocate

Hot off the press, 26 days post-election The Māori seats were a hot topic this The point was not to tell voters who to and the formation of the 52nd election (with one prominent veteran vote for (if they voted only on policy, New Zealand Government is pretty politician vowing to abolish them and if their priority issue was housing), much in the bag. pre-election.) The unfortunate rather, to unpack the various policies demise of the Māori party demands and piece them together to achieve a For our Australian readers, under reflection and re-evaluation about better Māori housing outcome. mixed-member proportional (MMP) how to best ensure an independent In completing our analysis, we were voting, the party who receives the Māori voice in parliament. encouraged to see a great deal of largest share of the vote (unless they How can we ensure our elected convergence in policy approaches to achieve a clear majority) is not Māori representatives have a degree addressing housing issues and necessarily able to form of autonomy and independence to homelessness, with broad general government. Yesterday’s represent their constituents, without agreement across the parties to announcement demonstrates that being compromised by their own support our most vulnerable, and despite much posturing post- party’s political position? stabilise the housing market to ensure election, no party has the ‘moral secure and affordable housing for all. majority’ under MMP. If parties The challenge moving forward is, We made a point of considering how demonstrate that they can work how can we shift our political system the various potential coalition together, and that combined they to truly reflect the principles of partners’ policies might work together. have enough seats to establish a Te Tiriti o Waitangi / the Treaty of majority in parliament, they are Waitangi, our founding document, Post-election, we issued press permitted to form government. and, in the view of many, our statements reiterating our interest in, unwritten constitution. If we were to and commitment to, working with The outcome of post-election take our Treaty partnership seriously, whoever forms government under negotiations demonstrates what is what could our political system look MMP, to bring expediency and possible under MMP, the adoption of like? What form might our political certainty to Māori housing. which (in my view) has taken us a step representation take if it was based We were concerned about the loss closer to true democracy. Although on our equal relationship under of the Māori Party, but also optimistic we now have a record number of Te Tiriti, and not on our population about our ability to work with whoever Māori MPs in parliament — which is as a proportion of the total? formed government. Maintaining our worthy of celebration — there are still This matter has been given serious independence and the integrity of the many significant challenges for Māori and considered thought by our kaupapa, whilst also maintaining a within our current political system, Māori intellectual leaders, such as close relationship with government, including low voter participation, Moana Jackson, Margaret Mutu, is a balancing act, and the loss of the and a party representation system that and others. We should and must Māori Party is a cautionary tale in tends to pit Māori against each other. keep having these conversations. some respects.

As Māori, we have a historically uneasy In the lead up to the election, we took Whilst I am quietly optimistic about the relationship with te pōti (the vote). an in-depth look at each of the outcome of this election, I continue to When voting was granted to Māori, it different political parties’ housing have concerns about a political system was assigned based on individual land policies, with a focus on what these that does not truly represent Māori or title (although Māori land was held all mean for Māori. For each of the acknowledge our partnership under collectively at a hapū level) — one of parties, we asked ourselves two Te Tiriti. However, I firmly believe that the many ways the new imposed questions: will it work, and will it make while our social aims should be radical, colonial political system sought to a difference for Māori? The answers our tactics are necessarily pragmatic disenfranchise Māori. We still have were, predictably, along the lines of and centrist because we need to be amongst the lowest voting rates of any ‘yes — but…’, or ‘partially — but only for effective. demographic group, with many of our xyz demographic group’, ‘maybe — whānau still firmly believing that their but it would work better in We cannot afford to be otherwise. vote cannot and will not make a conjunction with xyz policy’. difference in a pākehā system that is Most were basically workable, and Endnote rigged against them. most could be improved. 1. Be ready, be vigilant 5 Introduction

The first New Zealand edition of Parity Fellow, University of Otago were Many of CHA’s members are actively Magazine was published in October invited by the Council to Homeless involved in the provision of of 2007. The 2007 edition of Parity has Persons to take on the role of advisers emergency, transitional and its origins in a visit by Kate Amore and guest editors. This joint approach supportive housing. CHA also plays a early in 2006 to the Council to reflects a shared commitment from key role in supporting the Emergency Homeless Persons. Kate had come to the various parts of the sector to work Housing Network and Housing First Melbourne from Wellington to collaboratively to influence policy and Community of Practice group in undertake a series of filmed practice in Aotearoa New Zealand. Auckland. interviews that would form part of a documentary that she and others The guest editors Kate Amore is a Research Fellow with were making on homelessness in Jade Kake is an advocate with He Kainga Oranga / Housing and New Zealand. Subsequently, an Te Matapihi, which did not exist back Health Research Programme, invitation was extended to attend and in 2007. The organisation emerged University of Otago — a team which participate in what would become the from a ‘call to action’ at the inaugural has produced national homelessness second New Zealand National Māori housing conference in Rotorua statistics for Aotearoa, and is involved Homelessness Forum in Auckland that in 2010. Te Matapihi operates as an in evaluating Housing First projects, was being hosted and organised by independent Māori voice to advocate amongst other prominent work, Auckland City Council. This invitation for better Māori housing outcomes — including the Rental Warrant of was taken up by the Parity editor. from championing the rights of our Fitness. Feedback obtained from participants whānau living in severe housing at the Forum indicated there was deprivation, right through to This edition strong interest and support for a supporting iwi as developers on The contributions to this edition come New Zealand edition of Parity in 2007. large-scale urban regeneration from a number of sectors — providers, projects. With homelessness very government, advocates, and Fast forward ten years to the current visibly and disproportionately researchers. Two topics recur edition, which is intended as an affecting our people, this kaupapa is throughout: Housing First; and Māori update to the October 2007 an important one to us. In recent homelessness — in terms of Responding to Homelessness in New years, the widening of definitions to definitions, data, governance, and Zealand special edition. The 2007 include rural housing deprivation, and culturally appropriate responses. Te edition had a strong focus on the critical (and high profile) role Tiriti o Waitangi/the Treaty of Waitangi understanding the specific nature and played by marae has made this a — and the expectation of reciprocal character of homelessness in priority issue for the organisation. partnership and self-determination in Aotearoa New Zealand as well as the development of policy and examining the important roles played Angie Cairncross is the provision of services — remains a by community and local government Communications Coordinator for central consideration. These two in responding to homelessness. In Community Housing Aotearoa (CHA), topics speak to the homelessness addition, the 2007 edition discussed the peak sector body for community space over the last ten years: some the central role of housing in reducing housing providers that works toward things have changed; some remain homelessness and the roles of the vision of all New Zealanders being the same. frontline service providers. well-housed. CHA is the umbrella organisation for over 100 members Housing First is perhaps part of the The current edition is an opportunity who are building and managing biggest change — public awareness to reflect on the past ten years. What affordable, social and emergency and understanding of homelessness, have we learnt? How have we housing, including many who use a which has arguably been the most progressed? What new challenges Housing First approach to address significant driver of government action have prevented themselves? For this homelessness. CHA plays an on homelessness (and funding for special edition, Jade Kake, National advocacy and stewardship role for the homelessness services). This long- Māori Housing Advocate Te Matapihi; sector, building capacity by fought-for step toward proper funding Angie Cairncross, Communications promoting best practices, skill of the homelessness sector is worth Coordinator, Community Housing development, resources and policy celebrating. As we write, a new Aotearoa; and Kate Amore, Research for members and stakeholders. government has just been elected, 6 The group of nine documents that make up Te Tiriti o Waitangi — The Treaty of Waitangi, 1840 Archives New Zealand

which has made a number of exciting government to recognise the issue of years holds, we will continue to work promises about homelessness. It is homelessness and to acknowledge together to achieve our shared vision important to recognise, however, that the government’s role in forming of an Aotearoa New Zealand where since the last New Zealand edition of public policy and legislation to reduce homelessness is rare, brief and Parity, the level of homelessness is the incidence and prevalence of non-recurring. even higher. The impacts of homelessness.’ Ten years on, a colonisation continue to be deeply felt national homelessness strategy We would like to thank Council to and experienced. And we still do not remains a critical need. To have a Homeless Persons for the invitation to have a national homelessness strategy. collective impact on homelessness, be involved in the production of this we must work collaboratively, across special edition, and for our continued In the introduction to the 2007 local and central government, positive working relationship sharing edition, Clare Aspinall, a contributor community providers, iwi/hapū and learnings across the Tasman. to this current edition, highlighted mataawaka organisations, and the calls from the sector for ‘central broader sector. Whatever the next ten Ngā mihi nui ki a koutou katoa.

est social and affordable housing event

Australia’s largest social and affordable housing event Australia’s largest social and affordable housing event

7 Chapter 1: Understanding Homelessness in Aotearoa New Zealand Understanding Homelessness in Rural Aotearoa Tao Faneva, Chief Executive Officer, Te Rūnanga O Whaingaroa*

Homelessness for whānau in Often when whānau come to us, they Many whānau and especially their Northland arises from a range of tell us stories about how they are Tamariki have been living precariously challenges. Many of these are the made to feel like they have no voice, prior to their arrival at our complexes result of the macro-policy where they are passed along a chain and so have very erratic health environment that pervades this of bureaucracy that dismisses their histories. Many tamariki are therefore country. The government economic rights and where they are treated susceptible to chronic health and housing agenda has been set by without respect. They are made to feel conditions that although ultimately neo-liberal, utilitarian policy makers that they do not have a legitimate avoidable, have become recurrent. and while this may be working for view and a position. They are treated Many tamariki present with current or majority of people in Aotearoa, this like they are to blame for their current past cases of Group A strep agenda means misery for the minority. situation — like how the unemployed (Streptococcus pyogenes), a precursor are to blame for unemployment to acute rheumatic fever — a third Our whānau are often unclear about world disease, the epidemiology of where they stand regarding their The stories of the many whānau which is intricately linked to poverty, rights. The fact is that these rights seeking emergency housing, remind poor access to healthcare, have been eroded over time due to me that for many of us, we are only an overcrowding. Of many illnesses, policies that have resulted in a accident or mishap away for acute rheumatic fever is linked to systematic dismantling of whānau becoming homeless ourselves. lower socio-economic factors in the citizen rights. These policies have Whānau then are treated as denizens lives of whānau and is a highly meant the lack of real wages growth, and denied citizenship rights. sensitive indicator of Māori – Non- the rise of the economic plutonomy, Māori health inequities. the growth of an invasive panoptical Food and Health Stress society that uses data and surveillance Just as the macro policies are all Like Group A strep and other chronic of whānau as a means of control and interrelated, so too is homelessness health diseases, many whānau lack censure, soaring house prices and the intricately linked with food and health the resources to take control of their lack of affordable rental stresses. and their children’s health needs. accommodation. Doing this often this requires an Many of our whānau have tamariki, increase in health literacy and suffering from various nutritional awareness, something that is not deficiencies which for some may result easily accessible where whānau in hospitalisation. Many may not realise priorities are around finding shelter the true effects of this until later in their and kai. Other health stresses include lives where prolonged malnutrition the rise in undiagnosed mental illness, and iron deficiencies as adults results chronic trauma and stress caused by in chronic health problems. These chronic insecurity and the prevalence health issues are becoming more of drug and alcohol related illnesses, commonplace where whānau spend a including a rise in methamphetamine high percentage (often more than half) addictions. of their income on food items and have a heavy reliance on food banks. Data Sovereignty This reliance on cheap non-nutritional Many whānau feel they have lost their foods creates an ongoing cycle that basic right to privacy. They often results in both adults and children be convey their unease at the amount of underfed and malnourished. data they are required to submit to a For whānau the effects of a loss of multitude of government agencies access to nutritious, good quality, safe, such as Work and Income, Oranga and culturally appropriate food is even Tamariki (Ministry for Vulnerable more apparent where the whānau are Children), Ministry of Justice, homeless and lacking the means to Department of Corrections, Housing build the knowledge systems to take New Zealand (HNZC), etc. to access back control of their food. Social Investment world, only an provides the means for whānau to accumulation of certain risk factors revive culturally important customs triggers an action that will be and processes that sustained resourced by agencies. Such populations of whānau for investment is more about the intensity generations. Learning is conducted in of past activities than any real benefits our Whare mātau — our place of for whānau. Ultimately for whānau the learning, where knowledge is handed Social Investment model is flawed as down through the generations and it does not address the underlying holds the keys to whānau wellbeing, causes of risk in any whānau, it only a state of wellness which is more than deals with the symptoms. physical health, or, Mauri Ora. It fundamentally assumes that whānau and individuals are only ready for this With whānau increasingly facing the level of inquiry and intervention when challenges of food costs and food they are homeless, insecure and security, consumerism, climate untrusting of agency interventions. change and fuel pressures, Te Mahi Kai Maara project seeks to support Te Nohoanga and Kai Maara — whānau to grow food holistically, Recalling Ancient Models of organically and purely at Te support and to assess their eligibility Success Nohoanga — guided by the tikanga of for housing. With the recent purchase of Te the Whaingaroa rohe, and combined Nohoanga — a 14-unit complex with the shared experiences of other They are also wary of the way the data purchased specifically for emergency maara kai growers from around the is used in this panoptical society to housing, we have increased our rohe. Ultimately the project seeks to penalise and control whānau. They capacity to provide support to more support whānau to exert control over experience government as invasive than twenty whānau in the wider their food sources and become a Kai and the constant requirement for region. At any one time we can have Maara gardener exemplar and share whānau to comply with government more than 40 children and more than their knowledge and expertise with regulation as a means by which they a dozen parents/caregivers other whānau in the rohe to spawn a can be tracked, managed and accommodated through our growth movement in growing measured. The use of the data by complexes. Our Kai Maara project traditional Maara kai according our government has resulted in the encourages whānau to take control tikanga and customs. Other forms of disproportionate profiling of whānau over their food security by providing food sovereignty include Te Mahi Hi- in lower socio-economic practical advice on how to grow kai Ika or recalling knowledge of fishing, circumstances and the ongoing traditionally and in a kaupapa Māori tides, netting and seafood stigmatisation of whānau and their way. preparation to access fresh, quality, wider kin groupings. culturally relevant methods of In pre-contact times, the site of Te nourishing whānau and tamariki. The use of big data in Aotearoa is Nohoanga, our emergency housing predicated on a government complex, was traditionally where The programmes we run at a local approach to investment that Waka, either leaving or returning from level provide whānau in crisis with calculates the return on investment Whaingaroa Harbour for fishing and immediate supports, and empower against the capital spent on trading expeditions, would be whānau to take control of their own supposedly fixing whānau or berthed and moored as a place of lives, drawing on our cultural groupings. While this is supposed to shelter before leaving the harbour or traditions to alleviate food and health be a Social Investment approach to returning to the various Kāinga stresses and promote physical, mental tackling social issues, it is more (settlements) down the various and spiritual wellbeing. To support properly understood as a government harbour tributaries of the Kaeo, these successful approaches at a local VFM (value for money), efficiency Pupuke and Te Towai rivers. Te level, a fundamental rethink of the exercise. This Social Investment Nohoanga was also a place of trade Social Investment approach is approach that seeks to deliver with exchanges between other hapū required at a national level — centred targeted responses to the identified and iwi who traded goods and tools, on people and outcomes, not fiscal few as opposed to universal services implements and other precious return on investment — and as a available to all, further isolates and materials and kai. society we need to engender a shift in unreasonably discriminates against values, affording dignity and respect whānau and their rights to privacy and This analogy of providing shelter in to our whānau in need, rather than anonymity, where whānau are further rough seas and respite for weary ongoing stigmatisation and victim subjected to coercion and elbow travellers is appropriate for our new blaming. nudging no matter how well complex — which was purchased intentioned. specifically for emergency housing — * Te Rūnanga O Whaingaroa is a and its current purpose of providing mandated Iwi organisation and an Social Investment is an exercise that if shelter for whānau who are homeless, approved emergency housing not implemented correctly provides overcrowded, or on the run, and in provider delivering transitional no relief for whānau in transitional need of accommodation and support. housing supports for families in the accommodation. In this data-driven Part of the kaupapa of Te Nohoanga Far North region. 9 Homeless Wāhine Māori and Survival Sex: An Emerging Link? Jade Kake, Te Matapihi, National Māori Housing Advocate

Part of Te Matapihi’s role in housing is to reasonable to assume some overlap. approach by the Ministry of Health, champion the rights of our pani me te Additionally, there is a well-researched Ministry of Justice, Ministry of Social rawakore, to identify gaps in policy link between homelessness and sexual Development, District Health Boards development and service provision, exploitation in Indigenous communities and Whānau Ora commissioning and to amplify the voices and internationally (particularly in other agencies will be critical to effective experiences of individuals and settler-colonial countries such as policy development and organisations experiencing or Canada and Australia), and particularly implementation. responding to housing issues. The in relation to resource extraction sites absence of good quality data is a such as worker’s camps,6 and amongst Te Matapihi are interested in hearing persistent issue, hindering policies from displaced urban Indigenous from and working with any researchers being appropriately targeted to the communities.7 These multiple investigating the link between sexual specific needs of minority groups, such converging issues strongly suggest an violence, survival sex, and Māori or as older women, domestic and sexual under-explored correlation between indigenous homelessness. Provider violence survivors, youth exiting care Māori women experiencing housing and survivor perspectives are and released prisoners. Despite making insecurity and those engaging in especially welcome. up a disproportionate percentage of survival sex. those experiencing homelessness and Endnotes 1 housing insecurity, Māori women are Exploring this link raises more 1. Amore K 2016, Severe housing deprivation one such underserviced group. questions than answers. in Aotearoa/New Zealand: 2001–2013, He Kainga Oranga/Housing and Health What proportion of Māori women Research Programme, University of Otago, In our discussions with researchers and experiencing homelessness have been Wellington, retrieved from providers, we have seen vast gaps in sexually exploited or engaged in http://www.healthyhousing.org.nz/wp- content/uploads/2016/08/Severe-housing-d both data and service provision for survival sex to access housing and basic eprivation-in-Aotearoa-2001-2013-1.pdf. Māori women. What providers have resources? Of street-based sex workers, 2. Survival sex is defined as involving told us is that Māori women how many are housed insecurely? individuals over the age of 18 who have experiencing homelessness are more Are culturally appropriate services traded sex acts (including prostitution, likely to be younger women, from (including housing and support stripping, pornography, etc.) to meet the basic needs of survival (i.e., food, shelter, lower socio-economic status services) available to women who wish etc.) without the overt force, fraud or backgrounds, and with multiple to access them? If so, are women coercion of a trafficker, but who felt that children. This is also a group accessing these services? Why/why their circumstances left little or no other option. vulnerable to sexual exploitation, and not? What practical alternatives are 2 3. National Research Council 2013, at risk of engaging in survival sex presented to women who are Confronting Commercial Sexual Exploitation in attempts to achieve economic experiencing housing insecurity, and and Sex Trafficking of Minors in the United stability. There may also be additional who may view survival sex as the only States, The National Academies Press, Washington, DC, pp. 79. risk factors present (common to both viable option available to them? homelessness and sexual exploitation), 4. Robertson N and Masters-Awatere B 2017 ‘Out of the Pan Into the Fire: such as a history of abuse, history of With greater differentiation of data in Precariousness Among Women and being systems-involved (foster care, future censuses and consistent Children Escaping Domestic Violence’, In criminal justice, etc.), family collection and collation of both Groot S, Van Ommen C, Masters-Awatere 3 B and Tassell-Matamua N (Eds), Precarity: dysfunction and gang involvement. provider and government data, Uncertain, Insecure and Unequal Lives in a clearer picture of need would Aotearoa New Zealand, Massey University The link between sexual and domestic emerge, and policy could be Press, Auckland, New Zealand, pp. 87–96. violence and homelessness has been developed to support both 5. Watson J 2011, ‘Understanding survival 4 sex: young women, homelessness and reasonably well documented. There is mainstream and Māori providers to intimate relationships’, Journal of Youth also an emerging body of knowledge deliver culturally-based services Studies, vol. 14, no. 6, pp. 639–655. connecting housing insecurity and (including housing and wrap-around 6. Holmes C & McRae-Williams E 2012, sexual exploitation particularly amongst supports). How these services are ‘Captains’ and ‘Selly-welly’: Indigenous 5 Women and the Role of Transactional Sex in young women. Although no studies integrated with those currently Homelessness, Batchelor Institute of specific to Māori women have been offered by frontline providers, such as Indigenous Tertiary Education Batchelor, produced so far, with Māori women women’s shelters and street outreach NT, Australia. overrepresented in all three areas, it is services, will be key. A coordinated 7. Farley M and Lynne J 2005, op cit. 10 We Need a Strategy to Address Homelessness

David Zussman and Angie Cairncross of Community Housing Aotearoa

New Zealand is experiencing homelessness rare, brief and non- Homelessness talked about American unprecedented levels of recurring.5 We believe that affordable, efforts to end homelessness. homelessness. habitable, accessible and culturally adequate housing with secure tenure She described the reasons for the The 2013 Census figures 1 show there is a basic human right and that relative success of the US in are some 41,000 New Zealanders who everyone in New Zealand should be addressing homelessness. are housing deprived. Broadly, of this well housed. The starting point was the availability population 4,197 were sleeping of reliable data around which a plan rough, 8,443 were living in non- Government has a central and could be structured and that has private dwellings such as emergency important role in providing co- allowed for the creation of all the housing and boarding houses, and ordination and resourcing to ensure a other elements of a plan that has: 28,563 were living in crowded and comprehensive response to address • an objective of ending other inadequate housing situations. the systemic issues that contribute to homelessness This is an increase of nearly homelessness. Both national and • a nationally agreed strategy 25 per cent since the 2001 census. regional homelessness strategies are • clear national and local goals required to ensure this goal can be • a sense of urgency The Ministry of Social Development’s achieved and that all services are • policy tools and approaches most recent Social Housing Register 2 delivered in a culturally appropriate • data collection that identifies what figures show a 40 per cent increase in way. At the moment regional plans works best households waiting for a social house and strategies are beginning to fill the • the ability to change direction, between July 2016 and June 2017. void. They would be better able to however hard, when approaches These households include increasing deliver if they were aligned with a are not working. numbers of employed people. national strategy. Community Housing Aotearoa’s The reason for the positive results (CHA) members report large waiting The full extent and nature of appears to be that, as well as the plan, lists for emergency accommodation homelessness here in New Zealand is there is broad buy-in to solving the and community housing. We believe still not well-known and should be homelessness crisis in the US from the the lack of sufficient new social and fully documented to ensure responses US Federal Government, state and affordable homes is a major are adequately resourced and the local governments, and contributor to the current increase in services required are delivered non-government-organisations, all of homelessness. Programmes supporting appropriately. which agreed to the plan. the full housing continuum including assisted affordable rental and home A safety-net for homeless people, that Canadian Sam Tsemberis visiting ownership options are required to includes emergency or temporary New Zealand as part of our 2015 provide permanent solutions. housing, alongside access to Housing conference, provided messages First 6 options, should be available in about the success of Housing First as The Government’s response to fund conjunction with the delivery of a service delivery model. One of his emergency housing 3 and to support sufficient social and affordable homes recent messages to providers here is Housing First 4 over the last year is to meet the needs of all that the real change needs to come welcomed. Our concern, however, New Zealanders. This would ensure from us — from the providers — in the is that this has been a largely reactive that homelessness is avoided and way that we deliver housing and approach that only responds at the crisis responses operate as a safety- services, and not from our point of crisis when people have net only. expectations of people experiencing already become homeless. homelessness. It addresses the symptoms but What We Have Learned From not the causes. the Overseas Experts Are We Ready to Deliver? On her recent visit to New Zealand for Here in New Zealand there are signs What Should a Strategy CHA’s IMPACT June 2017 conference, of light. New opportunities and Include? Nan Roman of the United States (US) initiatives to address homelessness In CHA’s policy on homelessness we National Alliance to End are increasing. A multi-year adopted the goal of making investment of resources has been 11 Photo provided by Brook Turner, Head of Community Services Development, VisionWest Community Trust committed to by the New Zealand what our individual and collective strategies that are proven to work Government — because there is huge strengths are, how services are with an emphasis on housing; and demand. But are we making the most configured and connected to each remember that although we know effective use of those new resources? other, and how they can be co- what to do, we need to do enough designed alongside people in need. of it and do it long enough to reach As a sector, we need to change the the goal.’ way we do things to really drive the When we take the time for respectful, change we need to see — strategic open conversations that acknowledge Endnotes and systemic change. This is not and understand the role everyone 1. Amore K 2016, Severe housing deprivation always easy when responding to high currently plays, and can play, we in Aotearoa/New Zealand: 2001–2013, He demand in a time of considerable shape a better future — a future where Kainga Oranga/Housing and Health policy change and where short-term we are likely to see many service Research Programme, University of Otago, Wellington. piecemeal contracts must be delivery gaps, some of which we may http://www.communityhousing.org.nz/ negotiated each year. not be able to predict; and new resources/article/severe-housing- services needed for targeted deprivation-in-aotearoa-new-zealand-2001- In this sort of high-stress environment responses for the elderly and young 2013?from_month=&from_year=&to_ month=&to_year=&keywords=amore&_ we often fall back on old ways of people and different cultural pjax= per cent23article-list working rather than having the groupings. 2. MSD Social Housing quarterly report June strategic conversations we need to 30 2017 from http://www.msd.govt.nz/ make a lasting impact. To have a collective impact on documents/about-msd-and-our-work/work- homelessness we must work across programmes/social-housing/social-housing- For the community housing sector government, local government and in quarterly-report-june-2017.pdf one example of being bolder would particular with each other. The change 3. MSD Emergency Housing Funding see a very different contracting that we require and expect from https://www.msd.govt.nz/about-msd-and- our-work/work-programmes/housing/ environment — one based on a others has to be demonstrated and initiatives/emergency-housing.html relationship approach that would set led by us. Are we ready to take that 4. https://www.msd.govt.nz/about-msd-and- out the core organisational challenge? our-work/work-programmes/housing/ relationship and responsibilities for initiatives/index 7 both government and the provider in A final quote from Nan Roman: 5. Western Massachusetts Opening Doors’ a more flexible, transparent and June 30, 2015 outcomes-focused approach. ‘I would advise three things: 6. https://www.housingfirst.co.nz/ commit to ending homelessness; 7. Q & A with homeless advocate Nan There is a role for everyone in this set a timeline for getting there and Roman; Dec. 19, 2016 retrieved from new environment. Collectively we put together the partners you need http://www.naco.org/articles/q-homeless- need to work out what that might be, to solve the problem; focus on the advocate-nan-roman 12 Kāinga tahi, kāinga rua: A kaupapa Māori Response of Te Puea Memorial Marae

