New Zealand Definition of Homelessness

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Citation Statistics New Zealand (2009). New Zealand definition of homelessness. Wellington: Author.

Published in July 2009 by

Statistics New Zealand Tatauranga Aotearoa Wellington, New Zealand

Contents

Rationale ...... 4 Concept ...... 4 Scope and review ...... 6 Definition and requirements ...... 6 Explanatory notes ...... 7 Guidelines for inclusion and exclusion ...... 8 Inclusions ...... 8 Exclusions ...... 9 Glossary...... 9 References ...... 11 Appendix 1 ...... 12 Appendix 2 ...... 18 Appendix 3 ...... 20

Rationale An agreed definition of homelessness is required to fill a gap in official statistics so that government and community groups can make well-informed decisions on the level and nature of homelessness in New Zealand. A definition of homelessness will also facilitate assessment of options for intervention, including identifying the demographics of those most in need, and the level of response required. Those requiring emergency housing will be able to be identified from the collection of homeless information. Consistent use of a common definition will: • enable production of quality, relevant official statistics that inform debate on the level of homelessness in New Zealand • facilitate broader public understanding of homelessness • enable the comparison and integration of data between agencies and across collections • be relevant for Mäori as tangata whenua, and inclusive of New Zealand’s cultural diversity • provide potential for some international comparability • facilitate more widely accepted research which produces comparable and consistent statistics.

Concept The concepts and definitions of homelessness have been adapted from the European typology of homelessness and housing exclusion (ETHOS: see Appendix 1), a framework used by European statistical offices, to meet the requirements of the societal, cultural and environmental contexts in New Zealand. A consideration for the New Zealand version of the homelessness definition is recognising 'concealed homeless' living situations (Edgar and Meert, 2006, p27), such as people who have no other housing option but to share someone else's accommodation on a temporary basis, and who have no security of tenure in doing so. Another consideration concerns people who live in housing which would not normally be considered suitable for habitation.

Homelessness conceptually forms part of the housing domain, covering housing exclusion. The scope of the housing domain covers private dwellings only, whereas the scope for homelessness must also include 'no dwellings' and 'non-private dwellings'. The definition of homelessness developed for New Zealand is based upon the same social, legal and physical domains as ETHOS. The intersections of the social, physical and legal domains within the housing domain are used as the basis for the conceptual framework. However, due to the specific emphasis on the New Zealand environment, the concepts have been modified to meet New Zealand's conceptual requirements. (see Appendix 1).

The social domain is being able to pursue normal social relations, have a personal (household) living space, maintain privacy and have safe accommodation.

The legal domain covers having exclusive possession, security of occupation or tenure.

The physical domain is the structural aspect of housing and means having habitable housing.

The intersection of these domains with housing led to the development of conceptual categories that represent the absence of safe, secure and habitable housing. The New Zealand conceptual

4 categories are 'without shelter', 'temporary accommodation', 'sharing accommodation ' and 'uninhabitable housing'. Not all intersections of these domains are covered within this definition of homelessness. Some of the 'inadequate' and 'insecure' sections of ETHOS are not included because they are not currently homeless according to ETHOS but rather at risk of becoming homeless (see Appendix 1).

Without shelter The intersection of housing with the social, legal, and physical domains means for those in living situations in the 'without shelter' category, they do not have personal living space, cannot maintain privacy and do not have safe accommodation within the social domain. They are without exclusive possession of accommodation and security of occupation in the legal domain, and do not have habitable housing in the physical domain.

Temporary accommodation The intersection of housing with the social, legal, and physical domains means for those living situations contained within the 'temporary accommodation' category, they may not have personal living space, may not be able to maintain privacy and/or may not have safe accommodation in the social domain. They are without exclusive possession of accommodation and security of occupation in the legal domain.

Sharing accommodation The intersection of housing with the social, legal, and physical domains means for those living situations contained within the 'sharing accommodation' category they may not have personal living space and may be unable to maintain privacy in the social domain. They are without exclusive possession of accommodation and security of occupation in the legal domain.