Jenny Bol Jun Lee-Morgan, Waikato-Tainui, Ngāti Mahuta and Rau Hoskins, Ngāti Hau, Ngāpuhi*

In the winter of 2016, Te Puea The post-World War II urban Māori Canterbury earthquakes. Similarly, in Memorial Marae (TPMM) initiated a shift, motivated by economic November 2016, Takahanga Marae kaupapa Māori marae-led response, imperatives precipitated a Māori responded following the opening their doors to vulnerable diaspora from rural homelands that 7.8 magnitude earthquake in whānau seeking emergency housing. eventually resulted in the Kaikoura, extending their generosity Following in the legacy of Te Puea establishment of urban marae from and hospitality to hundreds of people Herangi,1 the marae answered the the 1960s by taura here (iwi from stranded without food or call of homeless whānau in Auckland other parts of Aotearoa) 4 and accommodation. However, to Māori and in doing so disrupted the mataawaka (pan tribal faith or the role of marae in assisting those in dominant Auckland housing narrative suburban area based marae) as need of shelter and support is not where the government had until that kāinga rua. Derived from the new, but as the whakatauki suggests, time refused to acknowledge whakatauki (proverb) ‘Ka mate ‘kāinga rua’ is a part of a cultural homelessness as a serious issue. kāinga tahi, ka ora kāinga rua’, this expectation and obligation. In this In the full view of the media, infers that when one dwelling is no regard, TPMM has enacted an ancient TPMM not only made the reality of longer viable, the second provides tradition in the contemporary urban homelessness visible by caring for critical security.5 context in response to the 181 people (of all ethnicities and homelessness crisis. cultural backgrounds), but named As a part of the deliberate process of the housing situation in Auckland colonisation (in particular policies of While urban marae have always been as a ‘crisis’. 2 assimilation), Māori were ‘pepper able to provide manaakitanga in times potted’ in cities.6 These new culturally of crisis they have also progressively TPMM also reminded us that isolated living circumstances often saw expanded their day to day roles from historically marae have always whānau in socio-economic positions the 1980s to include health centres, provided shelter for those in need, that rendered them unable to control kaupapa Māori education (especially and further demonstrated that the financing, design and building of Kōhanga Reo) and te reo Māori marae can still be an integral part of their own culturally suitable housing revitalisation initiatives. However urban emergency and transitional solutions. Consequently, Māori in the these marae have only now been housing solutions today. In this cities were prevented from supporting called upon to respond to the article we argue that the mahi each other as they previously had in systemic Māori and wider community (actions) of TPMM exists within a their close-knit papakāinga, and urban homelessness which has resulted cultural framework that conceives of marae evolved to become their from the deepening housing crisis.8 urban marae as a ‘kāinga rua’ ‘kāinga rua’ as the heart of new urban (second home), a place that is also Māori communities. Considered to be In this regard TPMM have drawn grounded in te reo (Māori language) critical as cultural bastions,7 urban attention to the potential role of and tikanga Māori (Māori cultural marae enabled whānau, hapū and iwi marae to make a fundamental practices). to sustain cultural protocols, practices contribution to the Māori housing and beliefs in urban centres, continuum through providing a There are more than 70 marae in the characterised by nuclear family marae-based operation which Auckland Region (Independent homes. stabilises homeless whānau through Māori Statutory Board) 3 and, as an supporting their health, educational, established feature of the Tāmaki As Māori researchers, a kaupapa employment and financial wellbeing Makaurau cultural landscape, marae Māori analysis of TPMM response to prior to placing them in long-term have always been the epicentres of homelessness in 2016 (and again healthy and affordable our whānau, hapū, iwi and urban from August 2017), is paramount. accommodation. Māori communities. Marae provide a In the recent wake of natural disasters Once accommodated in the critical connection to our culture, the ability of marae to provide a safe community TPMM remain closely whenua (ancestral land) and the haven during a crisis has become involved with the whānau as they wider natural environment, and more prominent in the public eye. consolidate their life circumstances, continue to be foundational to our In 2011, Ngā Hau e Whā Marae in offering ongoing specialised support turangawaewae (cultural security) Christchurch hosted a range of and advocacy to ensure their new and sense of identity. organisations following the tenancies a fully sustainable. 13 The marae-led response of TPMM is named ‘Piki te Ora’, one of the Endnotes a culturally responsive initiative that Waikato kaumātua reminded the 1. Prominent Waikato-Tanui leader and Māori is grounded in kaupapa Māori. people that homelessness is not social advocate of the early 20th century, A kaupapa Māori approach coheres new, but something that we niece of the Māori King Mahuta. around principles that include: Tino intimately identify and empathise 2. Collins S 2016, June 1, Marae calls for Rangatiratanga — the principle of with as the ‘original homeless’ in our army to help with homeless crisis, New Zealand Herald. Retrieved from: self-determination; Taonga Tuku Iho own country. http://www.nzherald.co.nz/nz/news/ — the principle of cultural aspiration: article.cfm?c_id=1&objectid=11648844 Ako Māori — The principle of Aligned to a kaupapa Māori 3. This number also includes institutional culturally preferred pedagogy; Kia approach, the success of TPMM marae, ie school and university marae. piki ake i ngā raruraru o te kāinga — demonstrated that marae are not 4. First urban marae was Te Ūnga Waka in the principle of socio-economic just a place of refuge during times Epsom, Auckland, established in 1966, mediation; Whānau — the Principle of crisis. The ability of the people of (see Anderson A, Binney J and Harris A of extended family structure; and the marae to initiate and effectively 2014, Tangata whenua: An illustrated history, Bridget Williams Books, Kaupapa — The principle of implement an immediate voluntary Wellington, p.366) 9 collective philosophy. response that housed large 5. Mead S M and Grove N 2001, Nga ̄ pepehā numbers of whānau over the 2016 a nga ̄ tipunā = The sayings of the ancestors, While all of these principles are winter and spring, is not to be Victoria University Press, Wellington. enacted in marae in everyday underestimated. 6. Walker R 2004, Ka whawhai tonu matou:̄ practices to varying degrees Struggle without end, Penguin, Auckland, (depending on the activities of the More than just providing physical 7. ibid. marae), the TPMM response shelter, the culturally demarcated 8. Faneva T 2016, Responding to perhaps best exemplifies the ‘kia space of the marae ensured an homelessness among rural whānau in piki ake i ngā raruraru o te kāinga’ in all-encompassing familial network Northland, Parity, vol.29, no.8, pp.17–19. an effort to offer practical support that provided constant wrap around 9. Smith G H 2002, The development of for homeless whānau. Driven by care and support. The cultural and kaupapa Māori: theory and praxis, The University of Auckland: International kaupapa Māori imperatives, marae social investment that goes beyond Research Institute for Māori and enact values such as manaakitanga a roof overhead, rests on the Indigenous Education. (hospitality), aroha (compassion), cultural pillars, such as 10. Walker R 2004, op cit. whanaungatanga (familial manaakitanga, on which marae are 11. Anderson A, Binney J and Harris A 2014, relationships) which frames a founded. In this regard, the ability of op cit, particular way of seeing the world TPMM to efficiently support whānau 12. O’Malley V 2016, The great war for New and organising ways to respond to into long-term housing in a way that Zealand: Waikato 1800-–2000, Bridget the issue of ‘homelessness’. disrupted conventional practices of Williams Books, Wellington, p.509. community housing, local and 13. Henare P 2016, Opinion 5: Peeni Henare; Part of a kaupapa Māori agenda is government agencies is highly Member of Parliament Tāmaki Makaurau, . the need to be decolonising. significant.13 Parity, vol.29, no.8, pp.62–63. Understanding that homelessness is not a new phenomenon but closely Given the centrality of marae as connected to landlessness as a Māori cultural bastions and safe result of colonialism, is a critical havens in urban settings that are starting point. The dislocation from hospitable, productive and whenua, rather than property, not protective, the TPMM experience only has physical and economic reveals that marae have significant implications, but for Indigenous potential as providers of ‘kāinga rua’ peoples has also had — a source of resilience in the face intergenerational cultural, social and of the housing crisis and spiritual ramifications.10 demographic trends in Auckland.

As part of the tribal confederation of * Associate Professor Jenny Lee-Morgan and Rau Hoskins are Principal Waikato-Tainui, strong in the memory Investigators for ‘Te Manaaki o te Marae’ of TPMM is the history of abundance Research Project. This two-year research and technological advancement project is funded by Kāinga Tahi, Kāinga which characterised the 1840s and Rua Building Better Homes, Towns and Cities National Science Challenge. This 1850s to the land wars and land project signals the broader role marae legislation including unjust land can play in purposefully contributing to confiscations totaling more than the building and development of 480,000 hectares in the 1860s.11 affordable and healthy homes that meet the needs and aspirations of whānau in By 1900, a report tabled in the Tāmaki. Emergency housing for our most New Zealand House of vulnerable whānau is only one living Representatives listed more than example of a marae-led housing 3,000 landless Māori from Waikato.12 intervention. The aim of this research is to strengthen the kaupapa Māori foundation of marae to most effectively engage in the This year, at the dawn opening of a housing crisis for Māori in culturally new multi-purpose facility at TPPM consistent and sustainable ways. 14 Enumerating Homelessness in Rural Māori Communities

Jade Kake, Te Matapihi, National Māori Housing Advocate

In Aotearoa New Zealand, we have a As we do not have an official census Social Development. One of the key lack of official data on homelessness, of homelessness (urban, or rural), the problems we encounter in our work is and the data we do have is often not Social Housing Register managed by that many Māori households living in adequately differentiated by the Ministry of Social Development is housing deprivation may not be demographic group. There is also a one of our key tools for quantifying represented on the social housing problem with definitions — who is acute housing need. Families and register, due to living in poor quality categorised as homeless, the individuals on the register are sorted owned homes (generally in rural perceived level of need, and where into categories based on need and areas, generally on whenua Māori). they are located, all have an impact prioritised accordingly for housing, Many may appear on the Work and on policy and how services are delivered through Housing New Income register, but what we have funded. In response, many night Zealand or Community Housing heard anecdotally from providers is shelters and other social service Providers. There are currently 5,353 that the process of transitioning providers have conducted street applications on the Social Housing whānau from the Work and Income counts to determine the extent and Register, of which 2,357 are Māori.1 register to the Social Housing register make-up of the local homeless Not all whānau on the social housing is difficult, even for trained social populations. Homelessness in rural list can be categorised as homeless, workers. Māori communities is a unique but all are on very low incomes and challenge, as most experiencing it currently unable to access secure This is an issue because the Social are not houseless in the conventional market rentals or attain home Housing Register guides the Ministry sense, instead living in owned make- ownership. of Social Development’s purchasing shift dwellings on ancestral land that strategy, which ultimately determines would be considered uninhabitable However, there are serious gaps in the the configuration and location of by urban standards. data collected by the Ministry of housing that are eligible for placement of social housing tenants (and the income related rent subsidy that comes with them). If community housing providers build new houses based on the needs in their community (as they understand them), with house sizes and locations determined by need, development viability and availability of land, they risk building outside the parameters of the purchasing strategy, and therefore being unable to access the income related rent subsidy and ensure the ongoing viability of the project.

Another challenge being encountered by providers in rural Māori communities (again, anecdotally) is the phenomenon of a reverse urban drift from the cities. Unable to afford the very high cost of living in urban areas (particularly Auckland), families are seeking refuge in their ancestral homelands, sometime after several generations in the city. Many of these very poor, rural communities are struggling to Photo provided by Brook Turner, Head of Community Services Development, VisionWest Community Trust house those who live there 15 currently, and lack the housing and This of course raises issues of data It is clear that the acute housing need infrastructure required to sovereignty — how can rūnanga and experienced by many of our rural appropriately re-integrate returnees other providers ensure the Māori communities is not being from urban areas. anonymity of whānau is protected, appropriately enumerated (or met) by and the ownership of their data is central government. If the issues of One potential solution to counter retained? The Integrated Data data sovereignty could be worked these issues from a policy perspective Infrastructure currently has robust through, the Integrated Data is to support providers (such as systems in place to protect the Infrastructure used effectively, and if rūnanga, particularly those with a privacy of individuals, and retain policy-makers indicated their social services arm) to collect data in a public confidence in the initiative — willingness to incorporate provider consistent manner (at least at a however no system is completely data and respond seriously to the regional level) and feed it into the invulnerable. Information is challenges identified by rural Integrated Data Infrastructure (a large anonymised, and all research providers, we could see a new model central government database findings are confidentialised (making emerge, one that sees providers containing de-identified microdata it impossible to identify individual working in partnership with central about people and households). people). This can be both a benefit government to effectively respond to Provider data could be collected and and barrier for Māori communities housing need in our rural Māori normalised to match the data already seeking to utilise this data. There is communities. collected by the Ministry of Social also a growing movement to Development, which would create a develop protocols and partnership Endnote far more accurate picture of housing models that recognise Indigenous 1. Ministry of Social Development 2017, need in our rural areas and contribute data sovereignty, particularly Housing Register June 2017, retrieved from http://housing.msd.govt.nz/information-for- to the development of a more robust through Te Mana Raraunga, the housing-providers/register/housing-register. purchasing strategy. Māori data sovereignty network. html

Rural Ma¯ori housing, Rotorua Brian Robinson 16 Te Hā Tangata: A Human Library on Homelessness*

Elspeth Tilley, Associate Professor and Wellington Campus Coordinator, School of English and Media Studies, Massey University

‘This experience has taught me a lot. te kanohi (face to face) storytelling, library to facilitate respectful It’s taught me that my story is written narratives, video or audio. This conversations between people. Just worthwhile telling, and the effect of represented a shift towards as in a real library, a visitor to the my story on people would be a good acknowledging that those who live human library can choose a book one. That’s what I want. I want it to be a without housing are the experts on from a range of titles. The difference is story that people will say, ‘well, let’s do homelessness, and offered an that the books are people, and this and listen to his story and be opportunity for them to share their reading is a conversation. inspired.’ Because some people, in my stories to redress some of the situation, they die. They don’t come misconceptions and assumptions Te Hā Tangata, arising from the initial out of it. Institutionalisation is a real about people living with vision of Jo Taite, Kahungunu Whānau thing and some people can’t get over homelessness. This article summarises Services CE, applied this concept to it. I’m just one of the lucky ones that the key aims and processes of the starting a conversation about has been able to overcome it and try project, and assesses achievements homelessness in Wellington, with out a new life. I think that’s the and limitations. people who have experienced message I would like to send out to homelessness. Te Hā Tangata the world through Te Hā Tangata, The Human Library is an international translates to the breath of the people. yeah. You know, move on: keep movement that aims to challenge When we hongi we press noses and moving on is the message.’ prejudice and discrimination by exchange hā, the breath of life. — Robert, Te Hā Tangata Taonga creating relationships and The hongi is a physical act of unity. connections. It was initiated in Te Hā Tangata also draws from ‘So many words have been published Copenhagen in 2000 by a youth whakapapa. It is whakapapa that and spoken about homelessness, but non-government organisation called connects us to everything around us. it is so great for once to be able to Stop the Violence as a way for people Through whakapapa and the stories listen. We don’t have that opportunity who had experienced violence to of where we come from we are able often enough.’ bear witness and share first hand its to relate to each other and the world — Human Library Visitor, Te Hā Tangata effects on them. The concept has around us. since spread around the world, with This article offers one case study of refugees, people living with different In Te Hā Tangata, early on we the role of community in providing ability, non-binary or transgender acknowledged the storytellers as responses to homelessness in people, and many more, agreeing to Taonga or treasures. We were fortunate Aotearoa. In a unique ‘human library’ share their experiences. The events to be gifted this and other Te Reo event, Te Pūaroha Compassion Soup use storytelling and the idea of a Māori concepts for the project to be Kitchen, Kahungunu Whānau Services, Te Whakamura Ai Te Ahi and Massey University, with funding and support from the New Zealand National Commission for UNESCO, worked with people experiencing housing deprivation to deliver Te Hā Tangata — The Breath of the People.

The project recognised that our homeless community is often talked about — but not listened to. Our Taonga (New Zealanders who have experienced homelessness) were supported through a four month process of workshops and activities to develop their personal narrative and share it with their whānau, the public, and policy makers through kanohi ki Public koha — Wellington City Library Photo by Amber Allott 17 time came for the Koha, they sat down together, side by side, as partners, with the students offering their physical presence as support while the Taonga undertook the incredibly courageous act of sharing their lives with people.

Rangatiratanga was enacted in the choices given to Taonga: to participate or not, to come and go from particular workshops or activities, to tell their story themselves face to face, or to write it and have a student read it, or to be videoed or audio recorded, or to do some combination of these. All of the participants — Taonga and students — discussed consent, Taonga — Bruce Photo by Amber Allott privacy, autonomy, confidentiality, developed shared guidelines, and used in this way, from Kahungunu and Te Whakamura Ai Te Ahi). signed consent forms for any Whānau Services. This gave us a Planning a curriculum for storytelling materials that were to be publicly language to express important values workshops, building organisational shared, such as at the Koha or on the that were meaningful to the Taonga. relationships, and getting event Te Hā Tangata Facebook page at The Taonga were treasured as keepers logistics, health and safety and ethics https://www.facebook.com/ of knowledge, in the same way books procedures underway, the pōwhiri tehatangata/ where the videos and hold knowledge. The term Koha was a crucial moment of audio can still be found. While not (gift/offering) was the name given to whakawhanaungatanga and normally part of a human library, the the library events. Three Koha provided manaakitanga. videos were important in offering opportunities for different audiences to participation options to the Taonga listen to the voices of people who have Taonga, staff from all the partner and in broadening the reach of experienced homelessness: one for organisations, and Massey University matauranga. In their first three guests and whānau whom the Taonga students from the service-learning months, the videos were watched invited; one for the wider Wellington course, ‘Creativity in the Community’, 5,700 times on the Te Hā Tangata community at a central public location who would be supporting the Taonga Facebook page — not including the (the Wellington City Library); and one on their journey, met together, set out much wider audience who saw for politicians, policy makers, and the kaupapa (purpose) for the project, them at the Koha and redistributed government officials administering and shared kai. Even on that first day, via news websites and television homelessness strategies, to try to reach matauranga began. One of the coverage. those who could make a direct students recorded in their journal: difference. The extent to which the project ‘Today we had the pōwhiri and achieved manaakitanga and The core aims of Te Hā Tangata were welcoming ceremony to invite the matauranga can be seen in the grounded in the values of Community Partners into Massey. formal evaluation of the three Koha. Te Ao Māori: In all honesty, I feel very out of my There were 73 responses to • Whakawhanaungatanga: comfort zone and apprehensive evaluation surveys made available at establishing relationships, relating about the project, but also excited the exits. Respondents were asked well to others as I have no examples from my life two questions: ‘After hearing the • Rangatiratanga: self-determination, remotely similar to the journey we stories you have heard today, have authority and empowerment for are about to embark on […] The your views on people living with the Taonga: rangatiratanga being pōwhiri today made me forget homelessness changed?’; and ‘If the most important outcome about all the apprehension. It was your perspective on homelessness • Manaakitanga: the process of in my opinion a really beautiful has changed, does this make you showing respect, generosity and ceremony in which at the end I felt want to change the perspectives of care for others, and far more connected than others?’ • Matauranga: knowledge, wisdom, anticipated.’ and understanding. Of the 73 respondents, 87 per cent Over the next four months, Taonga (64 people) answered the first The project officially began with a full and students embodied question. The mean (on a Likert scale pōwhiri, although months of work had whakawhanaungatanga, working side of one to five where one was strongly already gone into inviting people by side to learn about storytelling, disagree and five was strongly agree) living with housing deprivation to research creative methods, write and was 4.25. Of the 73 respondents, participate (through the networks of share poems, play theatre games, and 90 per cent (66 people) answered the Te Pūaroha Compassion Soup Kitchen get to know each other. When the second question. The mean was 4.53. 18 There were challenges throughout the project. These included recruiting and retaining Taonga through the incredibly confronting journey of revisiting often painful stories; meshing very different worlds (students with the privilege of attending university, and people still living with loss, grief and deprivation) but the values from Te Ao Māori provided effective bridges. Also challenging were the logistics of delivering three ambitious events, with multiple participants and elements (we underestimated public interest and had to queue public attendees and keep to time limits as we had so many people wanting to interact with the Taonga); and Taonga — Verne Photo by Amber Allott balancing the need to amplify the project’s outreach via the media with In other words, people whakawhanaungatanga and the inevitable reduction of its value, overwhelmingly agreed they had matauranga. For example, a number meaning and complexity in been changed, and even more commented on the particular value of soundbites that seldom did it justice. strongly agreed that they now listening kanohi ki te kanohi: wanted to change the views of Another challenge came after the others. ‘I really appreciated the chance to Koha had finished and the funds were meet and talk with people about expended, and that was not to just Of the 73 respondents, 82 per cent their experiences,’ walk away from the project as a ‘one (60 people) wrote qualitative off’: it would not have embodied the comments on the survey. ‘This format is great — I’ve always project values simply to stop the All comments were transcribed and found cameras and videos relationships. The patterns of then coded into interpretive themes. unhelpful for the privacy of engagement established in Te Hā homeless people. … I have to be Tangata have led to an ongoing formal By far the strongest theme was with the person and connect,’ programme of meaningful activities, simply gratitude — for the events, to including creative writing sessions and the Taonga for sharing their stories, ‘He was so happy that I came fishing trips, offered through and for the work behind the scenes. today not just watched a video. Te Pūaroha Compassion Soup Kitchen. Many of the visitors to the Koha The connection/presence Work is also ongoing on a book and adopted the project’s values-based was important.’ documentary film of the project. terminology such as ‘Taonga’. For example: Another strong theme referred to the But as the words of Shannon, one of compassion engendered by the the Taonga, capture, we believe all the ‘Lovely. Thank you to all the Taonga stories: challenges were worth it: sharing their journey,’ ‘It was incredibly moving to ‘I’m doing this to help others. ‘The whole world should be here hear the stories. It has made I’m doing this so you all know what listening,’ me see them as human beings we go through. It’s not just the with experiences, emotions physical side, ay. There’s emotion. ‘Thank you for facilitating this and feelings,’ Deep emotion, a lot of it … I’m not wonderful sharing of stories from being sorry for myself. I just want our Taonga,’ ‘The biggest thing I take away is to you to know, I experienced this … change people’s mindset and treat We can’t talk about this to ‘Highly important subject that them as human beings — smile and everybody. This is an opportunity needs this kind of positive attention acknowledge them — not judge’ for me to open your ears, and the in order for change to be made. doorways for others. It’s not for Thank you,’ and myself. It’s giving someone tools to go and do something about this … and ‘Thank you for reminding me of I am so, so proud to help. You are what is important. Such a helping to open those doors, for ‘Really powerful, thank you for humbling experience and so very others to see for themselves, you giving homeless people a voice.’ privileged to hear the stories. know, we deserve rights. We all do.’ I am even more determined to go * Compiled by Elspeth Tilley from Te Hā Tangata Many of the other comments related back to where I work and tell team resources including words by Naomi directly to values such as them we have to do more.’ Taylor, Karen Holland, and Sophie Goulter. 19 Towards the Design of Culturally-Based Supportive Housing Facilities

Jade Kake, Te Matapihi, National Māori Housing Advocate

The recent increase in government and relevant examples of purpose- The facility has a roundhouse/ funding for emergency housing and built facilities developed in response ceremonial space, showers and Housing First places, urban marae- to native urban homelessness. ablutions, laundry facilities, a computer based responses such as those rolled This past May–June, Te Matapihi lab, kitchen and food preparation out by Te Puea and others, and the (the independent national Māori areas, counselling and access to health growing role of iwi in the provision of housing advocate) and Ngā Aho (the services, traditional crafts, and homelessness services (including the society of Māori design professionals) employment support onsite. There is recent acquisition of Affinity Services led a three week Indigenous housing also a small shop at reception that sells — now rebranded Kāhui Tū Kaha — by and design study tour through the US jewellery and handicrafts produced by Te Rūnanga o Ngāti Whātua), suggest and Canada. The tour was an residents. Plans are currently underway that purpose-built culturally-based opportunity for our rōpū to learn from to build a residential facility on the emergency, transitional and housing, community and urban adjoining site, to better link in with the supportive housing facilities for Māori development projects undertaken by services currently available onsite. (who are disproportionately other indigenous communities to The new facility will include a mix of represented amongst those inform our projects and policy units to house 100 people, and an art experiencing homelessness and development back home in Aotearoa, gallery, medical clinic and café on the housing stress) will be developed in and included visits to several bottom floor. the near future. The need for culturally purpose-built facilities. informed design guidance is an Case Study: Native American emerging consideration. Case Study: Chief Seattle Club, Connections, Phoenix, Arizona Seattle, Washington Native American Connections (NAC) is With many marae operating as a Chief Seattle Club serves the needs a non-profit dedicated to improving ‘campus’ or village environment with a of homeless Native American and the lives of individuals and families wide variety of services available Alaskan populations in the downtown through Native American culturally onsite, those with the capacity to do Seattle area. The non-profit receives appropriate behavioural health, so may elect to develop purpose-built no government funding and relies on affordable housing, and community facilities in response to local need and contributions from philanthropic development services. Located in the perceived social and cultural sources, including individuals, Phoenix area, NAC has developed, responsibility. Further consideration charities, corporations, and tribes. owns and manages 18 low income will need to be given to how marae The Club has a culturally-based workforce (400 units), transitional (particularly in urban areas and approach to addressing trauma, with (50 units), and homeless (300 units) particularly those with land) wishing to an emphasis on traditional spiritual permanent supportive housing take on this role can be best and healing rituals, including the use projects across the City. Unusually for supported. This may include of sweat lodges. The Club also the United States, this service is not masterplanning in and designing provides navigation services to assist tribally-based but instead targeted at purpose-built facilities, planning for clients to connect with other urban Indigenous peoples sustainable growth, and future- agencies to access housing and other experiencing housing need (regardless proofing these facilities to be able to help. Accessing and interacting with of tribal affiliation). This means they are house different demographic groups a government-provided system of not eligible for specific tribal federal as needs change over time, or be care that has historically failed them funding, and do not limit access to their repurposed if demand reduces. is an ongoing challenge for programs to only Native American For non-urban marae, tangihanga may Indigenous peoples, and direct tenants. They do, however, conduct be an issue to be carefully managed. support and external advocacy is extensive outreach to the Native seen as a key role for Club staff. American population by promoting We can glean further learnings by their services and housing vacancies looking to international precedents in The building — a former hotel — was through native networks, media other settler-colonial nations, such as renovated to develop the four-floor channels, strong presence in the Australia, Canada and the United drop-in facility, with native culture, community, and local events. States. These countries have a longer history and art incorporated into the Native American Connections focuses history of homelessness and design to create a sense of welcome on culturally-based recovery, displacement of Indigenous peoples, and an environment of cultural safety. with traditional healing practices and 20 cultural enhancement activities as well as core and complementary treatments to promote wellness and recovery. Permanent supportive housing in the Housing First model is offered as a solution to chronic homelessness, allowing individuals to live independently but have ready access to on-site services in the event of a relapse, loss of income, and support with ongoing physical and mental health issues and challenges associated with trauma. NAC owns and manages five facilities, ranging from 28 to 82 fully-furnished studio or 1-bedroom single occupancy apartments per site. Facilities vary from site to site but include 24/7 staffing Native American Connections’ Patina Wellness Recovery Center — with a single point of entry ensuring The Talking Circle Room for healing historic trauma safety and security — site housing case management and communal facilities, principles could be developed for developed in Aotearoa soon (in fact, including laundry, communal gardens, emergency, transitional and this is already happening in mental computer rooms, recreational facilities supportive housing typologies. health, including a new residential and television/ game lounges. In This could include residential facilities facility for mental health treatment addition, access to healthy food and an for Māori experiencing chronic planned by Mahitahi Trust in South onsite food bank support the tenants homelessness, and those with other Auckland). Ultimately, marae, with limited or no income. In additional specific needs, such as recovery from iwi/hapū and mataawaka to supporting clients experiencing addictions and alcohol and mental organisations will have their own chronic homelessness, NAC also health treatment. The needs of these understandings of what is required to operates housing units reserved for different groups do and will vary, respond to the needs of whānau and individuals who are disabled due to but there are some commonalities. individuals experiencing housing and serious mental illness, substance or Other groups who may require other crises, and will develop their alcohol abuse, and people living with specific consideration include victims design briefs accordingly. How HIV/AIDS. Native American and perpetrators of domestic architects, researchers and policy- Connections also integrates our violence, rangatahi leaving state care, makers pre-empt and prepare for the behavioural health and substance and released prisoners. Families development of these new facilities abuse recovery services with the experiencing homelessness were not will have an impact on outcomes for supports that our homeless tenants accommodated in the examples our whānau who are seeking to may require. above, and may be better served by remain securely housed, community-based housing models experiencing chronic homelessness, The purpose-built facilities managed (such as papakāinga) as an alternative or struggling with mental health and by both organisations challenge the to social or market rentals. addictions issues. conventional wisdom of ‘pepper potting’ high needs (predominantly An initial set of design principles for poor and disproportionately supportive housing might include: Indigenous) individuals and families, • single point of entry to the introduced into New Zealand policy building or campus through the Department of Māori • all services available onsite Affairs in the 1950s and 1960s. (alongside housing) — including Medium density (of up to four stories) health, education and employment is another commonality, although this seeking is not something Māori communities • a holistic approach to healing that (and New Zealand society more incorporates Indigenous and broadly) have traditionally embraced. Western treatments, and facilities What learnings we adopt and those for participation in culturally-based which we customise or ultimately activities reject will need to be filtered through • kitchen facilities and ability to the lens of our own tikanga and manaaki manuhiri and wider cultural preferences — noting that whānau both are dynamic and able to change. • Māra kai — gardens for food production and connection to By looking to our own cultural values Papatūānuku/mother earth. and tikanga, and through critical Native American Connections’ examination of successful The evidence suggests that purpose- Patina Wellness Recovery Center — international models, design built culturally-based facilities will be The Sweat Lodge in the courtyard of the facility 21 Single Women’s Homelessness in Aotearoa/New Zealand

Angie Cairncross, Communications Coordinator, Community Housing Aotearoa and Paula Lloyd, Manager, Wellington Homeless Women’s Trust

population recorded were female, a total of 19,679. These statistics recorded women and families living in women’s refuges at the time of the census but does not break the severely housing deprived living situations down by gender, so it is difficult to understand the nature of Canadian statistics of women their homelessness. experiencing homelessness show that they have high rates of post-traumatic Joanne Bretherton 4 comments that stress disorder (36 per cent), mental although there is very little research health issues like depression on women’s homelessness in the (50 per cent) and report high rates of United Kingdom (UK) and Europe, sexual exploitation, violence and the indications are that there are assault, which ranged between differences in the paths each 37 per cent and 89 per cent.6 gender takes. Women’s pathways Paula Lloyd, tend to be linked with domestic There is a relationship between Manager, Wellington Homeless Women’s Trust violence, a ‘protection’ by welfare violence and homelessness for systems when they have dependent women. The Canadian experience is There is very little research on children and a greater tendency for that violence is an overwhelming if women’s experience of women to use and exhaust informal not ubiquitous factor in pathways to, homelessness in New Zealand. support as opposed to using and within the experience of There is even less on the experience homelessness services. homelessness for women. The of Māori women, our Pacific sisters experience of intimate partner and other women of colour. Few Bretherton’s UK analysis concluded violence increases one’s risk for services for the homeless prioritise that: homelessness four-fold.7 the needs and experiences of single women at their point of service ‘there is a need to cease a Many of the women ending up delivery. This article looks at the longstanding focus on the streets, homeless in New Zealand do not experience of single homeless homelessness services and qualify for emergency accommodation women in Aotearoa/New Zealand (predominantly) male experience, because they do not have children in and looks at the specific service and to look instead at the more their care. If they can stump up the example of the Wellington nuanced interrelationships money, their main accommodation Homeless Women’s Trust.1 between gender and agency to alternatives are boarding houses that fully understand the nature of offer no support and are far less safe What the Research Says homelessness in Europe.’ and secure than alternative services, Dr Kate Amore 2 measured the say the Salvation Army.8 ‘severely housing deprived’ 3 Sandy Darab and Yvonne Hartman 5 population from Census reviewed the available literature on The Wellington Women’s (Boarding) New Zealand 2013 statistics and this area in Australia for single older House provides low-cost temporary found that Pacific, Māori, or Asian women. It appeared, they say, that housing for up to 16 single women at people are over-represented. Pacific ageing and single status are any one time for around six months. New Zealanders are ten times more compounding factors that place They have seen more, older women likely to be homeless than European non-home owning women at higher coming through their service of late New Zealanders and migrants, risk of homelessness or and more referrals of women with high especially new migrants, are at a inappropriate housing: ‘Our analysis needs, especially mental health issues. particular risk of homelessness. leads us to suggest that women’s traditional roles in society are largely ‘We are struggling to move women The research found that 48 per cent responsible for housing insecurity in into more permanent housing, of the ‘severely housing deprived’ their later years.’ especially older women. Flatmate 22 wanted ads aren’t usually for older, mature women and affordable rentals just don’t seem to be out there at the moment,’ says House Manager Margaret Speirs.

Wellington Homeless Women’s Trust (WHWT) Referrals to the Wellington Homeless Women’s Trust can be quite diverse. Sometimes these referrals come from women transitioning from prison, the hospital or rehab, or from those ‘sleeping rough’ on the streets or in cars. Women referrals may have just arrived in the region after fleeing abuse elsewhere. All of the women arrive with their own story and their own experience of homelessness — and of trauma.

Take Joan* for example. Joan had been living on the street for quite some time. She is an older woman with physical health and mental health issues. She did not trust buildings due to earthquakes and other trauma — so keeping her inside was a key goal.

Located down a nondescript lane in Central Wellington, tucked under a multilevel building, the Wellington Women’s Housing Trust is pretty hard to find.

Everything they do is designed to help the women feel protected, and safe. There are security cameras at the door and inside. They always ask if there is a protection order before anyone can stay there. No males are allowed on the premises and all the women have one common denominator — they just need that ‘stepping stone’ to safer and more secure housing.

The five bedrooms each have double beds and all the furniture needed. A woman can literally arrive with her Photo provided by Claire Aspinall carrier bag and move in. They have a key to their room and it comes with all enter the house and has the ability to streamline the process and make it the linen, bedding, and toiletries. manage herself in the house safely. easier for the women to come into the The Trust will source anything else House criteria have been set up to service. they need. keep everyone in the property safe — and the property itself safe. The main Sena* is a refugee and has been in It is only for single women and objective is to support as many women New Zealand for two years. She was invariably it is full. Nearly half of the as possible by providing a safe and living in Pilmuir House in the Hutt women are between 40 and 70 years comfortable space where they can when Red Cross contacted WHWT old and there is a high rate of Māori focus on a support plan to move on. Manager Paula Lloyd about her. ‘They women (57 per cent). realised Sena was locking herself in The Trust receives referrals from a her room. The Red Cross contacted Because the house is not staffed variety of Wellington-wide agencies. me because where she was staying 24 hours a day, staff need to be Having an established relationship was bringing up trauma from her past confident that a woman is ready to with most of these agencies helps to and this was the reason she was a 23 refugee. Being in a women’s only and Income New Zealand (WINZ) and addressing the issues relating to their house was the only option for her to a number of them have had to stay homelessness, turning their lives feel safe.’ sleeping on the streets for days while around and re-establishing the WINZ processes are worked themselves. The Trust then assists in Originally set up in 2013, WHWT was through. finding each woman safe sustainable the result of several homeless women accommodation. having to spend the night in the There is a skill to engaging people on central police station with nowhere to the street. Asking the right questions, The majority of the women coming go. While the Trust’s preference was keeping yourself safe — it needs a through the service have experienced for emergency housing, budget consistent familiar face. And there are trauma and some have ongoing constraints meant they had to go for many aspects that are specific to threats to their safety. Their time in the the transitional housing option. these women that need to be house is often a time to reflect on The Trust relies on donations for its considered, such as the abuse and their past and become motivated to operation. discrimination they may have had to make the necessary changes to move cope with in their lives that has forward. ‘Not having a government contract caused obstacles to their progress. can be an asset as it allows the Many of the women the Trust works ‘From the beginning to the end flexibility to be responsive,’ says alongside have been invisible for we want to be supporting women Paula. ‘I don’t have to work to most of their lives. to move along to do the best that targets that don’t always make they can.’ sense. I can work where the need is.’ Tenants are given the opportunity to stay for up to three months and Concluding Comments Paula is also involved in advocacy provided with caring support and Although the experience of work on behalf of the women. personal advocacy. This includes New Zealand women who are This can mean supporting women to creating a support plan with each homeless is not well-documented, get emergency housing through Work resident on arrival to assist in there is nevertheless a gendered dimension to their experience of homelessness. All homelessness services need to be cognisant of the different experiences and needs of women who are homeless. * Not her real name.

Endnotes 1. www.homeless.org.nz 2. Amore K 2016, Severe housing deprivation in Aotearoa/New Zealand 2001–2013, He Kainga Oranga/Housing and Health Research Programme, University of Otago, Wellington 3. Severe housing deprivation refers to people living in severely inadequate housing due to a lack of access to minimally adequate housing. This means not being able to access an acceptable dwelling to rent, let alone buy. 4. Bretherton J 2017, Reconsidering Gender in Homelessness, http://www.feantsaresearch.org/ download/ feantsa-ejh-11-1_a1-v0459139412696044 92255.pdf 5. Darab S and Hartman Y 2013, Understanding Single Older Women’s Invisibility in Housing Issues in Australia, Housing, Theory and Society, vol.30, no.4. 6. Homes for Women 2013, retrieved from: http://ywcacanada.ca/data/documents/ 00000382.pdf, p.5. 7. Yeo S, Ratnam C, Paradis E, Oudshoorn A, Nessa B, Mosher J, Macphail S, Greene S, Gaetz S, Forchuk, Casimir C, Buccieri K, Bonnycastle M, Berman H, Arsenault J, Amponash A, Aguila K 2015, A Framework for Ending Women’s And Girls’ Homelessness, retrieved from www.homelesshub.ca 8. The Salvation Army 2017, A Safe Place to Start Again, retrieved 29/8/2017 from Photo provided by Brook Turner, Head of Community Services Development, VisionWest Community Trust www.salvationarmy.org.nz 24 Chapter 2: Housing First Housing First Auckland: A Collective Impact Approach to Ending Chronic Homelessness in New Zealand’s Largest City

Housing First Auckland Backbone Team

Introduction Background leading to an end to homelessness in Housing First is a well-researched Prior to the RFP process, most of the the city. This type of Collective Impact model with an ever-growing body of organisations had been meeting for a approach was an inspiration, as is evidence showing its effectiveness in year as part of a National Housing First The People’s Project, a successful ending homelessness. In particular, Community of Practice. It was from this Housing First collaboration in it helps promote housing stability, Community of Practice, and a desire to Hamilton, New Zealand. reduce service use and improve learn how to effectively end quality of life.1 It recognises that homelessness in New Zealand, that On returning to New Zealand, all agreed housing is a human right and CEOs and staff from Auckland City that operating the Housing First prioritises quickly moving people Mission, Lifewise, Wise Group, demonstration pilot through a into permanent housing, and then VisionWest and Community Housing Collective Impact model would have the providing flexible, community-based Aotearoa (CHA) decided to attend the greatest positive impact on addressing services to support people’s needs. Canadian Alliance to End homelessness in Auckland over the next The overarching goal of the Housing Homelessness conference in Canada in two years. The organisations quickly First philosophy is to end late 2016. Staff from Ministry for Social developed a joint proposal and work homelessness — not to manage it. Development (MSD) and Auckland plan for additional funding to support Council also joined the New Zealand the implementation of a Collective In late 2016, in response to growing contingent attending the conference. Impact approach. MSD and Auckland public concern and sector activity, Council agreed to fund it. Wise Group the New Zealand Government The conference had a significant focus was selected to manage the backbone invited providers with a track record on Housing First including site visits, support for the Housing First Auckland in working with homelessness to one-on-one sessions with experts in collective for the demonstration period. submit a proposal for a two-year the field and workshops. It was a Housing First demonstration project unique and powerful experience which A Container for Change in four parts of Auckland; the City deepened relationships and offered an The Collective Impact model, Centre, Central, West and South opportunity for the New Zealand developed in Canada, has key Auckland. group to consider new ways of foundations including leadership, working. One theme that came community engagement, learning, Four Housing First programmes through strongly was that in order to high leverage activities and shared were funded to provide 472 Housing end homelessness, the organisations aspirations. In addition, a ‘container First places for individuals and needed to work together. for change’, formerly known as the families experiencing chronic ‘backbone organisation’, is considered homelessness. An additional 100 Over the course of the conference it essential for the success of Collective places were allocated to Auckland in became clear that by working Impact initiatives, as noted in Cabaj September 2017. collaboratively, the organisations and Weaver’s article:2 • Auckland City Mission and Lifewise could make a much greater impact on in partnership were selected to homelessness in Auckland than by ‘Creating and managing collective work in the City Centre. working separately on our individual impact requires a separate • Kāhui Tū Kaha (formerly Affinity contracts. The group had also visited organisation and staff with a very Services) was selected to work in Calgary where multiple providers are specific set of skills to serve as the West and Central Auckland. using the principles of Housing First backbone for the entire initiative. • VisionWest was also selected to to take a systems approach to ending Coordination takes time, and none work in West Auckland. homelessness. Rather than focusing of the participating organisations • LinkPeople was selected to work in attention solely on the performance of has any to spare. The expectation South Auckland. individual providers, their interest is that collaboration can occur on how their combined efforts are without a supporting infrastructure

25 for a one-hour question and answer session. • Developing a suite of learning module videos for Housing First services. • Establishing five workstreams to help deliver the work plan, share learning and jointly problem solve. The workstreams are: Frontline Practice, Kaupapa Māori, Data and Evaluation, Housing and Communication.

A key component of Collective Impact Leaders from the Housing First Auckland collective with Dr Sam Tsemberis (the founder of Housing First), is strategic learning and the left to right: Rami Alrudaini, LinkPeople; Barbara Browne, Kāhui Tū Kaha; Julie Nelson, Wise Group; development of shared measurement Dr Sam Tsemberis; Moira Lawler, Lifewise; Chris Farrelly, Auckland City Mission systems that are part of a larger system of learning and evaluation. is one of the most frequent reasons achieve in its first few years. The The backbone team is: why it fails.’ collective set the goal that: • establishing an evaluation Homelessness in Auckland would be reference group 3 and are The backbone team’s responsibilities rare, brief and non-recurring. developing an evaluation include providing secretariat for the framework with a central focus on Collective and its governance; project To keep the work plan moving understanding how Housing First leadership and project management; forward, the collective’s leadership can be optimised for Māori strategic relationships; team meets one to two times a month • implementing the same client communications; processes and to share information, manage external management system across all protocols for data definitions, stakeholder relationships and make services (Recordbase) and collection and reporting; evaluation decisions. Occasionally members of consistent approaches to data and research; facilitating training, the MSD’s social housing team and collection. forums, resources and work streams; Auckland Council also attend. and undertaking systems mapping Housing First Auckland is the start of a alongside Auckland’s first point-in- Since March 2017, the backbone much broader movement to end time by-name count of people team have supported the homelessness. The backbone team is experiencing chronic homelessness. implementation of Housing First also: across Auckland by: • establishing a governance group Collective Impact in Practice • Hosting Dr Sam Tsemberis (the chaired by the Mayor of Auckland Co-creating a shared purpose for the developer of Housing First) for a with senior representation from Collective was one of the first week-long training workshop for various government agencies and priorities. A half-day workshop was frontline staff. At six-months a local stakeholders, including attended by chief executives, follow-up workshop was held to health, community, social, business managers and service leaders to share early learnings, challenges and law enforcement determine what the Collective and best practice. Sam Tsemberis • designing a unifying brand and believed in, stood for, and would joined again via video conference communication channels, including a website and social media for transparency and wider engagement with the public and ӕ‰:ĄKČKĄ EVVAALUAATTIONN Ministry of Developpment media • FIVE WORK developing a Housing First 101 SERVICES STREAMS video to educate the public and

FUNDERS media about Housing First.