Uninhabitable housing

The intersection of housing with the social, legal, and physical domains means for those living situations contained within the 'uninhabitable housing' category do not have habitable housing in the physical domain.

Scope and review The statistical unit being measured is the living situation of people. Homelessness applies to statistical collections such as administrative data sources where people's living situations have been assessed according to the homelessness definition. The homelessness definition may also apply to surveys where an assessment has been made of the living situation to ascertain whether it aligns with one of the conceptual categories in the definition.

The constraint in providing for full coverage across all living situations of the homeless is the difficulty in locating them. (Edgar and Meert, 2006 p27). Therefore, the likelihood is that people in these living situations, temporary accommodation and sharing accommodation, may only be able to be measured when in contact with a provider, agency, or researcher.

Evaluation of this definition fits within a 3–5 year review cycle where practical after it has been applied to administrative data sources and possibly used in survey research. The aim is to have feedback from those using the definition in collection of homeless statistics so that it can be refined, if required, in the next review.

Definition and requirements Homelessness is defined as living situations where people with no other options to acquire safe and secure housing: are without shelter, in temporary accommodation, sharing accommodation with a household or living in uninhabitable housing.

NOTE The likelihood is that people without shelter, people staying long-term in motor camps and boarding houses, people sharing accommodation, and people residing in dilapidated dwellings may only be measured when in contact with a provider, agency or researcher.

The homeless living situations described for each of the conceptual categories of the definition are:

Without shelter Living situations that provide no shelter, or makeshift shelter, are considered as without shelter. These include living situations such as living on the street, and inhabiting improvised dwellings, such as living in a shack or a car.

Temporary accommodation Living situations are considered temporary accommodation when they provide shelter overnight, or when 24-hour accommodation is provided in a non-private dwelling , and are not intended to be lived in long-term. This includes hostels for the homeless, transitional supported accommodation for the homeless, and women's refuges. As well as people staying long-term in motor camps and boarding houses, as these are not intended for long-term accommodation.

Sharing accommodation Living situations that provide temporary accommodation for people through sharing someone else's private dwelling. The usual residents of the dwelling are not considered homeless.

Uninhabitable housing Living situations where people reside in a dilapidated dwelling are considered uninhabitable housing.

See Appendix 2 for a draft of possible classification categories to operationalise these definitions.

Ideally, a number of variables should be collected together with homelessness information: age, sex, ethnicity, geographic location (except for women's refuges for safety reasons), family composition, related and unrelated groups, and iwi/hapu where required.

Explanatory notes People who have 'options to acquire safe and secure private accommodation' are not defined as homeless . This covers people who have other accommodation options as well as those who are looking for accommodation and have the means to acquire it through the usual channels, eg buying or renting. Work on crowding and housing quality is out of scope for the current definition and comes under the wider housing statistics work area. In focusing on living situations, the definition does not take account of the reasons for, predictors (pathways into), or prevention of homelessness. The nature of someone’s housing is a key factor in describing their living situation, but is not the only relevant information. People living in similar dwellings may be homeless, or not, depending on several contextual factors. Therefore, all of the following concepts may be used to describe relevant differences in living situation: with or without options to acquire safe and secure accommodation, type of dwelling, permanent or temporary, usual residence, on holiday.

People in the sharing accommodation living situation may be classified as visitors in other collections. For the purposes of this definition women's refuges are classified as non-private dwellings, whereas in other collections they may be classified as private for safety reasons. In some collections only if the dwelling has been described as private are demographic variables able to be collected, whereas in this definition that restriction does not apply. Although those who remain institutionalised because accommodation in the community is not available are not defined as homeless, it is important to monitor this via other data sources as an indicator of future housing need. Further background information from the proposed definition consultation paper is provided in Appendix 3, as well as a comparison with Australian and ETHOS definitions.