Auckland City Couuncil

Kaupapa Maori One of the key strengths of working together is the ability to report four ryoMa Vision WeWest cernanveGo Practtice and Housing Group Chair rT aininga providers’ results collectively. The first LinkPeople New Zealand Police COLLECTIVE RESULTS results were reported to MSD in May

Oranga Lifewise Tamariki Comuunication Data and 2017 — two months after launching, Evaluation

ducklanA Housinng and every month thereafter. In July, a City Mission New Zealand BACKBONE TEAM results page was added to the of ryMinist of veGo rnment SHHARED LEARNING, genciesA ɽȈȶˎǹ ʰ Social TROOUBLE-SHOOOTTING, veDe lopmennt CREAATTIVITY Collective’s website for anyone

dcklanAu Department of interested in following its progress. Business Corrections OUR GOALA Iwi DHBs MEASUREMENT, Homelessnesss in SECTOR DEVELOPMENT, Auckland willl be TRAACCKING PROGRESS are, brier f annd From the outset, and despite the non-recurrinng challenges of a shortage of housing stock in Auckland, providers in the 26 Collective have achieved steady, countries, there are few permanent others considering implementing positive results month-on-month. housing and support options Housing First. available other than Housing First. A summary of the overall results from Planning for Auckland’s first point-in- May to August 2017 shows consistent We hope that the Auckland time, by-name count of chronic increases in the number of people experience will inform decision- homelessness is now underway, with a being housed and supported each making about the kinds of support dedicated project manager recently month: options and system changes required appointed to lead this piece of work. • May 2017: 64 people including to effectively meet the needs of Mapping the system sits alongside adults and families with children, different groups. Most housing has this. This work will help us better supported into 31 households.4 been sourced from the private rental understand the landscape in which • June 2017: 96 people including market. To date, this reflects results of we are all operating so that we can adults and families with children, The People’s Project in Hamilton. forge stronger relationships, influence supported into 64 households. Housing First has a lot to offer disruptive systems change, get • July 2017: 150 people including landlords, including guaranteed rent, people access to the wrap-around adults and families with children, free tenancy management and services and supports they need, supported into 93 households. knowing tenants well through where they need them and when they • August 2017: 190 people intensive case management. need them and, ultimately, prevent including adults and families with people from becoming homeless. children, supported into 126 Early Learnings households. Capturing, sharing and using the Together, Housing First Auckland will Collective’s learnings from the outset do whatever it takes to end is one of the key aims of the homelessness in Auckland. We have evaluation. combined our wisdom and experience to create a solution for a An emerging learning theme is the wicked issue.6 Through our collective time it takes to establish not only impact approach, we are working with shared protocols and processes, sector and community leaders to but also the relationships and trust drive new thinking for bold initiatives which are essential for a successful to end homelessness. collective. For more information about Housing A monthly infographic also provides a For example, establishing the First Auckland, please visit: more detailed breakdown of the mechanisms to work collectively www.housingfirst.co.nz. You can also overall results by location, client generally takes longer and requires follow the Collective on social media profile and housing type.5 more time to work through to get channels Facebook and Twitter: right, than in a service working alone. /housingfirstnz

For example, the organisations had to Endnotes establish consistent contract and data 1. Tsemberis S J 2010, Housing First: the definitions, and collection protocols Pathways model to end homelessness for across the Collective before it could people with mental health and substance use disorders / Sam Tsemberis. provide consistent and timely 2. Cabaj M and Weaver L 2016, Collective reporting of collective results. Impact 3.0: An Evolving Framework for Building into contracts the Community Change, Tamarack Institute, requirement for funded agencies to Waterloo Ontario. develop agreed definitions and data 3. Includes MSD, University of Otago, Chronic homelessness in Auckland collection processes — including an Te Matapihi, Independent Māori Statutory Board and Auckland Council. looks different depending on the establishment period for this to occur 4. The collective considers each Housing region. Single males have — would recognise the time and First outcome as representing a represented more than half of the resources required. household. adults housed in the first six months. 5. This article was submitted on This is not unexpected and reflects The Collective will continue to 22 September, two weeks before the the profile of Housing First services identify, explore and share emerging Collective’s September results were due to be published, therefore the August results around the world. issues and solutions as part of the were the most current results at the time of overall evaluation of Housing First submitting this article. Housing First was originally designed Auckland. 6. A wicked issue is ‘a problem that is difficult for individuals experiencing chronic or impossible to solve because of homelessness and the evidence What’s Next? incomplete, contradictory and changing requirements that are often difficult to for effectiveness comes from There is immense interest in Housing recognise…, because of complex implementation with this group. First Auckland from around interdependencies, the effort to solve one Part of the challenge in Auckland is New Zealand as other centres look aspect of a wicked problem may reveal or create other problems. ... [wicked that providers are engaging with for effective solutions. The evaluation problems] hardly ever sit conveniently many families experiencing of the two-year demonstration within the responsibility of any one homelessness and, unlike other project will be a valuable resource for organisation.’ (Denning, 2011) 27 Responding to Homelessness in Aotearoa New Zealand Through Home-grown Best Practice

Stephanie McIntyre, Director, DCM1 Wellington

DCM has been working in the city of chronically homeless a place to live, reflects the journey we embark on Wellington since 1969 to ‘focus on the on a permanent basis, without making together as they become settled, needs of, and to help empower, those them pass any tests, attend stable and well. The taumai we marginalised in the city.’ 2 DCM has programmes, or fill out forms, then journey with are people whom the adopted the byline ‘together we can work with them on the health care, New Zealand Productivity end homelessness in Wellington’ therapy, counselling and more that Commission has identified as which reflects our current focus on the they may need.’ 4 Quadrant D, people with high needs of one key marginalised group complexity of need and low capacity – people experiencing homelessness, With these underpinnings, our DCM to coordinate services by themselves. or who are at risk of homelessness. practice includes a commitment to ‘Current outcomes for the To support people on their journey build six key capacities in our team: disadvantaged New Zealanders who towards sustainable housing and • evidence-informed practice fall in quadrant D are not good — and hauora we have grappled hard with • strengths-based practice in turn these poor outcomes have our practice model, reflecting as a • safe practice large negative impacts across team on what makes for ‘best practice’ • cultural practice society.’ 6 The specific high and in our context. In Aotearoa • collaborative practice complex needs with which DCM is New Zealand, our sector would • reflective practice. experienced include homelessness, benefit from developing a shared multiple evictions from housing, agreement as to what constitutes best Evidence-informed Practice mental health, alcohol and drug practice when working to end At DCM we collect data consistent dependence, criminal history, trauma, homelessness. with the official New Zealand debt and financial literacy issues and definition of homelessness 5 tracking disconnection from whānau. At DCM, we draw on principles closely movements between rough derived from international sources sleeping, couch surfing, moves in and Strengths-based Practice and set out in Wellington’s Te Mahana out of shelters etc. This means DCM In our engagement, we invite taumai Strategy to End Homelessness in has a robust data set and evidence to ‘reflect on possibilities instead of Wellington. This calls for collaborative base for people who use our services. intractable problems’ 7 and to set their work at three levels: stopping Unsurprisingly, our data supports the own goals. We call this planning homelessness happening, dealing evidence that homelessness is getting process Ki Te Hoe (‘pick up the with it quickly when people become worse. paddle’) — we encourage taumai to homeless, and stopping people take up the challenge of picking up becoming homeless again. We share Over the last two years, the number the paddle. If they are prepared to the aspiration that homelessness must of unique individuals coming to pick up the paddle and get in to the become ‘rare, brief and non- DCM for support in a year has waka, we will do the same, becoming recurring.’ 3 increased by 19 per cent, from 860 a part of their journey to greater people in the year to 30 June 2015, wellbeing or hauora (physically, DCM’s practice is anchored in a to 1,023 in the year to 30 June 2017. spiritually, mentally and socially). Housing First approach that places Over the last five years, the overall Developed in-house in conjunction emphasis on the importance of number of people experiencing all with DCM’s cultural adviser, the DCM moving people from homelessness forms of homelessness has team drew on their experience of directly into permanent housing, and increased by 65 per cent. The Te Whare Tapa Whā and the United providing wrap-around support to increase in the numbers of people Kingdom’s Outcomes Star to develop ensure people sustain housing. coming to DCM who are ‘without Ki Te Hoe as a unique, culturally We embrace the Pathways to Housing shelter’ (sleeping rough or living in appropriate planning tool. challenge to focus efforts on housing cars and sheds) is most concerning. those who are chronically homeless, Over the last five years this number The strengths-based outcomes for the supporting Dr Sam Tsemberis’ view has doubled from 100 people per taumai we journey with at DCM that all homeless people are year to 211 people per year. describe a life of wellness across a members of the community with a number of domains — housing, basic right to a home. We tautoko his At DCM, we call the people we work income, health (including alcohol and statement that: ‘the idea is to give the with taumai, meaning to settle. This drug use), interactions with police and 28 the justice system, life skills, whānau Our building in Wellington also evictions and have exhausted and relationships, and wairua. Some houses our key partner agency, opportunities to attend alcohol examples of the aspirations of taumai Kahungunu Whānau Services with rehabilitation services, Wellington has may include: whom we have a formal partnership; explored providing a unique and • they feel connected to whānau together we offer people innovative ‘harm reduction’ group and have supportive relationships experiencing chronic homelessness, housing option targeted specifically at • they experience wellbeing, and and frequently mental illness and this group. Overseas, this form of connectedness in their identity addictions, support to access and accommodation was referred to as • they are sustainably and stably sustain housing and achieve ‘wet housing’ but it is more useful to housed wellbeing. look at the exemplar best practice • they experience wellbeing in their models, like 1811 Eastlake in Seattle, homes with adequate resources, Te Korowai also includes DCM’s that sit firmly under the ‘Housing First’ furniture and utilities, and are able Te Hāpai service (a safe space where umbrella. to care for their home, and be a people have opportunities to good tenant and neighbour participate in conversation, Due to New Zealand’s affordable • they are able to live adequately on programmes and support to housing crisis there are lengthy delays their income and manage debt, reconnect with themselves, their in accessing permanent without dependency on food whānau and their cultural roots), the accommodation. The implementation banks or begging DCM Dental Service, two Te Aro of best practice must be underpinned • they live safely with no interactions Health Centre health rooms (a primary by a significant and rapid growth in with police or the justice system. health clinic with a strong focus on affordable, specifically rental housing. providing outreach services to However, New Zealand is now Cultural Practice homeless people) and other reactively growing our A high proportion of the people collaborations and partnerships. emergency/transitional housing experiencing homelessness or at risk supply. This compromises a best of homelessness are Māori, and Māori Collaboration must go well beyond practice approach to ending is the largest ethnic group DCM works community agencies’ relationships to homelessness and risks perpetuating with who are experiencing include: the ‘management’ of homelessness. homelessness. Last year 47 per cent • collaboration with government While there will remain a need for of the people who came to DCM for departments emergency housing, best practice support were Māori. More than half of • commitment to the three-pronged requires that resources be directed them were homeless in the physical approach described above: towards growing affordable, sense, but many are also stopping the flow of people into permanent accommodation and disconnected from their roots.8 homelessness providing wrap-around services to • provision of realistic resources to support people to sustain housing. DCM has a holistic approach; we ensure rapid housing/rehousing explicitly embrace being whānau, becomes possible and the right Endnotes manaakitanga and working in ways level of wrap-around support to 1. Established in 1969, DCM was known which enhance mana. Taking our lead sustain tenancies, and preventing firstly as Inner City Ministry, later as from our Māori staff and our cultural homelessness re-occurring as a Downtown Community Ministry and more adviser, DCM has developed a result of eviction, the loss of recently as DCM. cultural competency framework in- housing or any other reason. 2. DCM Constitution. house; we call this our manaakitanga 3. Western Massachusetts Opening Doors: A baseline. Team training is delivered The Significant Role of collective impact framework to prevent and end homelessness, 2015, p.3. fortnightly by DCM’s cultural adviser. Housing in Best Practice http://westernmasshousingfirst.org/ Like Tsemberis, DCM focuses on wp-content/uploads/2015/06/Western-MA- Our experience of working with Māori those experiencing chronic Opening-Doors-_Final-June30-2015.pdf tells us that Aotearoa must develop homelessness. Recognising that there 4. The term Housing First was coined by culturally appropriate models of is a dearth of options, and that Dr Sam Tsemberis; clinical psychologist housing that are unique to our different responses are needed to and CEO of Pathways to Housing, New York City. See Tsemberis S 2010, Housing New Zealand context. Discussion in meet the needs of different groups, First: The Pathways Model to End this arena has previously been DCM has also publicly called for a Homelessness for People with Mental Illness focused around home ownership diversification of housing options. and Addiction. options, but it is well overdue that we DCM has been a long-time advocate 5. Developed by Statistics New Zealand, explore different models for rental of harm reduction accommodation for the Ministry of Social Development and accommodation that recognise the a small but significant group of Housing New Zealand Corporation in 2009. cultural requirement to provide New Zealanders whose long-term manaakitanga and hospitality and/or homelessness is linked to their 6. New Zealand Productivity Commission More effective social services, September provide for more communal living alcohol dependence and other 2015 situations. substance use. 7. McCormack J 2007, Recovery and Strengths Based Practice: SRN Discussion Collaborative Practice Accessing safe, affordable Paper Series: Paper 6, Glasgow, Scottish DCM sits within a vibrant hub, accommodation is tough for many Recovery Network. Te Korowai Nui o Te Whānau (‘the people. But for those individuals who 8. The second largest ethnic group, Pākehā, large cloak that envelops the family’). have already been through multiple comprised 33 per cent. 29 One Housing First to Rule Them All? Clare Aspinall, Jenny Ombler, Dr Nevil Pierse, Professor Philippa Howden Chapman

New Zealand’s use of Housing First is principles and practice are now make about the support they rapidly unfolding. He Kainga Oranga evident in New Zealand with advocacy require is respected in partnership with the People’s groups from the social and health Project and Waikato University have sectors, iwi and community housing 4. housing and support are established a five year research organisations and central government separated so one continues programme on the delivery and agencies using the language and independently of the other outcomes achieved by Housing First developing services to address and the decisions made about in the New Zealand context. The homelessness based on the ethos of one does not impact negatively research is funded by a grant from the Housing First. on access to or the provision Ministry of Business, Innovation and of the other Employment. The ethos or principles of Housing First originate from a number of 5. recovery and community A study within this wider programme places. For example, consumer integration is important, so will explore how the principles of choice, recovery and the right to services should be offered for Housing First are put into practice to housing from the patient rights and as long and at the intensity they address the needs of those who are human rights based movements, are required by the person homeless in the New Zealand context. harm minimisation from HIV, and using the service.4 We will explore this from the alcohol and drug addiction practices. perspective of service providers These were combined to create the Adapting for Context implementing Housing First services, Pathways to Housing model to International studies on the adoption and people working in government address long-term homelessness in and early implementation of Housing and community organisations with an those with mental illness and alcohol First highlight how there is a need to interest, experience and knowledge in and addiction issues in the United balance adherence to the principles addressing homelessness. The goal of States.3 However, as the Pathways to of Housing First with the needs of the our research is to look at the use of Housing model of Housing First has local population and the specific Housing First within the context of travelled across countries, regions context and setting in which the New Zealand’s welfare policies and and cities, it has been adapted to intervention is put into place. This the service delivery mechanisms for various needs and contexts. balance is no small task and has these policies and Te Tiriti O Waitangi. resulted in a variety of policy and The research will take approximately What is meant by Housing First and practices based on the principles of three years to complete. what a Housing First service looks like Housing First across different in terms of an operational model of countries. Services based on the core Housing First Internationally service delivery varies in the principles incorporate a range of Over the past decade the international literature. There is no service designs and delivery conversation between community and ‘one Housing First to rule them all’. mechanisms and variations include government agencies at the national the intensity of support provided and local levels in relation to Housing First is broadly defined as: (assertive community treatment, homelessness has evolved. It is no intensive case management and longer widely accepted that the 1. housing is provided as a right and critical time intervention) and the efforts of community organisations based on the same rights and types and configuration of housing offering shelters, emergency responsibilities as other tenants (private and social, scattered site, accommodation and transitional congregated, single site options).5, 6 housing is sufficient to meet the 2. support is based on a harm complex needs of those who have reduction philosophy and without Specific service design and delivery been homeless for long periods of the prerequisite of treatment for has to be adapted to the local time. Research that shows positive health issues or abstinence from available resource and to meet the housing retention outcomes and alcohol or drugs different needs and characteristics of improved health and social outcomes people who are homeless. In Canada from the implementation of Housing 3. the type of support provided is led support services were designed to First internationally has influenced this and directed by the person using meet the needs of Indigenous groups change.1, 2 Housing First’s philosophy, the service and the decisions they and Indigenous knowledge and 30 models of health and wellbeing were homelessness and the degree of in short supply as the private used to develop and design culturally alignment, coordination and housing market has failed to address appropriate services but the ‘legacy of collaboration that is required the housing needs of all local colonial landscapes’ meant a between agencies at national, New Zealanders and it is estimated lack of culturally appropriate models regional and organisational levels to that an additional 2,500 social of housing were available.7 This is be able to provide an adequate houses are required to be built obviously critical to New Zealand as supply of permanent housing and across the social, iwi and community services will need to be designed by support to meet the needs of people housing sectors each year for the Māori organisations working to who are homeless. next decade, to ensure all address homelessness, as well as New Zealanders are well housed.13 non-Māori organisations who work International studies also highlight with Māori people who are homeless. the need for strong collaboration Endnotes and coordination between the 1. Woodhall-Melnik J and Dunn J 2016, A Warnings agencies delivering services at the systematic review of outcomes associated Caution is sounded in the literature local level, and the importance of with participation in Housing First programs, Housing Studies, vol.31, no.3, about the pitfalls of translating the good leadership and having staff pp.287–304, DOI: principles of Housing First into skilled at implementing services in 10.1080/02673037.2015.1080816. policy and practice. As with any accordance with the choices of 2. Raitakari S and Juhila K 2015, Housing intervention the supply of adequate people who are homeless, the First Literature: Different Orientations and resources is required for principles of harm minimisation, Political-Practical Arguments, European organisations that are implementing recovery and community Journal of Homelessness, vol.9, no. 1, June. Housing First to be able to design integration.10 The process of 3. Padgett D, Henwood B, Tsemberis S 2016, and deliver services that are effective balancing these multiple factors to Ending Homelessness, Transforming Systems, Changing Lives, Oxford University in achieving positive long-term deliver Housing First services is Press, New York. housing, health and social outcomes. particularly challenging in the early 4. Pleace N and Bretherton J 2013, The Case adoption and implementation for Housing First in the European Union: In countries where the resources stage of delivery. A Critical Evaluation of Concerns about were not provided by government Effectiveness, European Journal of agencies to implement Housing First New Zealand groups and Homelessness, vol.7, no.2, December. policies according to the principles organisations working to address 5. Verdouw J and Habibis D 2017, Housing of Housing First, services did not homelessness have been First programs in congregate-site facilities: can one size fit all? Housing Studies, achieve positive outcomes. In advocating for a national strategy DOI: 10.1080/02673037.2017.1346192 Budapest this occurred due to the to end homelessness and the use 6. Nelson G, Stefacic A, Rae R, Townley G, lack of a centralised welfare system of the principles of Housing First Tsemberis S, MacNaughton E, Aubry T, or available resources from the for years and this is reflected in Distasio J, Hurtubise R, Patterson M, government to be able to subsidise various New Zealand documents Stergiopoulos V, Piat M, Goering P 2014, housing costs which are essential to and reports.11, 12 Early Implementation Evaluation of a multi-site housing first intervention for implementing the key principles of homeless people with mental illness: A obtaining permanent and secure The People’s Project in Hamilton and missed methods approach, Evaluation and housing. The programme was not a number of other organisations Program Planning, vol.43, pp.16–26. able to provide the intensity of already working with people who are 7. Alaazi D, Masuda J, Evans J, Distasio J support that was required by the homeless had already begun to 2015, Therapeutic landscapes of home: people using the service either, as adopt the principles of Housing First Exploring Indigenous peoples’ experiences of a housing first intervention staff delivering the service had to do and change their service designs to in Winnipeg, Social Science and Medicine, so in addition to their usual incorporate them into practice. no.147, pp.30–37. workload as no funding was These efforts have been boosted 8. Busch-Geertsema V 2014, Housing First available to pay for additional staff.8 under the Government’s Social Europe-Results of a European Social Investment Approach and the Experimentation Project, European Journal In Australia, the early trial of Housing ‘Delivering Better Public Services of Homelessness, vol.8, no.1, August. First failed to be translated from Goals’ which have included Housing 9. Parsell C, Jones A, Head B 2013, Policies and programs to end homelessness in policy to practice due to a lack of First as a targeted initiative under the Australia: Learning from international political buy in and a lack of Better Access to Social Housing practice, International Journal of Social adequate government funding for Results Action Plan. Housing First Welfare, no.22, pp.186–194. services to be able to provide the services are being partially funded 10. Nelson et al 2014 op cit. essential permanent housing through Ministry of Social 11. Final Report of the Cross Party Inquiry on options and the level of support Development contracts for Homelessness 2016, Ending Homelessness required to implement Housing First 2017–2019. Providers delivering in New Zealand, Parliament Buildings, programmes.9 services within this plan are at a Wellington. range of stages in adopting and 12. Richards S 2009, Homelessness in International studies from North implementing the principles of Aotearoa: Issues and Recommendations. http://nzceh.org.nz/about/Publications/ America, Europe and Australia Housing First into practice. homelessness_in_aotearoa.pdf highlight common issues and 13. Johnson A 2017, TAKING STOCK: The challenges to implementing Housing The implementation of Housing First Demand for Social Housing in New Zealand, First programmes. These are in part comes at a time when the availability The Salvation Army Social Policy and due the complex nature of of permanent affordable housing is Parliamentary Unit, Auckland. 31 Auckland Council’s Role in Addressing Homelessness The Community Empowerment Unit and Community and Social Policy Teams, Auckland Council

Auckland is New Zealand’s largest city families (43 per cent) are the most brief and non-recurring. There was with a population of just over affected groups. Pacific people are commitment to develop a cross- 1.6 million. Auckland seeks to be a ten times, and Māori five times more sectoral regional strategy to address world class, inclusive city that likely than Europeans to be homelessness. celebrates its unique Māori culture homeless. Other groups who are and rich diversity. It is an attractive affected include rainbow youth, At the meeting, Councillor Cathy place to live, welcoming around people with mental health problems, Casey, a long-time advocate for 45,000 new Aucklanders each year. those who have experienced family addressing homelessness issues said violence or been in state care, and Auckland Council should be proud of At the same time, rapid population inmates on release from prison. the work it is doing. growth presents many challenges including a major housing shortage Homelessness is a complex issue. ‘This council has placed homelessness as population growth exceeds It results from multi-layered structural high on its agenda and continues to housing supply and increases and individual factors including work on ways it can support solutions pressure on infrastructure. Housing national policy settings and economic to this growing need. affordability, for rent or purchase, is conditions, immigration, access to declining, and there is significant health and social services, ‘We have agreed to up our game with unmet demand for social, affordable discrimination, family violence, a regional strategy for addressing and emergency housing. employment and poor health. homelessness in Auckland and will be The housing market is also a key a strong voice advocating for the Homelessness is a growing reality in driver with high levels of unmet government to do more to meet its Auckland for many individuals and demand for social and affordable obligations to some of its most families, including those in housing. This is highlighted by recent vulnerable citizens,’ she said. employment. estimates that the New Zealand Government will spend $50 million This decision builds on current activity Statistics New Zealand’s definition of nationally on emergency housing and will help to strengthen cross- homelessness includes those (such as motels) in 12 months. sectoral collaboration and leverage sleeping rough, in temporary investment across the sector. accommodation, sharing temporarily As housing supply pressures increase, Auckland’s 30 year spatial plan, The or living in uninhabitable dwellings. people with fewer risk factors face Auckland Plan, has largely guided Between the 2006 and the 2013 homelessness. A single risk factor or activity to date and includes priorities census the level of homelessness event, such as a job loss, illness, the and targets relating to affordable across the Auckland region increased end of a relationship or debt, can be housing and homelessness. by 26 per cent. Based on the average the trigger. The housing shortage increase between censuses, and means that people endure An Insight into the Experience excluding all other factors, homelessness more often and for of Rough Sleeping in Central homelessness could stand at 23,409 longer, and achieving sustainable Auckland in 2017 and 26,522 by 2021. housing can be difficult. In January 2015, Auckland Council along with Auckland City Mission, Auckland City Mission’s 2016 annual Policy Position on Council’s Lifewise and Thinkplace completed a street count of rough sleepers within Role in Homelessness research project on the experience of three kilometres of the Sky Tower, Auckland Council recognised the rough sleeping in central Auckland. found 177 and a further 51 in need to determine its role and The research revealed insights from emergency accommodation or position in addressing homelessness, both people who had first-hand hospital who would otherwise have including emergency housing. experience of sleeping rough as well been on the street. This was an annual as from members of the public. increase of over 50 per cent. In August 2017, the Council’s Environment and Community The research identified many issues, Nationally, low-income households, Committee resolved to take a particularly in relation to safety and children and young people stronger and more aspirational wellbeing, and how access to health (51 per cent), and sole parent approach where homelessness is rare, and social services could be made 32 easier. The research also drew emergency housing, homelessness people who are sleeping rough. attention to the ways in which the lives and rough sleeping responses across The much needed refurbishment of those who sleep rough intersect Auckland. Response initiatives include will be complete by mid-2018. with others who use public spaces the regional outreach services around central Auckland. operated by the Auckland City Auckland Council’s investment to Mission and the Salvation Army address homelessness continues in Auckland Council Steps up Waitakere in west Auckland; the 2017 with the Mayoral Proposal in the Response to Homelessness development of a homelessness Annual Budget 2017/2018, which In March 2017, the Ministry of Social services website; and enhanced prioritised $500,000 to promote Development (MSD) made funding coordination of the emergency collaboration between agencies available for Housing First in housing sector. across the sector to address chronic Auckland. ‘Housing First’ is founded homelessness. on the principle that permanent, Enhancing the city centre’s public secure, safe housing is a basic human amenities, including shower and toilet A Coordinated Multi-agency right for all. The model recognises provision, has the potential to Response that it is easier for people to address considerably enhance dignity and At present, Auckland Council issues such as mental health and wellbeing for the rough sleeping convenes the multi-agency Rough substance abuse once they are community. The council’s current Sleeping Steering Group which meets housed. The priority is to quickly approach to the provision of public monthly to circuit-break issues move people into appropriate amenities is being investigated to relating to rough sleeping. The focus housing and then immediately identify opportunities to enhance of this group is to provide strategic provide wrap-around services to delivery and outcomes for all city responses to rough sleeping, support their success. centre users. originally in the city centre. The development of the city centre Auckland Mayor Phil Goff participated In June 2016, Te Puea Marae in south Housing First programme was a main in the annual Lifewise ‘Big Sleepout’ Auckland first opened its doors to goal of this group and key members and says homelessness is a growing homeless whanau for 12 weeks were part of the project design group. blight on our city with increasing during the winter months and As levels of rough sleeping have numbers of people sleeping rough in generated regional and national increased across the region, the the city centre and suburbs. He says it debate about the issue of group has taken a wider geographical represents a huge social and human homelessness. Auckland Council focus. Additional support is provided cost which needs to be addressed. provided financial and in-kind on the ground to connect different support. parts of the sector, enhance ‘The council is working with central collaboration and coordinate delivery government and non-government In August 2016, the council agreed of enhanced outcomes for homeless. organisations to progress a Housing a contribution of $2 million to First policy. This aims to first house upgrade the emergency Homelessness is a complex issue the homeless and to also provide accommodation provided at James which requires a planned and support services to tackle the cause Liston Hostel. This facility provides coordinated cross-sectoral response. which led to them being homeless,’ emergency accommodation for Development and implementation of says Mayor Goff. the cross-sectoral homelessness strategy will require a coordinated Auckland Council has contributed approach involving central an additional $1 million to support government, local government, delivery of the Housing First non-government organisations, Auckland pilot. It is operated philanthropic organisations and through a collective of five the private sector. The strategy community social housing will focus on responding to the providers, including: Lifewise, immediate needs of homeless Auckland City Mission, Kāhui Tū people, along with ending and Kaha (formerly Affinity Services), preventing all forms of Link People and Vision West. homelessness.

The pilot has funding for two years. Please forward any questions or The initiative aims to support 572 enquiries to: chronically homeless people into Amanda Kelly, Specialist Advisor, permanent accommodation and to Community Empowerment Unit, sustain their tenancy. Their vision is Arts, Community and Events to make homelessness rare, brief Mobile 021 805367 and nonrecurring. [email protected] Amy Donovan, Specialist Advisor, In addition under the long-term Community Empowerment Unit, Plan 2015–2025, the governing Arts, Community and Events body approved $830,000 funding Mobile 021 837 495 over a three year period for Waterfall by Fraser Hoffe [email protected] 33 Housing First Auckland City Centre Programme: Responsiveness to Māori Sophia Beaton (Kāi Tahu, Kāti Mamoe) and Sarah Greenaway

Introduction Lessons from the Canadian experience well as the values and principles Housing First programmes have been suggest that in order to succeed, underpinning this approach. Lifewise implemented in many countries across Housing First needs to be delivered in had funding from Foundation North’s the world. Housing First, which culturally appropriate ways as well as to Catalysts for Change programme provides rapid access to permanent challenge the legacy of colonisation which meant we had the resources to housing with flexible community- including the structural/systemic barriers employ a service design lead, an based supports, works better than that contribute to homelessness. internal evaluator and to establish a traditional approaches for both Project Working Group (which Indigenous and non-Indigenous In this paper we describe how the included four people with lived peoples who are experiencing chronic Housing First model has been experience of homelessness plus homelessness.1, 2 However, Housing intentionally adapted for the representatives from government, First needs to be adapted in order to Auckland city centre where almost health and housing agencies). The achieve optimal results for Indigenous 60 per cent of people experiencing design phase was led by the Lifewise peoples. For example, when Housing chronic 6 homelessness are Māori. We Practice and Development Manager. First was implemented in Winnipeg, describe the methods we used, what Canada (where 70 per cent of people we learnt along the way and some of Design Methodology experiencing homelessness were the initial programme developments. Human-centred design involves end Indigenous) both the programme and users as experts of their own participants faced systemic barriers. Background experience. It reflects a fundamental There was significant discrimination In 2016, after many years of change to traditional service or and racism against people in the attempting to support people into programme development. Rather programme from both landlords and housing, Lifewise and Auckland City than service providers designing within the health system.3 Mission recognised that more needed services or programmes in isolation, to be done to effectively support the co-design approach enables a Furthermore, there was a lack of people to sustain tenancies. wider range of people to make culturally appropriate affordable housing They joined together to design and creative contributions in the as well as poor access to cultural implement a Housing First formulation and solution to a amenities.4 Despite this, the Housing programme for the Auckland City problem. First teams ‘achieved remarkable Centre using a human-centred design success in placing the participants on a approach. Part of the attraction of There are key steps in a human- path towards recovery from Housing First was the robust and centred design approach as shown in homelessness and mental illness’. 5 extensive evidence of effectiveness as Diagram 1.

Diagram 1

DISCOVER DEFINE DEVELOP DELIVER

Understanding Defining initial Developing and Delivering and user needs needs testing ideas implementing ideas

34 In the discovery phase we gathered • People have everyday hopes and used outside a formal marae setting) data and information to understand dreams for their futures including when introducing groups of the needs of people experiencing where and who they might live participants to the Housing First chronic homelessness. We did this with. However, people often feel programme. through: empathy interviews with hopeless about their dreams 18 people who had experience of being realised. Very early on the team refused to homelessness in the city centre, • Many people feel disconnected or use the term client and instead developed journey maps of users lack positive connections with refer to participants as whānau. experiences, held focus groups on their family and wider whānau. The term whānau is used to express specific topics and completed The pain of this can be inclusivity and recognises the analysis of Lifewise and Auckland City debilitating for some and connectedness that is established Mission service data where we negatively impacts on their lives. between the team and participant identified 189 people who were • Engaging with and navigating through the mihi whakatau process. chronically homeless in the city services can be an insurmountable The ongoing use of the term centre. In the define phase we challenge and many people often whānau by the team provides a synthesised the learnings and rely on support workers to do this subtle mechanism of system insights. We formed personas and for them. disruption and challenges a culture developed design challenges that • Trust and mutual respect were of ‘client/worker’ — ‘them/us’. arose from people’s experiences. As seen as key factors for building part of the develop phase we sought meaningful relationships between One Housing First whānau member a wide range of ideas at an ideation participants and service providers. signalled this in a recent interview: workshop and built prototypes to test These relationships provide a with users. These learnings helped us platform for people to move And that’s what’s important — to develop a service blueprint for the forward. Alternatively, relationships they make you feel like you are city centre Housing First programme. where there was a lack of trust and at home, that you are not just a In the deliver phase we continuously transparency generated frustration client, nobody likes being called test and refine the prototypes and confusion. a client […] throughout implementation. — Housing First Whānau Member). Through the analysis of Lifewise and Key Insights, Data and Design Auckland City Mission data sets we Part of what the team actively try to do Challenges discovered that 59 per cent of people is to encourage partners and The experience of people with lived experiencing chronic homelessness stakeholders to go beyond their own experience of homelessness was in the city centre were of Māori definitions of family/whānau and central to the development of the city descent. People had been homeless explore and encourage people to centre Housing First programme. for a long time — 90 per cent of take a broader view of what can Their contribution happened in people had been homeless for two constitute a whānau relationship. different ways; from participation on years or more. The average length of This can then redefine how the project team, participation in time was seven and a half years. behaviours are perceived and empathy interviews, creative Substance use issues were common promotes a broader cultural brainstorming sessions through to the and in addition many people had understanding and acceptance. initial testing of ideas and concepts. chronic physical health problems. Most of the people involved were also Prototypes of Māori descent. Implementing Housing First The team are testing and refining in the City Centre two prototypes based on the cultural We uncovered six key insights that The learnings from the design process principles and the learnings from the guided the development of Housing also enabled the surfacing of design process. A prototype is an First: fundamental cultural values that are early sample or model built to test a • People living on the street quickly important to the community and how concept or a process that solves a become part of the street culture. the team will work — manaakitanga, particular design challenge. This culture is dominated by a whakawhānaungatanga, Two design challenges emerged Māori paradigm where concepts rangatiratanga, tika, pono, aroha. specifically around the issues of like manaakitanga and whānau One of the first steps to ensure that managing visitors: dictate how they live their lives. Housing First was optimised for Māori • How Might We support tenants to Once housed, people carry these was to employ a team with knowledge show manaaki and aroha to their values with them and there is a and experience of tikanga me Te reo friends without it jeopardising their strong desire to continue to Māori. The Housing First team has a tenancy? support their rough-sleeping designated cultural leadership role • How Might We support people to whānau. and the team culture is built on the employ effective strategies to • The idea of moving indoors and cultural principles. manage visitors that get beyond creating a home can be an their control? overwhelming experience. People The team start each day with karakia often lack practical support with and waiata, sometimes joined by The following prototypes are now adjusting to their new home and Housing First whānau. They have being tested and adapted with can experience isolation, boredom trialled the use of mihi whakatau whānau as they participate in the and conflict. (traditional welcoming process, often Housing First programme. 35 organisations or groups to create an event, that is, boil up Sunday and host the event for their friends and family. This provides a mechanism for whānau to provide manaaki and aroha to their friends without it jeopardising their whare.

Partnership and Governance The programme was opened with a pōwhiri by mana whenua Ngāti Whātua Ōrākei, who have asked for a second hui with the team now that the programme is off the ground. At a governance level, four people of Māori descent sit on the Housing First Governance Group — two with lived experience of homelessness and two Housing First kaumātua.

Conclusion Housing First is much more than introducing new programmes. It is about fundamentally shifting or disrupting the way multiple service systems operate to put people (who have been very poorly served in the past) at the centre. We are in the early stages of implementation but already we are seeing the benefits of working in a way that meets the unique cultural needs of the whānau in the Auckland city centre.

Endnotes 1. Goering P, Veldhuizen S, Watson A, Adair C, Kopp B, Latimer E, Nelson G, MacNaughton E, Streiner D and Aubry T 2014, National At Home/Chez Soi Final Report, Mental Health Commission of Photo provided by Claire Aspinall Canada, Calgary, Retrieved from: http://www.mentalhealthcommission.ca Pōwhiri and Kawa both the tenant and Housing First 2. Distasio J, Sareen J and Isaak C 2014, The Pōwhiri/Welcoming Event is an team. Having the kawa based in At Home/Chez Soi Project: Winnipeg Site Final Report, Mental Health Commission of opportunity to celebrate people tikanga and Māori values adds Canada, Calgary, Retrieved from: moving indoors and to set the kawa cultural weight and validity, making http://www.mentalhealthcommission.ca for the home in front of the the kawa more likely to be adhered to 3. McCullough S and Zell S 2016, The participant’s friends and whānau. (like the kawa of a marae). It also At Home/Chez Soi Project: Sustainability of The event itself can take any form provides an opportunity to talk about Housing and Support Programs depending on the participant’s visitors and management of Implemented at the Winnipeg Site, The Institute of Urban Studies, The University choice, and could range from a small unwanted visitors. This process could of Winnipeg, Winnipeg. intimate cup of tea to a whakatau to a also support people living together in 4. Alaazi D A, Masuda J R, Evans J, Distasio J full pōwhiri. The event is supported groups to set their kawa. 2015, Therapeutic landscapes of home: and organised by kaumātua, the Exploring Indigenous peoples’ key/peer worker and the whānau Manaaki Days experiences of a Housing First intervention member (participant). Prior to the Whānau need options where they can in Winnipeg, Social Science and Medicine, no.147: pp. 30–37. event, the team work with the whānau provide manaaki/ hospitality in the member (participant) to explore same way that most other 5. ibid p.36. concepts around home, manaaki and New Zealanders would take for 6. By chronic homelessness we mean that a person has been continuously homeless aroha and to set the kawa. The kawa granted. Manaaki days utilise neutral for at least 12 months or on at least four may specifically discuss how people spaces to host events, dinners, family separate occasions in the last three years want others to treat them and their gatherings, meals for friends and and they have an impairment and which home with a focus on visitors. family. Housing First whānau can be a physical, mental, or emotional impairment. The impairment is expected members (participants) work with to be long-continuing or of indefinite Setting kawa actively promotes their key worker, peer worker, and duration and to substantially impede the boundary setting that is known to other community development person’s ability to live independently. 36 Housing First: People Working with People Brook Turner, Head of Community Services Development, VisionWest Community Trust

‘Well it’s going to be a ride. That’s for Fiona Watene –— Peer Support In your own words, what’s sure. Put your seatbelt on. But it’s a Worker different about the Housing good ride, like a roller coaster. There I was asked by VisionWest to be First programme from other will be a lot of highs and lows, twists involved and that was exciting. housing services? and turns along the way but it is a I haven’t worked officially for privilege. We should consider twenty-five years and I was really Fiona ourselves really privileged to be a part anxious coming into a new job, but It’s the joy. People think that they are of this.’ now that I have been here six not good enough to deserve a house. months, I love it. They always seem to think there is a Housing First as a programme relies hidden agenda, but once you start on a unique set of skills and roles to My motivation is… I was ‘there’ once. building a relationship with them house those categorised as the I needed a hand to improve my life. that’s when you see the gratitude. And ‘chronically homeless’. In each Now I find myself out on the streets even though these people come with housing team, specialised roles help now and again talking to the a set of issues, we will still wrap the quality, success and growth of the homeless up in Glen Eden, explaining around them the support they need. programme. In this article, we will what we do. That’s really exciting for That’s what’s beautiful to me. No rules explore the experiences of two key me, to be able to offer some hope. or criteria. roles in the Housing First approach Knowing it’s a long-term process like and hear the stories of Housing First it was for me is the most important Sonya staff on the ground in the thing. We don’t give up. That’s how I see it. New Zealand context. The following is We don’t give up even if a person an interview with Sonya Coop and I was speaking to a man last night and turns down a house, we will still work Fiona Watene who belong to he was talking about how he just with them. Whereas a lot of agencies VisionWest’s Housing First team. Their needed some help. He has some will say you’ve lost that right to a house work is part of the wider Housing First mental health lived experience. because you turned one down. It really Auckland Collective. He’s got quite a few addictions. does work and makes a big difference. But just giving him that hope, that Even if they do get into a house and Why are you involved in the even with his addictions, we can walk for some reason are evicted, we will Housing First programme? alongside him. continue to work with them. What is your motivation?

Sonya Coop — Support Navigator (Social Worker) For me it was an opportunity that came up. It’s about recognising that there are stories behind why people are homeless. I think society often tends to make judgments about people. They see someone or a family in a situation and make a whole lot of assumptions about the family or the person on the street. But once you actually hear a person’s story, you just think…wow!

I am incredibly amazed by people’s resilience and their ability to keep going every day. What a privilege it is for us to be a part of helping people get into a house and beginning a new journey with them. Photo provided by Brook Turner, Head of Community Services Development, VisionWest Community Trust 37 What’s been the biggest grace, firmness, and truth. I hear a lot supervision is really important. You learning you have had on the of big words now I am working here. have to have the freedom to be Housing First journey so far? Words like transparency. So, for me it’s yourself. understanding what that means in my Sonya work. It’s important that we are not Fiona The biggest learning is the stories. high above them, but alongside them. I wouldn’t be able to take care of You can’t get away from it. The stories myself without the team. Having my tell you so much about why the Sonya managers and Sonya. I do a lot of person is in the place they are. I think You need to be able to listen. I think crying. If I don’t deal with it there and just recognising issues like the break- that is a big key. People have a story then, I need to talk with a colleague or down of the family, substance abuse, to tell and we need to listen. Allow the allow myself to cry. Lots of laughter too. and complex needs helps you to space to hear the story and not come The full spectrum of emotions. I like to understand why people are where with a whole lot of solutions in that treat myself with a great big dinner. they are. It’s important to truly hear moment. I think they discover the Heaps of cuddles with the kids too. the stories. solutions for themselves as they go along. Building rapport with the What do you think makes a Fiona families and people you work with successful Housing First team? Remembering that for each person takes time, because they don’t trust reality will hit. For the first two days anybody. They need the time to learn Sonya they are on a high and then they will they can trust you. Workers do come Obviously, first of all, we need to feel the isolation of the empty house. I with their own worldviews and beliefs, have a heart for the work. It’s also remember when someone gave me but I think we need to be open to about recognising the strengths in my first TV. I just cried. It brought me have those challenged. You need to one another. Understanding how we so much joy. It’s not just the house. It’s be flexible. all work and how that can be a real the little things as well. strength and help us to work How do you sustain yourself in together collectively. Flexibility and Is there a story that stands out this work? communication is also key… for you? and recognising we can’t solve it all. Fiona We are not ‘it’. We are just one piece Fiona You need to talk a lot as a team and of the puzzle. We are not the sole Just yesterday we saw a couple who support one another. We are ok to cry answer on our own. We need so many have been living in a van for nine and we cry a little bit but we have a lot other agencies and services, but we years housed. We have been working of laughs as well and I think that’s are a part of it, and our contribution is with them for over four months. important. Just to have space and important. Seeing the joy on their faces was freedom to express those emotions. priceless. The lady had said no so Fiona many times but yesterday all she said When you go home it’s important to The talking is vital. Being able to was yes. That was amazing. It was all be ok with this other life that you express myself and allowing others yes, yes, yes. have. It’s a process. You are not going to do the same. In the past I didn’t to be able to last in this role if you know who I was. So being able to Sonya can’t look after yourself. You won’t go express myself is important. Allowing I think for me it’s been the statements the distance. If you take the burden of other team members to know me, that people have made about the the work home, it will be too much. and learning to know them. That’s a impact of homelessness on their lives. Talking amongst your colleagues and big thing for me. Leadership is No one particular story stands out important too. but when they describe their circumstances, that’s what gets to Any advice for someone me. Comments like ‘I don’t feel starting their Housing First like a human anymore.’ You journey? cannot hear that and not be challenged by it. There are lots of Sonya wonderful stories but it is these Well it’s going to be a ride. That’s statements that stick with me.’ for sure. Put your seatbelt on. But it’s a good ride, like a roller What are some of the key coaster. There will be a lot of skills needed to work in highs and lows, twists and turns Housing First? along the way but it is a privilege. We should consider ourselves Fiona really privileged to be a part of I have to try not to over think. To this. realise I can’t know every little detail of the work and what is Fiona around the corner. But I do find it It is such a wonderful thing to be really easy to speak to the a part of. homeless. I think you need mercy, Photo provided by Claire Aspinall 38 The Role of Local Government in a Homeless Response The People’s Project: A Collaborative Community Response to Rough Sleepers in Hamilton Carole McMinn, The Peoples Project, part of the Wise Group

On February 2014, the former Mayor of 15 of the 20 people who were local services to get the housing and Hamilton, Julie Hardaker, invited senior evicted. All were rehoused with help people needed. Project lead, regional representatives from the ongoing support. Julie Nelson, has always maintained Police, Ministry of Social Development, that it would take a community Department of Corrections, Housing The campground initiative cemented response to end rough sleeping in New Zealand, Waikato District Health the value of agencies working together Hamilton. ‘People sleeping rough is a Board, Men’s Night Shelter and to support those with complex needs. It complex issue and it will take many of Salvation Army, and NGO The Wise provided a model of working that is the us working together to solve it.’ 3 Group to meet to form a coordinated backbone to the way The People’s response to the perceived growing Project operates today.3 The People’s Project is a successful number of rough sleepers in the collaboration between 13 local central city and surrounding suburbs. On 3 September 2014, Hamilton City organisations. A governance group Hamilton City Council had carried out a Council adopted its Central City oversees the strategic direction of safety perception survey of the public Safety Plan. The plan was created with The Project and is currently made up of and central city businesses. Survey the help of local organisations senior regional representation from the results showed that people were including the Police, Waikato District following organisations: Hamilton City concerned about intimidating and Health Board, health providers such Council, Wise Group, Waikato District nuisance behaviour, including as the Wise Group, other government Health Board, Hamilton Central Business begging, and rough sleepers.1 social service organisations and the Association, Department of Corrections, Hamilton Central Business Pinnacle Midlands Health, Ministry of Census data from 2013 concluded that Association. The plan included the Vulnerable Children, Children’s Action there were at least 1,313 people who ambitious goal that Hamilton would Team, Housing New Zealand, Ministry of were considered severely housing not have a rough sleeping homeless Social Development, Te Puni Kokiri, deprived, or homeless in Hamilton population by 2016.4 Waikato Tainui and New Zealand Police. city.2 The police had a by-name list of Originally chaired by the previous 80 people who were sleeping rough, The Hamilton Central City Safety plan Mayor Julie Hardaker, today the group many of these people had been adopted two main approaches to the continues to have civic leadership from excluded from the night shelter. There growing number of rough sleepers. city councillor Angela O’Leary. were existing government and non- Firstly, the Council would set clear The People’s Project’s daily operation is government agencies and faith-based boundaries about what is acceptable led by the Wise Group, which has been organisations working to support those and unacceptable behaviour through working in the area of mental health and in need in the city. But there did not enforcement of a public safety bylaw. addictions support, both locally and appear to be a coordinated response. The Safety In Public Places Bylaw was nationally, for more than 25 years. The adopted in November 2014 and Group has extensive relationships with Following these initial meetings, included banning sleeping in a public support networks for vulnerable people Julie Nelson, Joint Chief Executive of place. The bylaw was aimed at at both a regional and national level. the Wise Group and Vicki Aitkin, protecting the public from nuisance Waikato District Health Board’s and offensive behaviour. At the same The People’s Project takes a Housing Assistant Group Manager of Mental time, the Council committed to First approach to homeless service Health and Addictions agreed to lead providing help and support for delivery. Housing First is a successful, an initial targeted piece of work homeless and vulnerable people evidenced-based approach to supporting people affected by the through facilitating the implementation alleviating homelessness, proven closure of a local camping ground. of The People’s Project (The Project). particularly successful for those with Many of the people being evicted had mental health and substance use multiple and complex needs The multi-agency project operated disorders. While the general response including mental health and from a base in the heart of the city. to homelessness relies heavily on substance use disorders, high debt When the team first arrived, there were emergency housing and acute medical and social disconnection. A small people sleeping rough in the town care, the Housing First approach is group of agency representatives met square, called Garden Place. The team grounded in principles of immediate with each resident and developed worked with representatives from the access to housing with no housing wrap-around support plans for at least partner organisations and existing readiness conditions, consumer choice 39 and self-determination in housing and foot patrol and CCTV monitoring of Government called for requests for support, recovery orientation based on central streets, to support people where proposals for organisations to provide a harm reduction, trauma informed rough sleeping. Staff from the City Safe similar services in Auckland. Following approach, individualised and person- and The People’s Project team started that, on 25 May 2017, Social Housing driven supports, and the importance of keeping an unofficial tally of the number Minister Amy Adams announced that social and community re-integration as of days there had been no-one sleeping $16.5 million would be allocated to an end-goal.5 in Garden Place. By then it was well over expand Housing First into areas of high 100 days. need across the country.9 The People’s Project is not restricted to helping only those who are In the same year, Hamilton City Council So successful has the Hamilton model sleeping rough. The Project helps won a local government award for been that other city centres are taking everyone in Hamilton who is community engagement for its Central up a similar approach to assisting homeless or about to become City Safety Plan. Based on the success rough sleepers. Project Lead Julie homeless. ‘We help everyone who of The People’s Project, the judges Nelson has been instrumental in comes through our doors or who is described the plan as a successful, well- initiating the roll out of the Auckland referred to us. That includes those planned and executed initiative which initiative, the Auckland Housing First sleeping rough to those couch surfing has addressed complex issues affecting Collective. Other regional centres are or doubled-up with friends and family,’ all large urban centres. Based on the also in talks with The People’s Project, manager Kerry Hawkes said. positive outcomes achieved by the interested in finding out how to Project, the Hamilton Central City Safety emulate the Project’s success. ‘That said, our core business is Plan is due to be renewed in 2017, and supporting the chronically homeless refocused for an additional three years. The People’s Project team continues to of Hamilton. We know maintaining an work closely with the city’s social enduring relationship with our clients When our doors first opened in support networks to assist Hamilton’s is pivotal to them sustaining their August 2014, local police, Council most vulnerable people. The tenancies and returning to community and health professionals had governance group, chaired by the reintegration. We work closely with our identified a core of 80 people who Council, meets bimonthly to target partner organisations, doing whatever were sleeping rough. Since then, only issues and areas of focus for the city. it takes to help people get into a safe, two of the original 80 rough sleepers Because of the Project’s success in affordable home, with the supports remain on the streets. The People’s reducing the incidence of rough they want and need.’ Project continues to work with these sleeping in Hamilton, the governance two people, both of whom have very group is establishing a new goal for The The Wise Group funded the majority complex health and wellbeing issues. Project. Going forward, the goal is that of the set-up costs and day-to-day At the end of September 2017, homelessness in Hamilton will be rare, expenses of The Project. Waikato DHB The Project had helped brief and non-recurring for people. provided two seconded social workers 422 households made up of single with mental health and a substance men, single women and families into Endnotes use disorder expertise to work with permanent housing, with appropriate 1. Hamilton City Council 2014, Hamilton the team. The Council covered rent support. This number includes at least Central City Safety Plan: 2014–2017, and utilities for the strategically- 309 children who have experienced Hamilton City Council, Hamilton, NZ. sighted office space and other staff the trauma of homelessness along 2. Amore K 2016, Severe Housing Deprivation 8 in Aotearoa/New Zealand: 2001-2-13. amenities. Other partner organisations with their caregiver. He Kainga Oranga/Housing and Health provided funding to support the costs Research Programme, University of Otago, of emergency client incidentals such The Project has been recognised as the Wellington as urgent medication, sanitary first large scale provider of a Housing 3. Wise Group 2014, The Peoples Project, One Magazine, Issue 10, Spring 2014, Wise products and home set-up costs. The First approach to homeless service Group, Hamilton, NZ. Project also received philanthropic delivery in New Zealand. In July 2016, 4. Hamilton City Council 2015, Hamilton funding. Since then, other services the New Zealand Government signalled Central Safety Perception Survey for have been added. Pinnacle Midlands its intention to implement Housing First Business — Spring 2014, Survey Notes, Health provides a free once-a-week as one of its responses to the growing Hamilton. doctor’s service for people needing homeless population throughout 5. Goering P, Veldhuizen S, Watson A et al 2014, National At Home/Chez soi Final urgent medical support and referral. New Zealand. The then Social Housing Report, Mental Health Commission of Minister Paula Bennett announced the Canada, Calgary. In July 2015, the Council resurveyed the New Zealand Government would 6. Hamilton City Council 2015, Hamilton public and central businesses to see if invested in Housing First, which would Central City Safety Plan: Scorecard 2015, the perception of safety in the town had be implemented by community groups. Hamilton City Council, Hamilton, NZ. improved. Overall, 44 per cent of 7. New Zealand Government 2016, Minister Bennett’s Speech to the National Maori respondents said they felt safety had The New Zealand Government Housing Conference, Tauranga, NZ. improved in the city. There was also a recognised that Housing First had a 8. The Peoples Project: Scorecard. 30 per cent reduction in police reported proven track record overseas and there http:/www.thepeoplesproject.org.nz. crime in the central city. At that time, was evidence that the Housing First Accessed 10/9/2017 The People’s Project had supported approach worked in a New Zealand 9. New Zealand Government 2017, $205m 125 households into homes.6 context based on the success that The Boost for Social Housing. Amy Adams: 25 May 2017 https://www.beehive.govt.nz/ Project staff were working daily with the People’s Project had achieved in release/205m-boost-social-housing. Council’s City Safe team, who provide Hamilton.7 In 2016, the New Zealand Accessed 10/9/17 40 Responding to Homelessness in New Zealand: Homelessness and Housing First for Māori: Meaning and Optimisation