Guidelines for inclusion and exclusion

Inclusions People who move between the different forms of living rough, temporary shelter or sharing with a household are included. None of these is considered 'safe and secure' accommodation. People moving between the different living situations would be classified according to their current or latest living situation.

A minor may be moving between different households, temporary accommodation and the streets. If they have no options to acquire safe and secure accommodation they would be homeless, despite the fact that they may stay with family members some of the time. Minors moving between the different living situations would be classified according to their current or latest living situation.

People defined as homeless will include those who are on a waiting list for a home and whose current living situations are described in the definition.

People who have housing in another geographic location, but whose living situation in their current geographic location is considered homeless, are included. Possible reasons include economic reasons and disconnection from family.

Someone who may have recently had a usual residence but cannot return to it for safety reasons (eg due to the experience or threat of violence or sexual abuse), and has no other options to acquire safe and secure accommodation is counted as homeless.

Temporary accommodation There may be some services for homeless people being provided at a marae, possibly including temporary accommodation, but currently the practice is not widespread. Temporary accommodation being provided at a marae would be included in the temporary accommodation category.

Motor camps and camping grounds provide accommodation for temporary rather than long-term habitation and living situations present in these complexes are included as homeless if there are no other options to acquire safe and secure private accommodation.

Sharing accommodation Includes situations where a household invites one or more families to stay in their home. Includes situations in which family members may be split up to be accommodated by several other households.

Uninhabitable housing The uninhabitable housing category covers dilapidated dwellings that have inadequate or absent utility services.

Exclusions • Casual rough sleepers who have a home elsewhere, eg people sleeping in a park overnight or people on holiday sleeping out, are excluded. • Tourists and travellers are excluded even if they have no usual residence, such as retirees who have sold their house and are touring in a mobile home or travellers living in converted house trucks. • Students living in halls of residence and hostels are excluded. • Temporarily homeless because of civil defence emergencies are excluded. • Anyone who is between places, such as students staying with friends while looking for a flat, or someone staying in a boarding house, having recently moved into the area, is excluded.

Temporary accommodation Excludes supported housing that is intended for long-term accommodation such as IHC group homes.

Sharing accommodation category The household whose usual residence it is are not counted as homeless.

Uninhabitable housing category Dwellings that are cold, damp, leaky or not insulated and not dilapidated are excluded from the uninhabitable housing category.

Glossary

Dilapidated buildings Dilapidated buildings are defined as buildings that are in an advanced state of deterioration, to the point of being uninhabitable by current social norms. Indicators may include: surroundings unkempt or overgrown, extensive exterior deterioration, roof is not weather proof, doors/windows broken or not secure, essential services have been cut, interior is bare and deteriorating, evidence of vandalism. (Statistical standard for dwelling occupancy status.)

Household A household is defined as one person who usually resides alone or two or more people who usually reside together and share facilities (such as eating facilities, cooking facilities, bathroom and toilet facilities, a living area). (Statistical standard for household composition.)

Improvised dwellings Dwellings or shelters not necessarily erected for human habitation but which are occupied. The structure will support a roof of some kind, no matter how roughly fashioned or makeshift, and will lack some or all of the usual household amenities such as electric lighting, piped water, bathroom, toilet, and kitchen/cooking facilities. For example, shacks, garages, and private vehicles other than those designed as, or converted into, dwellings. (Statistical standard for occupied dwelling type.)

Non-private dwelling A non-private dwelling provides short or long-term communal or transitory type accommodation. Non-private dwellings are generally available to the public for reasons of employment, study, special need, legal requirement or recreation. (Statistical standard for occupied dwelling type.)

Places of habitation with no dwelling Public or outdoor areas not intended for human habitation but which are occupied, including public parks, bus shelters, under bridges, on beaches, in caves, train stations, doorways, and private property such as car parks and farm land are included in the roofless or rough sleeper category. (Statistical standard for occupied dwelling type.)