Brennan Rigby, Principal Advisor, Social Outcomes, Independent Māori Statutory Board*

What does Māori traditional Acknowledging that NGOs engage Homelessness according to the knowledge say about homelessness? with Māori and kaupapa Māori from a official definition — massively What therapeutic approaches do meaningful independent moral important in a housing crisis — Māori perspectives open up? Could response as opposed to legal duties, remained hidden. While in 2016 ‘our homeless experiences be more richly these opportunities are the basis for (Council) response’ took on a regional understood through a Māori lens — presenting this approach as the feel through the Auckland Housing and, in an operational entity/non- antithesis of colonisation and First project, it remains rough government organisation (NGO). encouraging its escalation. sleeping focused. What is a Māori lens? How does the Housing First model respond to Locally, the question is: how have we All the while, disagreement between indigeneity? engaged with te Ao Māori in our central and local government over responses to homelessness? responsibility for homelessness A year ago, my contribution to Parity1 provided a publicly plausible buffer talked about Te Puea Marae’s Introduction to both. However, these response to Auckland’s homelessness New Zealand’s definition of ‘battleground debates’ do not justify as an ‘Indigenous/inclusive solution to homelessness goes beyond rough failing to care for vulnerable people. homelessness’ and one that ‘elevates sleeping. From a perspective close- As economist Shamubeel Eaqub Māori cultural practice (tikanga) as a but-external to Auckland Council, it’s quipped on Auckland’s housing crisis supervening mandating source of cognisance of homelessness was recently: we know what needs to be Indigenous policy and power driven by tensions emerging in done… the politicians just need independent of the Treaty, its legal Auckland’s Central Business District enough empathy to commit to the place, and the Crown.’ due to rough sleeping scratching the real solutions.2 shiny veneer of enterprise. This sub- The thesis of this article is that Māori regional and narrow perspective is Apologies to the stated source, that’s therapeutic approaches, mātauranga, contra-indicated by the official paraphrased and out of context — but values and perspectives — and position but was reinforced by the sentiment rings true for ‘our globally those of other Indigenous external forces such as the media. response’ to homelessness. groups — offer mainstream social services rich opportunities through engagement, relationships and standing and reciprocal learning.

These identified opportunities extend the idea of the Indigenous/inclusive solution into the service provider/NGO/public realm. They promote holistic services for mainstream clients, and the effective tailoring of mainstream services for Māori/Indigenous clients. This is not new but the need remains urgent. Māori academics and practitioners have long championed and implemented approaches that drawing on Māori history and culture in a therapeutic context, suggesting for example, that cultural engagement serves of itself as a protective factor. A spill-over question is whether that is only true for Māori clients, or partly also true for Pākeha clients. Photo provided by Brook Turner, Head of Community Services Development, VisionWest Community Trust 41 Photo provided by Brook Turner, Head of Community Services Development, VisionWest Community Trust

Context The ‘life-stages’ formula is: improve expressed through embarrassment; What does our homelessness look education, improve employment, a constant battle between daily like, and where does it come from? improve incomes and economic pressures and lifelong aspirations; a outcomes — and in this case improve conundrum constantly exposing the There is massive shortage of housing housing outcomes by bolstering historic and ever-present context of that normal Auckland households can economic power and resilience. colonisation. buy. Positive economic outcomes offer two forms of capital: purchasing power, Financially and holistically, these New Zealand boasts solid economic and resilience. Low-income dynamics come at a non-recoverable growth but this is based on net Aucklanders obviously lack emotional and psychological cost that immigration — productivity is stagnant, purchasing power but, critically for over time erode resilience but are also and so are incomes. Inflation then, homelessness, the capacity to quintessentially Māori and perhaps sold as the measure of our economic withstand and respond positively to quintessentially, Indigenous. stability and wellbeing, is more an challenges is also compromised. Homelessness is one of the resulting increase on already inflated living outcomes for Māori and others. costs. Homelessness is a categorical social outcome: it is the opposite of any Auckland’s Response Auckland’s median household income definition of housing wellbeing. It is useful to analyse ‘our response’ in (~$85,000) cannot purchase a median Homelessness is the end of resilience. two parts. price house (~$850,000 to $900,000) and quality is a concern in the Overlay our tricky modern economic Firstly, in the political realm society and accessible rental sector. sea (technology, unstable primary the public sector collaborate to industries, housing etc.) with a recent prioritise matters, and the government The median income for Māori history of repression and economic must consider its treaty partnership households is lower still; the crisis and cultural dispossession, and you role. Society has a vital role to play in more acute. have a picture of modern life in activating the public sector, and Auckland for many Māori. society has indicated a desire that ‘Income’ is tied to employment, and homelessness be addressed. However, employment to education. ‘Education We need to realise life for many Māori homelessness has often been framed system’ failure for Māori is an is not necessarily the same as life for politically as being embedded in an important contributor to low most non-Māori. Māori individuals intractable housing crisis, dampening incomes and economic vulnerability. experience life dynamics hidden from public sector fervour. But it seems that within our capitalist the mainstream; marae trusts, iwi democracy the economy itself also politics, treaty settlements, land The second part is service delivery. fails to engage Māori equitably. grievances to name a few. Many Māori This can be highly variable, with The ‘economy’ continues to perceive fervently wish they could speak te Reo service design increasingly delegated Māori as a risky outsider; fact.3 Māori — so much so it is often to service providers. Importantly 42 Māori outcomes can be framed in So the summation of Auckland’s areas (without assuming that rough terms of operational capacity rather response is ‘it’s complicated’ — but it sleeping is confined to urban centres) than treaty compliance: how will the shouldn’t be. The Waitangi Tribunal and excludes the broader ‘official’ service optimise outcomes for Māori? and the courts have clarified the homelessness regionally. treaty for contemporary use. The Auckland Housing First project However, the public sector still Assuming a poverty-homelessness has made strong progress displays confusion over who the link, the street-count is problematic by operationally, but less progress on treaty binds and who is responsible design and under-states Māori outcomes. While the project for targeting Māori outcomes. homelessness publicly and politically. achieved early wins with a progressive Delivering Māori outcomes is The figure of 160 is an achievable service ethos driven from above, straightforward. As Eaqub says about mirage, but it is also a colonial engagement with Mana Whenua was affordable housing and I adopted for hegemonic denial of the lived not undertaken and how the project homelessness, the power to deliver experiences of thousands of would be optimised for Māori went Māori outcomes generally is in the Aucklanders. Many of them are Māori, unanswered. hands of politicians. They just require but homelessness is not characterised empathy for the target population. as Māori. Public sector responses The political response in Auckland has however, must meet a treaty been mediocre, as evidenced by the This evidences the dilemma that benchmark with analysis emphasising level of funding allocated by central treaty obligations are decoupled the needs of Māori, and this is lacking and local government. It has been left from Māori outcomes — compliance (again) in relation to homelessness. to service providers to promote alone does not secure Māori society’s interests — but society needs outcomes. Perhaps, like the building This article then calls for a firmer public to be heard consistently to deliver a code, we need a reminder that commitment to enacting the treaty’s firmer, clearer bi-partisan message to minimum standards are not targets. good-faith benchmarking, and to government. Similarly, engagement for ending homelessness through robust compliance is empty, compared to forward planning, resourcing to match, Treaty Compliance… engagement for shared value. and optimised operationalisation. This story includes three levels of Firstly, funding must address the treaty relationship with the Māori So how are we ‘responding to gravity and nature of need. treaty partner — the homelessness’? Crown/government, local authorities Housing First has been like a and NGOs. In the public sector, I have heard two genetically modified organism. mantras. ‘What’s measured is Developed overseas to predate The government has high treaty managed,’ and ‘no plan is worth a existing homelessness service obligations and low delivery for dime without resources or funding.’ models, New Zealand trialled it in one Māori, evidenced by apathy on the hot-spot before expansion. But supervening housing crisis, funding Again, responding to homelessness despite this scientific approach no- for services not targeted for Māori, and delivering outcomes for Māori is one asked or answered to the and most other indicators illustrating simple. Design and resource plans to question: how will it work for Māori? outcome deficits for Māori. deliver Māori outcomes, and drive delivery through measurement — or Can we please just ask, and Auckland Council has unclear treaty something like that. answer, this basic question... obligations (beyond the scope of this Homelessness is multi-faceted. article) and low targeted delivery for But measuring homelessness has However it is narrated, it is being dealt Māori. Council has been slow to proved tough: the rigours and with now in Auckland and Auckland grapple with the opportunity to discipline of homelessness militate should employ its full cultural, leverage Auckland’s Māori cultural against its measurement. And then emotional, and therapeutic arsenal to landscape and optimise Māori resourcing for myriad plans to address it. outcomes (notwithstanding a contract address homelessness… where did * This article is based on insights gathered specifying for Māori outcomes) in I put those empathy power-pills? working for Auckland’s Independent Māori homelessness and other areas. Statutory Board. While the Board has developed a position paper on homelessness, Council habitually frames The public co-investment of $4M in this article is not intended to strictly represent engagement as an obligation, Auckland Housing First is Board positions or the views of the Board. circumventing the opportunity to contextualised with the question: how generate relationships and add value. many homeless people are there in Endnotes Auckland? A common answer is 1. Parity, vol.29, no.8, pp.22–23 Many NGOs have sophisticated around 160. This figure is based on a 2. Shamubeel Eaqub: Addressing the approaches to treaty partnership, ‘street-count’ of rough-sleepers on a Resource Management Law Association despite having no obligations. The particular night within three kilometres conference, Auckland 23 September 2017. Auckland Housing First project has of a CBD landmark. The street-count is 3. For example: Houkamau C A, Sibley C G advanced capability and standing fit-for-purpose for a CBD snapshot, 2015, Looking Māori Predicts Decreased advisory capacity in kaupapa Māori. but commentators have not specified Rates of Home Ownership: Institutional Contrarily however, to date they have the parameters, so regionally, it under- Racism in Housing Based on Perceived Appearance. PLoS ONE 10(3): e0118540. not engaged with Mana Whenua on estimates Auckland’s homelessness. It https://doi.org/10.1371/journal.pone.011 this project. provides no insight on other urban 8540 43 Chapter 3: Perspectives on Housing Is it a Housing Crisis or Just Housing Pressure? Bernie Smith, Monte Cecilia Housing Trust

approach taken by overloaded Work Momentum gathered across the and Income New Zealand (WINZ) staff country and park-up-for-homes events who follow a script and use tick boxes were held in other areas. The impact because they do not have time to of these events drew nationwide listen to the story of a desperate media attention, alongside Te Puea client. This can mean many homeless Memoria Marae’s experience of and distressed people do not receive opening its doors to homeless their full entitlements or gain access people. Suddenly, another dimension to the social housing register. It can of homelessness was revealed. They also mean having entitlements came out of their cars, their leaky, cold withdrawn or eviction from housing. and damp garages, old caravans, lodges, couches and overcrowded Our challenge here at Monte Cecilia is homes to tell the nation what they Monte Cecilia Housing Trust was to encourage the resourcefulness and were experiencing. established in 1982 by the St Vincent resilience of families facing de Paul Society, Liston Foundation, considerable and often overwhelming This attention was a catalyst for the the Sisters of Mercy and the Marist challenges so they can put down roots New Zealand Government to start Brothers to provide emergency and move from a position of shame, taking homelessness seriously. In July housing and practical assistance to hopelessness and disempowerment. 2016,1 emergency housing providers families with a housing need. Our across the nation were recognised as overall aim is to ensure a successful Until recently homelessness in needing support were offered the transition to independent housing so New Zealand has been largely lower quartile market rent for each that families can better determine invisible. Today homelessness has a facility they managed. By November, their own future. daily media focus and it is not unusual New Zealand Government realised to be confronted by homeless people homelessness was worse than they Employing 16 full-time and six part- sleeping on streets or begging in most thought and an election year was time staff, the Trust assists 52 families cities or towns across the country. We looming. An additional package of into social housing and 38 families are seeing chronic homelessness and $303.6 million was announced that with emergency housing every housing deprivation like we have never would support 1,400 2 emergency 12 weeks. We are projecting an seen before. housing places over the country, with increase to 240 families assisted every 600 places in Auckland. While the year into social and affordable Public attention on the issue was sector, who had been largely unfunded housing as our housing stock spearheaded by last winter’s ‘park-up- for years, welcomed this injection of increases from 100 to 240 over the for-homes’ campaign where people funding, it took another six months of next three years. Our advocacy service were invited to come and sleep in sector advocacy to get existing services now assists over 500 families a year. their cars. Thousands turned up in fully funded and to create a somewhat Mangere town centre to do just that. level playing field for all providers. As I understand it, New Zealand lacks the legislative framework to mandate the responses we need to alleviate poverty and homelessness. This results in successive governments and political parties playing the blame game over responsibility for this crisis.

No one wants to acknowledge that changes in policy and deinstitutionalisation have resulted in a country typified by inequality and homelessness. Likewise, no one wants to acknowledge the often punitive Monte Cecilia — Weymouth, South Auckland 44 Previously emergency housing providers had survived on sausage sizzles, car boot sales and the good will of Trusts and donors, while their staff and volunteers worked day and night to assist individuals and families living in some form of overcrowded sub-standard housing. The hope was that this funding would assist us to build capacity, provide some security and strengthen our service delivery.

Some of this new funding recognised Monte Cecilia staff the work many of us had been doing for years assisting families into rapid staff with our tenancy handbook dreams and aspirations for a better re-housing or to sustain their translated into Samoan. future for themselves and their tenancies. Here at Monte Cecilia, our children. advocacy service has assisted When a family drives in our gate, or thousands of families sustain their have just got off public transport with We do have a small percentage of tenancies in Housing New Zealand their total belongings in a rubbish families who show sheer grit and go Corporation (HNZC) or private rentals bag — this is not housing pressure — on to home ownership, further their and deal with issues like rent arrears, this is a housing crisis. education and who gain long-term maintenance issues, overcrowding, sustainable employment. management misunderstandings due A recent survey of over 30 families to English being a second language living in Monte Cecilia’s housing As a nation we need a multi-party, for tenants or with tenancy tribunal revealed they received on average co-ordinated homelessness hearings. $16,000 a year with one family having prevention strategy that is fully a $70,000 debt. 88 per cent had some funded and committed to by all Monte Cecilia has services across form of debt, mostly for car loans. political parties. This strategy should South and West Auckland with our To gain work, families feel pressured be implemented regardless of who is main office and communal living to own a car rather than take public in government so that homelessness facility in Mangere in the heart of transport. in New Zealand becomes rare, brief Counties Manukau. 2013 census and non-recurring. The Local figures identified that within the WINZ and other debt is often incurred Government Act 2002 needs to be Counties Manakau population from needing a car to get to reformed and better aligned with 22 per cent were living in employment, to get children to school community outcomes that prevent overcrowded substandard housing.3 and attend the many WINZ or HNZC poverty and homelessness. The population is comprised of: appointments necessary to maintain Māori, 16 per cent, Pacific Island tenancies and receive WINZ Every New Zealander needs to take people, 21 per cent, Asian, entitlements. responsibility for what is happening 24 per cent and New Zealand and take on the saying — it takes a European and other — 38 per cent. Over the past year a new trend has village to raise a child. This means that 76 per cent of Pacific residents are been noted of families borrowing or we should look at ourselves, our concentrated in decile nine and ten.4 taking out loans to maintain their resources, our skills and work rental costs. The shame of asking for together to make a difference. Pacific Island people are one of the assistance when finances are tight Against overwhelming odds in poorest and most disadvantaged often leads families to borrow finance Calcutta, Mother Theresa was asked groups in New Zealand, bearing the with high interest attached without how she coped. Her response was brunt of the housing crisis. Their understanding the short and long- simple — one family at a time. cultural stoicism often makes the term implications of this debt. problem invisible. While Immigration Endnotes New Zealand are letting people in We are now supporting the working 1. Retrieved from under the quota system from the poor in numbers never seen before, https://www.msd.govt.nz/about-msd-and- Pacific Islands, they are not allowed to many with more than one income. our-work/newsroom/2016/to-be-attributed- to-ministry-of-social-development-social- apply for social housing for two years. However, $15.75 per hour does not housing-deputy-chief-executive-carl-crafar. As a result they are doubling up in allow these families to sustain renting html overcrowded houses with up to 20 to and family living costs in Auckland. 2. Retrieved from 30 people on one property. https://www.beehive.govt.nz/release/ The good news is some families do government-injects-another-300m- emergency Monte Cecilia receives ten to move on. But self-sustainability only 15 housing enquiries each week. lasts if benefits are not cut, 3. Ministry of Health 2014, Analysis of Household Crowding based on Census The people we see are: 60 per cent employment is not lost and power or 2013 data. Wellington: Ministry of Health. Samoan, 15 per cent Tongan and rents do not increase. Sadly, many 4. Retrieved from 15 per cent Māori families. We have families continue to live in crisis http://www.countiesmanukau.health.nz/ fluent Samoan and Tongan speaking because they are unable to have about-us/our-region/population-profile/ 45 Tūrangawaewae: Whānau Wellbeing for All

Dr Lily George, Paul Gilberd, Anthea Napier, Reverend Dr Paul Reynolds, Reverend Jolyon White, Anglican Church in Aotearoa, New Zealand and Polynesia