Private dwelling A private dwelling accommodates a person or a group of people. It is not generally available for public use. The main purpose of a private dwelling is as a place of habitation, and it is usually built (or converted) to function as a self-contained housing unit. (Statistical standard for occupied dwelling type.)

Supported accommodation Supported housing can be provided in the community or within a residential care facility. It includes houses providing care for people with disabilities, group homes (such as IHC group homes), staffed residential accommodation and halfway houses. (Statistical standard for occupied dwelling type.)

Usual residence Usual residence is the address of the dwelling where a person considers himself or herself to usually reside, except in the specific cases listed in the guidelines, ie: • Dependent children who board at another residence to attend primary or secondary school, and return to their parent’s(s’) or guardian’s(s’) home for the holidays, usually reside at the address of their parent(s) or guardian(s). Tertiary students usually reside at the address where they live while studying. If they give up their usual residence in the holidays (eg terminate the lease on a flat or give up their hostel room) and return to their parent/guardians' home during the holidays, their usual residence over that period would be their parent/guardians' home. • Children in shared care usually reside at the place where they spend more nights, or if they spend equal amounts of time at each residence, they usually reside at the place where they are at the time of the survey. • People who are in rest homes, hospitals, prisons or other institutions, usually reside where they consider themselves to live, and this may include the institution. • A person whose home is on any ship, boat or vessel permanently located in any harbour shall be deemed to usually reside at the wharf or landing place (or main wharf or landing place) of the harbour. • A person from another country who has lived in New Zealand the past 12 months, or has the intention of living in New Zealand for 12 months or more, usually resides at his or her address in New Zealand. • People of no fixed abode have no usual residence. However, for enumeration purposes, Statistics New Zealand assigns a meshblock of usual residence to people of no fixed abode based on their location on the date of data collection. They are still recorded as having 'no fixed abode'. (Statistical standard for usual residence.)

References

Edgar W. et al. (2007). Measurement of homelessness at EU level, Study conducted for the European Commission . Available from: http://ec.europa.eu/employment_social/social_inclusion/docs/2007/study_homelessness_en.pdf

Edgar B. & Meert H. (2006). (in collaboration with the correspondents of the European Observatory on Homelessness), Fifth Review of Statistics on Homelessness in Europe , European Federation of National Organisations Working with the Homeless (FEANTSA).

Edgar B. & Meert H. (2005). (in collaboration with the correspondents of the European Observatory on Homelessness), Fourth Review of Statistics on Homelessness in Europe: The ETHOS definition of homelessness , European Federation of National Organisations Working with the Homeless (FEANTSA).

European Federation of national organisations working with the homeless (FEANTSA), 2011 Round of Population and Housing Censuses: FEANTSA Recommendations for the enumeration of homeless people on census night , November 2008.

European Federation of National Organisations Working with the Homeless (FEANTSA), ETHOS 2007 European Typology of Homelessness and housing exclusion

Working group for the definition of homelessness comprising Statistics New Zealand, Housing New Zealand Corporation, Ministry of Social Development, ‘Developing a definition of homelessness: Revised discussion paper’, 20/3/2009. Available from: http://www.stats.govt.nz/statistical-methods/classifications-standards/discussion-paper.htm

Working group for the definition of homelessness comprising Statistics New Zealand, Housing New Zealand Corporation, Ministry of Social Development, 'New Zealand definition of homelessness: proposed final draft', May 2009 (unpublished).

Appendix 1

Living situations from ETHOS not contained in the New Zealand definition Several living situations that are defined as homelessness in the ETHOS definitions are excluded from the New Zealand definition as they are at either at risk of being homeless (eg at risk of violence), or are covered under housing provision currently (eg immigration hostel, residential care for the elderly). These are: People in accommodation for immigrants Immigration hostels are not currently present in New Zealand, and refugee requirements on arrival are currently covered under housing provision, eg the Mangere refugee centre.

People receiving longer-term support (due to homelessness) There is provision of residential care for older homeless people through social service agencies.