For I was hungry and you gave me citizens can access safe and Howden-Chapman (Professor of something to eat, I was thirsty and you affordable housing — whether as Public Health, University of Otago) gave me something to drink, I was a renters or home owners — is a and Major Campbell Roberts from the stranger and you invited me in, critical way to maintain our Salvation Army, stated at a recent I needed clothes and you clothed me, collective health and prosperity.1 conference 3 that there has been a I was sick and you looked after me, massive market and government I was in prison and you came to visit To answer the current housing crisis failure in the current housing crisis. me….Truly I tell you, whatever you did requires a change in perspective from Marama Davidson from the Green for one of the least of these brothers one that focuses on physical and Party identified three steps we need and sisters of mine, you did for me. financial aspects of ‘housing’, to one to agree on to resolve our present — Matthew, Ch. 25, V. 35–36, 40 that acknowledges and seeks to housing crisis in New Zealand: answer the larger problems of Central to this article is the premise deprivation, marginalisation and 1. that everyone deserves a warm, that we do not have a housing crisis, inequality. This paper offers the Māori safe and affordable house; we have a crisis affecting whānau concept of ‘tūrangawaewae’ as a wellbeing. Housing is just one of the useful way in which to understand the 2. to acknowledge that there actually many factors that impact whānau ‘housing crisis’ in New Zealand. is a housing crisis; and health and wellbeing. The complexity The elements of tūrangawaewae are of whānau wellbeing is clearly defined well in a recent Te Runanganui 3. to make a commitment to end apparent in the scripture in Matthew, motion, wholeheartedly supported by homelessness for the next Chapter 25 — it is about having enough all five Amorangi (Māori Anglican generation. good food, quality and warm housing, Diocese in New Zealand) at its biennial and enough money to survive and Synod meeting in Nelson in What exacerbates the problem is that, thrive in life. It is about being well, September 2017: despite political posturing, we do not physically, mentally, spiritually and currently have a national social emotionally, and caring for those in We uphold the centrality of housing/affordable housing plan to need — a society of compassion and tūrangawaewae as the foundation resolve this issue. care. It is about having purpose and for whānau life. It is the space that worth and knowing our identity, rather gives us the best opportunity and To understand the critical housing than the fast-track to imprisonment environment from which to learn, situation in New Zealand it is that is mapped out for too many in our grow and contribute. It is essential important to understand the housing society of punishment. It is about truly for the wellbeing of our tamariki ‘continuum’. At one end is loving our neighbour and ourselves. (children), whānau (family) and ngā homelessness, and as one moves uri whakatipu (future generations). from homelessness along the A Church Leaders statement Tūrangawaewae creates continuum the next step is usually delivered to the Prime Minister in May accountability for ensuring resilience social rental housing. This segment is 2017 outlines the faith communities and living sustainably in balance dominated by Housing New Zealand focus on housing: with the world and others. At present and the Crown monopoly. There are our tūrangawaewae is under threat, however faith-based and community As church leaders, we share a whether it be from child poverty, housing providers (CHPs) that operate vision of fairness, wholeness of life homelessness, climate change or the across homelessness and the social and commitment to the common ongoing marginalisation of our reo rental space also. The next step along good along with New Zealanders (language) and mana Māori the continuum is affordable housing. across all faiths and cultures. motuhake. We encourage all The New Zealand Housing Secure housing is central to this political parties to review their Foundation offers affordable housing, vision and essential for people’s policies and aspirations to ensure where low-income households are wellbeing. We believe it is the tūrangawaewae is upheld and offered financial and other support to responsibility of Government to enhanced in this land.2 have the opportunity to own a home. ensure the wealth and resources of At the other end of the continuum is Aotearoa New Zealand are shared Outspoken critics on homelessness the open market with private home justly and fairly. Ensuring all and housing, Professor Philippa ownership. 46 Paul Gilberd from the mental health services, Child, New Zealand Housing Youth and Family, and other Foundation identifies the key agencies were now involved in problem in housing in their lives. Within a few short New Zealand: months, the wellbeing of this whānau had disintegrated, Homelessness is a serious losing the strength of a and highly visible problem. tūrangawaewae and all that But it is a small problem when entails. compared to the largely invisible and massive A large majority of whānau problem of low-income impacted by homelessness are households living in Māori and Pacific Island people. overcrowded, unhealthy For Māori in particular, the houses (social rental and greatest factor impacting on private rental)….The Housing whānau health and wellbeing system (continuum) is like all (tūrangawaewae) are the effects of God’s creations, it is a of historical and system. Everything is intergenerational trauma. Maria connected. I would argue that Yellow Horse Braveheart was the biggest blockage and one of the first Indigenous failure in the system at scholars to write about historical present is the availability of trauma and defines it as: stable, secure, affordable housing for low-income ‘…cumulative emotional and 4 households. Photo provided by Brook Turner, Head of Community Services psychological wounding over Development, VisionWest Community Trust the lifespan and across Hurimoana Nui Dennis from generations, emanating from Te Puea Memorial Marae in Auckland, time in order to be home for the massive group trauma made a profound statement at the tamariki after school. All was well until experiences; the historical trauma Community Housing Conference the father loses his job due to response (HTR) is the constellation stating that, ‘our people needed help, restructuring, which immediately of features in reaction to this not homes.’ 5 In 2016 Te Puea Marae impacts on the household income. trauma.’ 6 opened its doors to over 130 The mum gets another part-time job, homeless families in Auckland, which means leaving the 11-year old For Maori and Indigenous people offering them shelter and care during daughter to take on responsibility for worldwide, ‘trauma’ is seen as the winter months. He noted that the home. Dad is unable to get historical and intergenerational while it was easy to find a home in another job, impacting on his self- because of the lingering effects of Auckland, homeless families required esteem and confidence, eventually colonisation, including land help for a variety of need areas, resulting in his becoming depressed, confiscation, loss of language and including family violence, shifting his once quiet and gentle identity.7 In contrasting it with drug/alcohol addictions, budgeting, nature to one of frustration and previous trauma research frameworks, illiteracy, bail conditions/prison, aggression as a result of his sense of Wirihana and Smith consider that: physical and mental ill health, suicidal hopelessness. He becomes withdrawn ideation, child abuse, and prostitution. and unwilling to accept help from ‘The historical trauma framework anyone because he felt profoundly provided a means for Indigenous Dennis also noted however, that the ashamed. peoples to conceptualise the biggest problem facing homeless generational effects of colonial whānau were the agencies they had With their now-heavily constrained oppression on well-being and to deal with, and their lack of ability to income, household bills become offered a process for engage with these complex and overwhelming; mum becomes unwell understanding how it exacerbates multiple issues that whānau were but because she works part-time she post-traumatic suffering.’ 8 facing. Te Puea Marae’s solution was is not entitled to sick leave. Because to bring all the social service agencies the bills are not paid, the car is Wirihana and Smith explore how to the marae to engage with each repossessed (which meant she could traditional Māori healing practices can whānau. What they managed to no longer easily get to work), the be utilised to deal with the effects of achieve was ‘re-plugging these phone and power were eventually historical trauma. In George, et al’s people back into community.’ disconnected. Then a good friend of article, ‘Theories of historical trauma their son committed suicide. This had are utilised as a way in which to An anecdotal example of the a significant impact on him and he comprehend the history of immediate impact of financial stress disengaged from everything but his incarceration, and further and the resulting fall-out is of a family parents did not see this because of understanding of the socio-political who shifted from an unhealthy their own problems. The son processes that have led to the over- situation to the city where the father eventually tried to commit suicide population of our prisons with Māori worked full-time, and the mother part- himself. The result was that the Police, men, women and youth’.9 47 In New Zealand, the effects of God’s act of creation of the world most deprived. Therefore, this is historical and intergenerational (Te Aoturoa) is where humanity about dignity. This is about a human trauma are evident in high rates of claims the gift of creation as its right.13 This is about Tūrangawaewae, addiction, poor health, homelessness, Tūrangawaewae. Human whānau wellbeing for all. incarceration, family breakdowns, communities embody violence, suicide, neglect, physical Tūrangawaewae, when they Endnotes and sexual abuse, all of which are acknowledge and live out of God’s 1. See Anglican Taonga website article, Safe disproportionately high across Māori blessing for humanity, in the and Affordable Housing for all. http://www.anglicantaonga.org.nz/Features/ and Pacific whānau. flourishing of personal and Social-Justice/housing-may17. communal well-being through 2. See Anglican Taonga website article, Society itself also has a potential role creation. Thus, the embodiment of Te Runanganui on tūrangawaewae. to play in ensuring Tūrangawaewae Tūrangawaewae begins in a http://www.anglicantaonga.org.nz/News/ for everyone. Professor Girol community’s vision of the world Tikanga-Maori/Turangawaewae. Karacaoglu believes in a society of where God blesses humanity to do 3. Community Housing Aotearoa Conference, Building our Place: The impact compassion, noting that if people on earth as in heaven — to be conference held at Te Papa, Wellington, were willing to accept lower returns loving, to be kind, to be just, to be 7–9 June 2017. on their investments for the broader merciful, to be forgiving — to be 4. Personal communication with Paul Gilberd, good, this would be a significant God’s agents in the world … For a New Zealand Housing Foundation, 7 April platform for wellbeing. There has to community to claim 2017. be a society of compassion if we truly Tūrangawaewae gives concrete 5. Community Housing Aotearoa Conference, Building our Place: The impact wish to address these complex issues, expression to a spirituality that conference held at Te Papa, Wellington, of which the ‘housing crisis’ is just seeks to love God and love 7–June 2017. one. Additionally, David Rutherford neighbour in the world through its 6. Brave Heart, MYH. (2003). The Historical believes there is a need for all political place, its peoples and its resources. Trauma response among Natives and its parties to work together to resolve Such is the nature and purpose of relationship with substance abuse: A 12 Lakota illustration. Journal of Psychoactive this issue as it will not be resolved by the gift of creation to all humanity. Drugs 35(1). any one party alone. He also For more information and research on acknowledged that to resolve the Tūrangawaewae is a concept that historical trauma please see the work of Professor Karina Walters, for example: housing crisis and provide ‘adequate’ encapsulates the importance of a http://www.healingcollectivetrauma.com/kar housing, it would take longer than any comfortable and safe home as a ina-walters-embodiment-of-historical- one party’s term of office.10 strong foundation, essential for well- trauma-and-micro-aggressions.html. being, and the greatest environment 7. See, for example, Pihama L, Reynolds P, Smit, C, Reid J, Smith L T and Te Nana R The Anglican Church’s social service within which tamariki and whānau can 2014, Positioning Historical Trauma Theory agencies continue to be grow. There is hope that when people within Aotearoa New Zealand. AlterNative, overwhelmed with requests for are able to find a pathway to move vol.10, no.3, pp.248–262. emergency housing. In order to be along the housing continuum, that 8. Wirihana R and Smith, C 2014, Historical proactive in addressing the issues of this will provide a way forward from Trauma, healing and well-being in Māori communities. MAI Journal, vol.3, no.3, housing and homelessness, in the dependence to independence and p.198. lead-up to the New Zealand general dignity. This will be a transition from 9. George L, Ngamu E, Sidwell M, Hauraki M, election, the ‘Tūrangawaewae’ project being supported to being part of the Martin-Fletcher N, Ripia L, Davis R, Ratima was initiated by the Church’s Social support network of community, all of P and Wihongi H2014, Narratives of suffering and hope: Historical trauma and Justice Advisory Group to highlight which is enabled and supported by contemporary rebuilding for Māori women that a home is far more than just a Tūrangawaewae. with experiences of incarceration. MAI roof over one’s head.11 The goal of Journal, 3(3), p. 184. this project was twofold: Tūrangawaewae creates 10. Professor Karacaoglu (Head of the School accountability, not just for the whānau of Government, University of Victoria, and past Chief Economist at the New Zealand 1. To develop a variety of church and nestled within that environment, but Treasury) and David Rutherford (Human community-led activities to also for the people and community Rights Commissioner) were both speakers highlight the importance of which surround that home. In some at the Community Housing Aotearoa Conference, Building our Place: The impact ‘Tūrangawaewae’ for everyone in ways, the ‘housing crisis’ is least about conference, held at Te Papa, Wellington, New Zealand; and the physical buildings used to house 7–9 June 2017. people, and most about the ways in 11. See Anglican Church Social Justice 2. To continue the focus on housing which we — as individuals, families, website. Turangawaewae Resources; see issues post-election by making communities and a society — seek to https://www.anglicansocialjustice.nz/ resources?category=turangawaewae. housing one of its social justice care for each other, acknowledging 12. See Anglican Church Social Justice priority areas, inviting specialists the ways in which some of us struggle website, A Theology of Tūrangawaewae. on housing to be advisors to the to achieve well-being, and in This ‘Tūrangawaewae’ theology was Church. committing to the shared obligation developed by Rev Katene Eruera, St. John’s Theological College, for the of resolving these challenges in order Anglican Church. See Theologically, Tūrangawaewae is to claim dignity for all. https://www.anglicansocialjustice.nz/ about encountering God’s love resources/2017/8/21/a-theology-of- through the shared human Embodied in Matthew 25 is the turangawaewae experience of home, identity and importance of a compassionate, 13. The Universal Declaration of Human Rights, Article 25 (1), The United Nations website, belonging in the world. As noted by caring and loving society that looks see http://www.un.org/en/universal- Rev Katene Eruera: after those with the least, and the declaration-human-rights/ 48 Housing Northland’s Homeless: From Crisis to Confidence

Adrian Whale, Executive Officer, Tai Tokerau Emergency Housing Charitable Trust

represent 730 people: 404 adults and accessing suitable housing, ranging 326 children — about one percent of from having no experience of all the people living in Whangarei. arranging a tenancy, to addictions, to having no ID / bank account / phone. Due to our limited capacity we turn two thirds of all applicants away, which Over time, we have recognised the breaks the hearts of our staff team. We need to provide both a safe know we are the landlord of last resort supportive place for whānau that takes and we are experiencing a level of the housing stress out of their lives; desperation in our community that we and to also address their mental, have not witnessed before. And our physical, relational, emotional, spiritual fear is that we are only touching the well-being. TTEHCT achieves this by surface, only seeing the people that engaging with our tenants’ through an have the courage to ask for help. in-house social worker, and In 2006, a collective of local churches • The reasons for this increase in connecting them with other relevant combined to establish the Tai Tokerau demand for emergency housing is services that will enable them to move Emergency Housing Charitable Trust due to a shortage of affordable into and sustain a more secure home. (TTEHCT). This was in response to housing options in Whangarei for community-led research undertaken those on low incomes. In our Since employing a social worker to by One Double Five Community experience, this is a result of a work alongside our tenants we have House that revealed a desperate need combination of factors: seen both an increase in the number for emergency housing in Whangarei • an increase in demand for rental of tenants moving into the private for up to twenty households. housing as the number of people sector, and a reduction in the churn of relocating from as rental refugees people coming back to use our Ten years later, in November 2016, from Auckland increases (the service within a year, down from 30% thanks to the generosity of many local trickling down and out theory) in 2013 to five per cent in 2016. organisations, funding bodies and • the high cost of rentals pushing recent changes in government policy local people out of their homes as Although this type of work is intense that acknowledged the need to investors from outside Whangarei we firmly believe that homelessness is contract for emergency housing places, buy up rental stock and then solvable, especially if we make TTEHCT finally has enough emergency increase the rents (average rents for housing for all a universal target that accommodation for twenty households. a two-bedroom flat have increased we all buy in to. In this region of We currently operate a seven-unit by $62 over the past three years abundance, creativity and property, an eight-unit property, one • a decrease in the number of resourcefulness we all have a stand-alone house for a large houses for rent as people wanting responsibility to see that everyone has whānau/family, and a four-bedroom to get on the property ladder a place to call home. house for single men. This means we purchase rental now has the capacity to accommodate homes and move 56 people at any one time. their family in (increasing the Unfortunately, the goal posts have 42-day notice changed. Twenty is no longer enough. evictions for What was once a manageable trickle tenants). of enquiries for our service is now an overwhelming flood, one that has On top of this, the been building for the past three years. individual reasons why Since 2014, telephone enquiries have people are homeless doubled from 20 to 39 per month, are complex and and applications from 150 to 289 per varied. Each person annum (the highest ever recorded in has their own story our history). These 289 applications and barriers to 49 Chapter 4: Health and Homelessness Easy Access Housing: Transitional and Emergency Housing for Homeless tāngata whaiora Angie Cairncross, Communications Coordinator, Community Housing Aotearoa and Zap Haenga, Te WaiOra Tira Coordinator, Easy Access Housing

homelessness and transience whaiora to support themselves into amongst tāngata whaiora, was housing of their own choosing,’ says undertaken by the Ministry of Social Zap Haenga. Development (MSD) in April 2000.4 Questions of affordability, adequacy ‘Our residents know that we have a and sustainability of housing formed good understanding of what things the core of the research. can be like for them. Our ability to build positive and empathetic From the research it was estimated relationships stems in many ways from that around 8000 (17 per cent) of our own personal experiences of tāngata whaiora using District Health mental illness and/or homelessness.’ Board (DHBs) mental health services experienced housing difficulties, Zap lived on the streets for the better while the number of literally homeless part of 18 years and now coordinates tāngata whaiora or those living in the EAH service. He was also a temporary or emergency tāngata whaiora representative on the accommodation could be as many as steering group that advised the setup 2,000 (four per cent). A further of the project in early 2000. A one-of-a-kind service for homeless 8,000 (17 per cent) tāngata whaiora tāngata whaiora with mental health were estimated to be living in ‘I love my work — it gives purpose to and addiction issues has operated in circumstances which may involve a many of my own life experiences. Wellington since the early 2,000s. heightened risk of homelessness, Our residents often know that I’ve had Easy Access Housing (EAH) provides a such as boarding houses, hostels, similar experiences to them and I’ve transitional (six-month) or emergency hotels, motels, bed and breakfast found this usually makes it easier to (three-month) shared-housing service. houses and caravan parks. build rapport and trust.’ Intrinsic supports that empower tāngata whaiora 1to seek and gain More important were the research ‘Transitioning from long-term rough longer-term housing is included in the findings about the nature of the sleeping takes time and can be service model that provides a unique housing difficulties being faced by incredibly hard to adjust to. For some, approach in Āotearoa/New Zealand. tāngata whaiora with the principal it can involve going back on-and-off areas of difficulty relating to: the streets a number of times which is Background • cost and affordability of housing one of the reasons EAH has an open The relationship between housing • lack of choice in housing options door return policy for ex-residents who and recovery from mental illness has • stigma and discrimination. want to give it another go.’ been recognised in New Zealand in a number of reports and discussion The research concluded that housing Ex-residents frequently say they value papers.2 In 1999, the Mental Health difficulties, homelessness and the services they receive at EAH, Commission describes this transience were significant problems even when there have been issues relationship as follows: amongst tāngata whaiora. that resulted in their eviction. ‘Our respectful landlord/resident ‘The provision of adequate, Easy Access Housing and relationships usually remain intact and affordable and secure housing is tāngata whaiora we often get ex-resident’s critical to recovery, continued It is within this context that Easy approaching us for advice, support or well-being and independence— Access Housing (EAH) was just to have a laugh.’ conversely, poor housing can established as one of the few services impair a person’s ability to recover in the country with a sole focus on EAH recently supported a person into from mental illness and function homeless tāngata whaiora. permanent accommodation who had independently.’ 3 been homeless for well over a Tāngata whaiora are at the very centre decade, and, due to his often Research to quantify the extent of of the service that EAH provides. aggressive communication style, had independent housing need, and ‘We’re about empowering tāngata been trespassed from some key 50 support agencies. Establishing a Off-site staff work with residents to trusting relationship with him was help them develop a personalised crucial to his successful transition into housing action plan; maintain their permanent accommodation. connections with clinical and community supports; sustain healthy ‘While EAH are not funded to provide relationships in the houses; and follow-on supports we remain explore opportunities for personal available to him and his landlord and professional growth. (Wellington City Housing) to help sustain his tenancy. It hasn’t all been EAH doesn’t fall under the calm waters with this tenant but Residential Tenancies Act due to the having a strong relationship with his characteristics of the housing landlord has definitely helped.’ provided and the short-term tenancies. Residency agreements are ‘It is intensely rewarding to watch as supplied to residents that are similar he pursues other passions now that he to those found in backpacker has stable accommodation. Over the accommodation. good — that’s what everyone past few months he has engaged in ultimately wants. computer training, applied for funding ‘One of the biggest barriers our with the local council to hold a BBQ residents face is not having a birth ‘But for our residents, many need a for the homeless, and enrolled with a certificate or photo ID, which are gradual and transitional approach. local art centre,’ Zap says. mandatory requirements to submit Where housing application processes applications for housing. When are simple, smooth and move at their ‘It’s good for opportunities. People you’ve cycled in and out of the street, pace. Where they have adequate who get out of prison, on the streets, mental health services and support around them that continues because people need Easy Access sometimes prison, this is the sort of beyond their time at EAH.’ Housing to help them with guidance thing that gets lost and is too and support with today’s living,’ expensive to replace.’ ‘We’re finding it harder and harder to commented ex-resident of EAH, find homes to move people into. The Wayne. Many applicants self-refer to EAH wait lists for social housing is because it is well known through their phenomenal. So the emphasis by Service Set Up social networks. There has also been Wellington City Council to create Under the legal umbrella of Atareira an increase in referrals from more affordable homes in Wellington Trust, EAH signed a Supported Corrections and Probation. Other is crucial to addressing the housing Landlord contract in November 2002 referral sources include Hutt and crisis we are experiencing.’ with Capital and Coast District Health Wellington hospital psychiatric wards, Board (C&CDHB). Over 2003 and the Early Intervention Service, And in the future — ‘We might explore 2004 five four bedroom houses were The Bridge Programme, Downtown expanding our housing to include provided by Wellington City Housing Community Ministries, and Drug transitional/emergency housing for (WCH) and Housing New Zealand. Rehabs in other cities. single parents, couples and/or Four of the houses were dedicated to families. But for now we have more housing homeless men and the other Trends and Challenges than enough to work with.’ as a women and transgender only Zap says there has been a noticeable house. increase in the number of Māori Endnotes tāngata whaiora accessing the 1. People with experience of mental health In 2013, EAH was asked to return the service over the last year. Five years services. two WCH houses so they could be ago the proportion of Māori 2. Mental Health Commission 1999, Housing refurbished as part of WCH’s housing residents was around 30 per cent and Mental Health: Reducing Housing redevelopment plan and nine, one and now it is 70 per cent. Difficulties for People with Mental Illness, Mental Health Commission, Ministry of bedroom and bedsit apartments were Social Development 2002, Mental Health provided in the interim. The waitlist There have also been significant and Independent Housing Needs, has always reflected the changes throughout the local mental retrieved from www.msd.govt.nz ; oversubscribed nature of this service, health and addiction service sector Kites Trust 2002, Homes Housing Health, especially for male applicants so it that has impacted on the additional http://www.kites.org.nz/pdf/housing-forum- report.pdf ; Fenton 2004, Will you help me was important to be able to sustain support available to residents while find a Home—please, Unpublished report. the same level of service. housed with EAH. ‘Change is never 3. Mental Health Commission 1999, op cit, Two replacement houses were easy, but over the past few years EAH p.12. provided in 2014. has increasingly found it necessary to 4. Peace R, Kell S 2001, Mental Health and do things outside of our service Housing Research: Housing Needs and Up until 2016, C&CDHB were the sole scope in order to fill service gaps. Sustainable Independent Living, Social funder until additional funding was Service provision has become about Policy Journal of New Zealand, Issue 17, retrieved from: https://www.msd.govt.nz/ secured from the Ministry of Social ticking boxes.’ documents/about-msd-and-our-work/ Development (MSD) for emergency publications-resources/journals-and- housing, being provided through two When asked about the Housing First magazines/social-policy-journal/spj17/17 of the houses. model ZAP says permanent housing is _pages101_123.pdf 51 Elderly at 43: On Health and Homelessness

Jacqueline Humm, Strategic Communications Lead and Communications Lead for Housing First Auckland

At 43, Niko is an old man. He spends As was initially the case with Niko, most the centre, people present bearing his nights at the rear corner of an of the Mission’s homeless clients were everything from open wounds to inner-city, open-air carpark, where not registered with a GP. Cost and fear respiratory infections; STI’s to exhaust fumes leak through the tears of being treated poorly by medical diabetes complications and every in his tarpaulin. He eats dry packets of staff, combined with the often transient imaginable ailment in-between. two-minute noodles for breakfast, and lifestyle of chronic rough sleepers kept relies on donated food at the many vulnerable patients out of clinics. Along with nurses, doctors, and a Auckland City Mission’s Homeless This in turn resulted in cases where highly-skilled and friendly medical Community Drop-in Centre for dinner. people waited for health conditions to receptionist (this particular role is of When it rains, Niko’s feet get wet and reach crisis point before they visited a tremendous importance, as many stay wet for days. This latter fact is doctor, and subsequently ended up in Calder Centre patients report being what led him to the Mission’s Calder emergency rooms. treated poorly by medical reception Health Centre last winter. staff elsewhere and cite this as a In order to address this glaring need, reason for avoiding GP clinics), a ‘One of the worst things about sleeping the Mission opened its own health care Mission social worker is based on-site rough is being wet all the time,’ he says. clinic on-site in 2008. The Calder Health at the Calder Centre. This allows ‘My feet get infected because my shoes Centre, named in honour of Jasper doctors and nurses who come across and socks are always wet. My feet smell Calder, the first and founding Auckland patients in need of social support to and I am ashamed. The nurse at the City Missioner, brings primary health immediately introduce the patient to Calder Centre cleans my feet and treats care services to Auckland’s most someone who can help. One of the the infection. No one else wanted to do vulnerable and marginalised residents. Calder Centre’s doctors relays a story this for me.’ — albeit regarding a woman who is The service is set up as a very low cost housed — which exemplifies how this Calder Centre staff know that Niko’s General Practice (the Ministry of Health structure works in patients’ favour: life expectancy, as a chronically supports general practices with an homeless man, is between 15 and 30 enrolled population of 50 per cent or ‘Amanda brought her ten-year-old years less than that of the general more high needs patients, where the nephew into the Calder Centre population.1 By these discomforting practice agrees to maintain patient fees recently to have his eczema looked at. calculations, Niko is nearing the end of at a low level) and is closely integrated I learned during the consultation that his life. Not only does his body bear with the Mission’s social services. While she had taken the boy into her home the full brunt of each sodden, frosty open to the general public, the Calder after finding out that his step-father Auckland winter, but the alcohol he Centre specialises in providing was abusing him. However; once the uses to keep himself warm is eating at accessible, affordable healthcare to boy was out of the room, Amanda his liver. The lack of safe storage for his patients who are homeless, families broke down and told me that she was Hepatitis C and other necessary and individuals in crises, clients with struggling to support the two of them medication means he simply doesn’t mental health concerns and those financially. While she had a job, it paid take them. And the ever-present risk of battling alcohol and other drug minimum wage and she was battling a physical harm that comes with living addictions. Due to the aforementioned number of health issues herself. I one’s life in public, compounded by barriers, such as a lack of finances, trust organised for Amanda to speak with mental illness, means that Niko is, in issues, cultural differences and highly our on-site social worker, Linda, right many ways, a dead man walking. chaotic lifestyles, many of these away. Linda helped ensure that patients would not otherwise have Amanda and her nephew left with a The Auckland City Mission has been regular access to a doctor. food parcel and helped Amanda offering support and advocating on apply for an Unsupported Child’s behalf of people like Niko for The average number of visitations Benefit to top up her weekly income.’ 97 years. However, it became per patient at the Calder Centre sits apparent over time that each at 11 per year — about twice the Hepatitis C Clinic and Trial individual’s capacity to improve their national rate. 2 This is a direct At the Calder Centre we, along with overall well-being was heavily reflection of the hardships faced by the Mission’s other core social dependent on their physical and patients like Niko in their daily lives. services, are constantly re-evaluating mental health. With almost 2,000 patients enrolled at our level of care and looking for ways 52 we can improve the services we offer Hepatitis C and schedules follow-up Housing First and Health to our patients — particularly those consultations with patients who wish to While healthcare services like the who are sleeping rough. One specific participate in the program. Calder Centre and initiatives like the example of this effort to improve the Mission’s Hepatitis C clinic play a health of our most vulnerable patients In addition to this, Pharmac (the Crown vital part in improving the involves a new initiative based around entity which decides, on behalf of immediate health of rough sleepers combating Hepatitis C. District Health Boards, which medicines in Aotearoa New Zealand, improved and pharmaceutical products are long-term health outcomes rely In Aotearoa New Zealand, it is subsidised for use in the community heavily on the implementation of an estimated that one per cent of the total and public hospitals) recently approved effective housing solution. In order population has Hepatitis C. However; funding for a new prescription drug, to make this a reality, the Mission among the patient base at the Calder Viekira. Viekira has a better treatment has partnered with four other social Centre, this figure stands at around rate (96 to 98 per cent), with fewer service agencies to develop and ten per cent. Hepatitis C is a serious side-effects, if used over 12 weeks. implement a Housing First strategy and potentially fatal illness, which can If Hepatitis C-positive patients stick to for Auckland.3 lead to chronic liver diseases such as the 12 week regime of medication, they fibrosis, cirrhosis and liver cancer. can be completely cured. As part of this overarching strategy, the Mission will embark in 2018 on a Those most at risk of Hepatitis C are For those patients who lack a safe redevelopment project that involves people who: space to store their medication, the the construction of 80 self-service • have injected drugs(even if only Auckland City Mission offers storage. apartments for chronic rough once) Staff will also remind patients — sleepers, as well as low-income • have received a tattoo or body usually by text, or next door at the individuals on the social housing piercing using unsterile equipment Homeless Community Drop-in Centre register, on the organisation’s • lived or received medical attention when patients visit for daily meals, to current site. These apartments will in a high risk country (South East come and take their medication. each be accompanied by wrap- Asian, China, Eastern Europe around services, including a (including Russia) or the Middle The Calder Centre has also signed on redeveloped and expanded East) to a clinical trial with the Auckland Calder Centre on the ground floor. • had a blood transfusion or received District Health Board and the It is our hope that this blood products prior to 1992 University of New South Wales to trial redevelopment will provide chronic • have been in prison new medication for Hepatitis C rough sleepers like Niko with the • were born to a mother living with genotype three and four. This is limited permanent home they want, Hepatitis C. to ten patients and Calder Centre staff accompanied by the health care have already identified 29 patients services they need, and grounded Up until recently, treatment for who meet the requirements of the trial. in the respect they deserve. Hepatitis C involved Interferon It is hoped that the trial can be medication, which has low recovery extended to another ten patients over For an old man like Niko, we may be rates and numerous unpleasant side- time, allowing a greater number of just in time. effects. In addition, those who tested patients who are Hepatitis-C positive positive for Hepatitis C were required to access the treatment they need. Endnotes to visit specialised, secondary care 1. O’Connell J 2005, Premature Mortality in locations for treatment, rather than While Hepatitis C is just one disease Homeless Populations: A Review of the their doctor. This is not practical for which impacts more heavily on those Literature, National Healthcare for the Homeless Council. http://sbdww.org/ wp- many rough sleepers, particularly in our homeless whanau, the content/uploads/2011/04/Premature when the closest Hepatology clinic is initiatives being trialled by the Calder MortalityFinal.pdf located across town. Centre are examples of ways in which 2. Ministry of Health 2013, Retrieved from primary health care providers can http://www.health.govt.nz/nz-health- In order to make care for Hepatitis C- bring effective treatments to those statistics/health-statistics-and-data-sets/ positive patients more accessible, the who need them, in a manner which primary-care-data-and-stats Calder Centre and Hobson Pharmacy, respects the complexities of this 3. Housing First Auckland. (n.d.). Retrieved which is located in the same building, particular patient group. from https://www.housingfirst.co.nz/ have been working with Professor Ed Gane (Professor of Medicine at the University of Auckland and Chief Hepatologist, Transplant Physician and Deputy Director of the New Zealand Liver Transplant Unit at Auckland City Hospital), to establish a trial Hepatology Clinic at the Calder Centre, initially with a focus on patients who have Hepatitis C Genotype 1. The on-site Hepatitis C clinic is currently being run by a registered nurse, who uses a fibroscan to check patients for 53 Measuring Iterative Homelessness in Mental Health in Aotearoa New Zealand

Sho Isogai* and Dr Nicky Stanley-Clarke**

Securing and keeping appropriate, a consequence of homelessness, severe mental unwellness and that affordable and sustainable housing both mental health and psychosis and dual-diagnosis are plays an essential role in tāngata homelessness are interconnected common diagnoses amongst whaiora’s 1 recovery and wellbeing. and bidirectional as they are homeless people. A 2015 Yale Despite recent media attention indirectly connected, but mutually University study placed Aotearoa at around the issue of homelessness reinforce each other.5, 6 the top of the OECD rankings for and a lack of appropriate social homelessness as a percent of total housing, there appears to be little The prevalence of mental population.11 In 2013, approximately consideration of the relationship health disorders and 41,000 New Zealanders were either between mental health and homelessness in Aotearoa at-risk of severe housing deprivation homelessness in Aotearoa Aotearoa is a small South Pacific or homeless.12 A further 20296 New Zealand (hereafter referred to country with an estimated resident people were homeless in Auckland, as Aotearoa). Using data collected population of 4.69 million.7 Amongst a major metropolitan city in by Statistics New Zealand and the this population, approximately Aotearoa.13 National Programme for Integrated 256,000 adults have experienced Mental Health Data (PRIMHD), this psychological distress such as In 2001, a national study was carried article discusses some of the anxiety or depression between 2015 out by the Ministry of Social challenges in measuring iterative and 2016.8 The data show that more Development to measure the homelessness for tāngata whaiora than eight percent of adults, aged numbers of tāngata whaiora who in Aotearoa. between 15 to 44 experienced have housing needs or are psychological distress in 2015.The homeless or transient in Aotearoa. The relationship between prevalence of mental unwellness is A study by Peace, Kell, Pere Marshall homelessness and mental health is even more pronounced for Maori and Ballantyne 14 undertaken in recognised both nationally and and Pasifika populations with one in 2001 estimated that 8,000 tāngata internationally.2, 3 The literature nine experiencing psychological whaiora experienced housing acknowledges that not all homeless distress in during this period.9 difficulties, 2,000 might be people are mentally unwell and not homeless or living in temporary or all tāngata whaiora are homeless.4 Amore and Howden-Chapman 10 emergency accommodation, 2,000 Despite the ongoing debate as to estimate that around one-quarter to were transient and 8,000 were at- whether mental health is a cause or one-third of homeless people have risk of homelessness.

Figure 1: Isogai (20) Community development approach to addressing the housing crisis in mental health: Homelessness amongst tangata whaiora in Auckland.

Individual causes • Symptoms of mental unwellness • Lack of organisational/activities of daily living skills (i.e. budgeting and cleaning)

The public/ Structural causes Community causes • Housing unaffordability • Estrangement from • family and/or whānau Housing unavailability (population growth and • Discrimination and eviction from Iterative housing competition) landlords and/or flatmatres homelessness

54 PRIMHD supplementary consumer record social outcome indicator Accommodation status Mapping sub-categories to PRIMHD categories

Homeless Supported Independant

Rest homes Living Rough Living in Living Without Living in Prisons shelter Living in improvised institutions owner-occupied with the dwellings DHB forensic dwellings owner-occupier inpatient units Night shelters Transitional supported accommodation With accommodation supplement Women’s refuges Living in Partly or fully Private Temporary funded by the Accommodation residential sector Without Camping grounds facilities Ministry of Health renting accommodation or motor camps supplement Homeless hostel Marae

Sharing accommodation with Sharing someone else’s household, Social Accommodation e.g. couch surfing housing

DHD inpatient or rehabilitation facilities Dilapidated dwellings or Temporarily Uninhabitable Private hospitals or housing unfit housing living in institutions dementia units In custody or on bail

Figure 2: From: ‘PRIMHD supplementary consumer record social outcome indicator’, by Te Pou o Te Whakaaro Nui (https://www.tepou.co.nz/ uploads/files/ resource-assets/ Social per cent20 outcome per cent20 indicator per cent20explanatory per cent20resources.pdf) Copyright 2016 by by Te Pou o Te Whakaaro Nui. Reprinted with permission.

What is Iterative mental health.19 The relationship there are three classifications PRIMHD Homelessness? between these factors is depicted uses in data collection: homeless, Iterative homelessness is an below in Figure 1. supported and independent. See ongoing cycle of loss or movement Figure 2 below. from temporary housing to other Social Outcome Indicators housing or hospitalisation in both (PRIMHD) and Homelessness Although all mental health services in the short and/or long-term.15 in Aotearoa both DHBs and NGOs were Homeless people remain tenuously As previously noted there is little data mandated to measure these social housed in unsustainable and/or on tāngata whaiora who are either outcomes.24 every three months to a inadequate accommodation such homeless or living in severely year, there is an absence of published as hostels or boarding houses with deprived housing in Aotearoa. information from the national PRIMHD continuous risk of becoming a PRIMHD is a national mental health social outcome data. rough sleeper during their and addiction information database lifetime.16 Robinson 17 explains that administered by the Ministry of As detailed in Figure 2, the many homeless people, including Health. The database collects and accommodation category in PRIMHD homeless tāngata whaiora face stores information around service is based on the official definition of repeated traumatic experiences activity and outcomes related to the homelessness in Aotearoa. Whereas during the process of iterative mental health and addiction of Statistics New Zealand 25 collects data homelessness, including; domestic tāngata whaiora with a vision to and refers to homelessness as ‘living violence, relationship breakdown, improving their health outcomes.21 situations where people with no other and loss of friends or family and/or options to acquire safe and secure whānau members. This challenge is Three social outcome indicators housing’. Figure 3 outlines the also shaped by external factors (employment, accommodation and definition categories used by Statistics such as lack of affordable and education/training) were integrated New Zealand. sustainable housing options and into PRIMHD in all mental health exclusion from mental health services in both district health boards The Statistics New Zealand definition is services.18 (DHBs) and non-governmental based on the European Typology of organisations (NGOs) on 1st July, Homelessness and Housing Exclusion A 2016 study highlighted that three 2016.22This was to measure the central (ETHOS) and census data is collected approaches equally contribute to social and environmental indicators every five years.26 This definition the causes of homelessness among that impact the journey of mental appears to exclude those people, tāngata whaiora in urban Auckland, health and addiction of tāngata including tāngata whaiora who remain Aotearoa. These include; individual, whaiora as well as to monitor changes in hospital or community-based structural and/or community and/or in these indicators in their lifetime.23 residential care or respite with no whānau causes of homelessness in Under the accommodation category, permanent housing. Using this 55 3. people who lose their Figure 3 accommodation at some point during their admission to a mental Category Description health service Living situations that provide no shelter, or makeshift Without shelter 4. rough sleepers at the beginning of shelter, are considered as without shelter. For instance, mental health admission and who living on the street, and inhabiting improvised dwelling. 33 remain homeless. Living situations are considered temporary Temporary Ultimately, the Ministry of Health could accommodation when they provide shelter overnight, or accommodation work with Statistics New Zealand when 24-hour accommodation is provided in a non- along with other parties, including; private dwelling and is not intended to be lived in service providers, tāngata whaiora and long-term. This included hostels for the homeless, tāngata whenua whaiora to develop a transitional supported accommodation for the homeless national standard using the Integrated and women’s refuges. 34 Data Infrastructure. to capture both inequalities and social inclusion for Sharing Living situations that provide temporary accommodation tāngata whaiora. Integrated Data accommodation for people through sharing someone else’s private Infrastructure contains information dwelling. The usual residents of the dwelling are not from the census, PRIMHD data as well considered homeless. 35 as other sources.

Uninhabitable Living situations where people reside in a dilapidated Conclusion housing dwelling are considered uninhabitable housing. Despite recent developments in

Source: Statistics New Zealand, (2009, p. 6–7) measuring the number of homelessness and social outcomes for tāngata whaiora, the systematic issue of homelessness in mental definition, these people are identified systematic issues of iterative health has yet to be addressed in as homeless only if they complete homelessness in mental health these data systems in Aoteaora. their treatment and have no minimally services. It is also unclear what level of The authors recommend using a adequate housing to be discharged consultation and input there has been co-design, participatory approach in to.27 Using the current PRIMHD with: service providers working in this re-conceptualising the official definitions, some tāngata whaiora can area, tāngata whaiora and tāngata definition of homelessness in be categorised as either having whenua whaiora in its conceptual Aotearoa with service providers, supported or independent framework. Thus, it is recommended tāngata whaiora and/or tāngata accommodation status though they that Statistics New Zealand work in whenua whaiora to identify and remain institutionalised in hospital, collaboration with them to review and address the ‘hidden’ cycle of iterative residential-care, or respite due to co-design the current official definition homelessness in Aotearoa. having no option of accessing of homelessness in Aotearoa. This * Sho Isogai is a Doctor of Social Work permanent housing. This thereby needs to include recognition of (DSW) student at Massey University and a excludes them from the homeless obligations under Te Tiriti o Waitangi. member of New Zealand Coalition to End category, instead, terms such as ‘no This requires incorporating Māori Homelessness (NZCEH) and International Association of Community Development fixed abode’, ‘transient’ and ‘housing understandings of homelessness as (IACD). needs/difficulties’ are used. Further, well as partnering with tāngata whenua 30 ** Dr, Nicky Stanley-Clarke is a senior lecturer Indigenous understandings of whaiora and/or iwi organisations. at Massey University’s School of Social homelessness for Māori are excluded Work, Palmerston North. Nicky’s research from these definitions.28 Māori As for PRIMHD, it is recommended that interests include understanding the homelessness refers as a condition both accommodation status and the interaction between the individual and the wider social environment and the impact where Indigenous people are quality of housing is included in this may have on service delivery within displaced from rituals, kinship PRIMHD as tāngata whaiora often live in social work and social policy settings. relationships, ancestral lands and poor-quality accommodation with a Her specific research focus includes Indigenous knowledge.29 Thus, the higher rent.31 In order to capture statutory mental health organisations, social policy, Rural mental health and key question that needs to be iterative homelessness in mental health, social work education. addressed is: ‘What is the best it is recommended that a new category approach to measure and monitor of homelessness be added, as shown in Endnotes iterative homelessness in mental Isogai’s 32 study. This category 1. Tāngata whaiora refers to all people, health in Aotearoa?’ encompasses four classifications: including Māori who have lived experience of mental illness and/or are users of mental health services. This Māori Implications 1. people with established housing term is interpreted as ‘people in search of Numerous implications can be and address to which they can return wellness’ which describes the relationship drawn from the above observations. between New Zealanders, mental health and health services: From Peace R, Kell S, Firstly, the current definitions of 2. people who lose their Pere L, Marshall K, Ballantyne S 2002, homelessness used by Statistics accommodation soon after their Mental health and independent housing New Zealand fail to quantify the admission to an inpatient unit. needs part 1: A summary of the research. 56 This picture is provided courtesy of RNZ. Photographer: Claire Eastham-Farrelly

Ministry of Social Development, Connecticut, Retrieved from 24. Gaines P 2016, A review of the use of social Wellington. http://yaleglobal.yale.edu/content/cities- outcome indicators: Suggested grow-worldwide-so-do-numbers-homeless improvements to the collection and use of 2. Isogai S 2017, Community development national social outcome data in approach to addressing housing crisis in 12. Amore K 2016, Severe housing deprivation New Zealand, Lattice Consulting Ltd, mental health: Homelessness amongst in Aotearoa/New Zealand: 2001–2013, Wellington. Tangata Whaiora in Auckland, Paper He Kainga Oranga/Housing and Health presented at International Community Research Programme, Wellington. 25. Statistics New Zealand 2014, New Zealand Development Conference 2017, definition of homelessness: update, 13. ibid. 17 February, 2017, Unitec Institute of Statistics New Zealand Wellington, p. 5. Technology, Auckland. 14. Peace R Kell S Pere L Marshall K Ballantyne Retrieved from http://www.stats.govt.nz/ S 2002, op cit. browse_ for_stats/people_and_ 3. Peace R Kell S Pere L Marshall K Ballantyne communities/ housing/ homelessness- S 2002, op cit. 15. Robinson C 2003, Understanding iterative definition.aspx homelessness: The case of people with 4. Amore K and Howden-Chapman P 2012, mental disorders, Australian Housing and 26. Statistics New Zealand 2014, New Zealand Mental health and homelessness. In Urban Research Institute, Melbourne. definition of homelessness: update, International Encyclopedia of Housing and Statistics New Zealand Wellington, 16. ibid. Home, Amsterdam, Elsevier, pp. 268–273, Retrieved from http://www.stats.govt.nz/ doi: 10.1016/B978-0-08-047163-1.00336-2 17. ibid. browse_for_stats/people_and_communities 5. ibid. / housing/homelessness-definition.aspx 18. Bullen J and Fisher K R 2015, Is housing 6. Isogai S 2016, ‘In search of ‘home’ for first for mental health community support 27. Isogai S 2016, op cit. wellness: Mental health social workers’ possible during a housing shortage? 28. Groot S and Mace J 2016, ‘Problem views on homelessness in mental health’, Social Policy & Administration, Vol.49, no7, definition: Māori Homelessness in Aotearoa New Zealand Social Work, vol.28, 928–945. New Zealand’, Parity, vol.29, no.8, pp.5–6. no3, pp.67–78. 19. Isogai S 2016, op cit. 29. Groot S Hodgetts D Nikora L and Leggat- 7. Statistics New Zealand 2016a, National 20. Isogai S 2017, op cit. Cook C 2011, ‘A Māori homeless woman’. Population Estimates: At 30 June 2016. Ethnography, vol.12, no.3, pp.375–397. Statistics New Zealand Wellington, 21. Ministry of Health 2017, PRIMHD code set doi: 10.1177/1466138110393794 Retrieved from http://www.stats.govt.nz/ standard: HISO 10023.3:2017. Ministry of browse_for_stats/population/estimates_and Health, Wellington. Retrieved from 30. Groot S and Mace J 2016, op cit. _projections/NationalPopulationEstimates_ http://www.health.govt.nz/our-work/ ehealth/ 31. Gaines P 2016, op cit. HOTPAt30Jun16.aspx digital-health-standards-and-governance/ health-information-standards/approved- 32. Isogai S 2016, op cit, p.73. 8. Ministry of Health 2016, Annual update of standards 33. ibid. key results 2015/16: New Zealand health survey, Ministry of Health, Wellington. 22. Gaines P 2016, A review of the use of social 34. Statistics New Zealand 2016b, Integrated outcome indicators: Suggested Data Infrastructure. Statistics New Zealand, 9. ibid. improvements to the collection and use of Wellington, Retrieved from 10. Amore K and Howden-Chapman P 2012, national social outcome data in http://www.stats.govt.nz/ browse_for_stats/ op cit. New Zealand, Lattice Consulting Ltd, snapshots-of-nz/integrated-data- Wellington. infrastructure.aspx 11. Chamie J 2017, As cities grow worldwide, so do the numbers of homeless, 23. Ministry of Health 2017 op cit. 35. Gaines P 2016, op cit. 57 Opinion Patrick Gemmell General Manager, Te Matapihi

and in other ways, were changed in can be achieved if our Crown the final cut so that it was colleagues work ‘Kānohi ki te unrecognisable to them. In my view Kānohi, as opposed to Upoko ki te this was due to the Crown policy Upoko’.4 That is, when the treaty being opposed to an outcome based partner genuinely provides a way on cultural imperatives. forward for our people. I do not see the benefit in continually reminding Kāinga Whenua 2 seemed to follow the Crown of its treaty obligations. the same pathway as the first Māori I see a greater benefit in offering an curriculum. Kāinga Whenua is a kind extension of the opportunity for the of a translation of its English treaty partners to remain engaged, counterpart, Welcome Home Loans,3 and look to the lessons from our with both housing products being past, to enable our future. administered by the Crown agent, Housing New Zealand and financed My belief is if we reflect on and by Kiwibank. In its seven years of consider these lessons, we will have a operation, the Kāinga Whenua has stronger and more well-connected delivered less than 30 home loans, operational and social policy, one with that is, just over four homes per year. better access to culturally appropriate One can only surmise why both the services. The Whānau Ora 5 Initiative is first Māori curriculum and Kāinga a good example of this. Whenua struggled to succeed. In 2008, the world’s first Indigenous Perhaps it could have been because Housing Māori is more than just bricks contextualised school curriculum — of the lack of any real treaty partner and mortar. The repatriation of land, Te Marautanga o Aotearoa, engagement in their development. ancestral re-connection, learning and a milestone in Māori education, If this was the case, it certainly would re-learning cultural practises can all was established in Aotearoa and this have contributed in both instances, to be realised when our people have was celebrated around the world.1 the issues experienced by Māori. strong foundations and certainty. However, fifteen or so years prior Kāinga Whenua is a product we could to this a Māori curriculum was 2014 saw the launch of He Whare perhaps revisit by culturally developed as a response to the Āhuru, He Oranga Tangata, the contextualising its approach and its education system of the time that Crown’s Māori Housing Strategy. outcomes. This may seem like a given, centred in particular around the However, nearly four years on, it is still but it is somewhat frustrating when survival of Te Reo Māori, the unclear how the strategy is monitored our sector complains about the Māori Language. and evaluated. It is also unclear what Kāinga Whenua product in regions provision has been made to give around New Zealand when they do February 2010, was again another effect to the Crown’s Māori strategy. not actually know their product! milestone, this time in housing, as the While Te Matapihi continually Kāinga Whenua Mortgage product champions the strategy as a We wish to add to the Taiāo 6 that is was launched with great hope from navigational aid towards better Māori before us and Te Matapihi He our people to deliver housing on housing outcomes, we can only hope Tirohanga mō te iwi Trust will, Māori land, their ancestral pride lands. that the Crown feels the same way. whenever possible, look to broker and facilitate a Crown–Māori The correlation I wish to make here is The second iteration of the Māori relationship to improve housing as a former Adviser to the Ministry of curriculum bought our people back outcomes. If this connection assists to Education. I saw and understood first- into the fold and enabled the create better treaty relations, then we hand in the mid-nineties how our co-construction of its educational will keep on keeping on. elders gave freely of their knowledge ideals, philosophies and cultural to develop and inform the Māori context and was, in the main, E eke anō te waka, I runga i te waipuke curriculum, only to see them hurt that welcomed by the Māori education — A choppy ocean can still their contributions both in language sector. The lesson from this is in what be navigated. 58 Endnotes 1. Te Marautanga o Aotearoa 2008 — In line with the spirit and intent of the Treaty of Waitangi, the national curriculum of New Zealand consists of two curriculum statements, the New Zealand Curriculum and Te Marautanga o Aotearoa: http://www.ero.govt.nz/publications/ readiness-to-implement-te-marautanga- o-aotearoa-and-nga-whanaketanga-rum aki- maori-te-whakarite-ki-te- whakatinana-i-te-marautanga-o-aotearo a-me-nga- whanaketanga-rumaki- maori/background/ 2. Home Ownership on Māori Land Product: https://www.kiwibank.co.nz/ personal-banking/home-loans/rates- and-options/ kainga-whenua/ 3. http://www.welcomehomeloan.co.nz/ 4. Kānohi ki te Kānohi, upoko ki te upoko rānei? — Crown and treaty partner relations, are they a face-to-face or head to head relationship? Professor Roger CA Maaka, October 2009, Māori Perspectives Training — Environmental Risk Management Authority Board. 5. Whānau ora — Family Health: contemporary indigenous health initiative in New Zealand driven by Māori cultural values. Its core goal is to empower communities and extended families (whānau) to support families within the community context rather than individuals within an institutional context. 6. Taiāo — Tapestry of cultural diversity: Te Kei Merito; Tūmuaki Tuarua: Ngā Kaihautū Tikanga Taiāo 2011. Photo provided by Brook Turner, Head of Community Services Development, VisionWest Community Trust

59