People due to be released from institutions The living situation of people who are about to be discharged from prison without housing available, is excluded. While these living situations are included in ETHOS and ETHOS ‘light’ the authors comment that: “…people in prison without a home to go to are not actually homeless until the date of their release. While for policy purposes it may be important to know this number to plan services, for statistical purposes it is (strictu sensu) the ex-post situation that can be counted as homeless.” (Edgar W et al. 2007:67-68) This represents potential homelessness, and there would be a danger of double counting prisoners after release when they became homeless. A similar issue exists with discharge from other institutions, eg people discharged from mental health services may have housing arranged for them but would also be counted as homeless if they are in one of the homeless living situations. Young people in children’s homes/institutions reaching the age of independence (eg 18 years) with no housing identified are not considered homeless, but may be at risk of homelessness.

People under threat of eviction or violence People who have received notice of eviction or re-possession of their home legally terminating their private dwelling tenure are not included in the homeless count. Nor are those living in a dwelling which is unsafe and insecure due to violence or sexual abuse. Within the ETHOS typology, people living in these situations are defined as “at imminent risk of homelessness”. (Edgar & Meert 2005:63). While they may potentially become homeless, based on the New Zealand definition they would not be counted as homeless until they have moved into one of the homeless living situations.

Similarities and differences between NZ and ETHOS operational categories The following DRAFT comparison of operational categories is included to assist with understanding of the differences and similarities between ETHOS (2007) and New Zealand (NZ) definitions. As with ETHOS, the inclusion of some living situations causes measurement issues due to the difficulties of enumerating people in those situations eg inhabiting abandoned buildings. The constraint in providing for full coverage across all living situations of the homeless is the difficulty in locating them. (Edgar and Meert, 2006 p27). Therefore, the likelihood is that people in these living situations may only be able to be measured when in contact with a provider or agency or researcher.

There are differences between the NZ temporary accommodation operational category and the ETHOS operational categories which means they are not directly comparable. NZ's temporary accommodation applies only to non-private dwellings whereas ETHOS applies to temporary/non-standard structures.

The comparison is also limited because of the general operational requirements that the person has no options to acquire safe and secure accommodation.

Table 1 New Zealand homelessness DRAFT operational categories and DRAFT equivalents to ETHOS operational categories

NZ conceptual NZ living situations NZ operational Constraints to Ethos operational categories definition category DRAFT operationalisation of category (2006 & 2007) NZ definitional (1) DRAFT equivalents categories Without shelter Living situations that Without shelter The likelihood is that Roofless provide no shelter or 1a. People living people without shelter 1. People living rough makeshift shelter are rough may only be 11. People living in considered as without 1b. People living in measured when in temporary/non-standard shelter. improvised contact with a structures but category dwellings provider, agency or 11.1 may only partially researcher. be equivalent (caravan) and 11.2 relates to both 1a (NZ caves) and 1b. (NZ shacks). Temporary Living situations are Temporary The likelihood is that Houseless accommodation considered temporary accommodation people staying long- 2. People staying in a accommodation when 2a. People staying term in motor camps night shelter they provide shelter in night shelters and boarding houses, 3. People in over-night, or when 2b. People staying may only be accommodation for the 24 hour in transitional measured when in homeless accommodation is supported contact with a 4. People in women's provided in a non- accommodation provider, agency or shelter private dwelling , and 2c. People staying researcher. 11. People living in are not intended to be in women's refuges temporary/non-standard lived in long-term. 2d. People staying structures - except some in boarding houses non-standard and 2e. People staying temporary structures are in camping included in the NZ 1b grounds/motor operational category camps (see draft classification, 2f. People staying in Appendix 2). homeless hostel 2g. People staying in a marae Sharing Living situations that Sharing The likelihood is that Insecure accommodation provide temporary accommodation people sharing 8. People living in accommodation for 3a People sharing accommodation may insecure accommodation people through accommodation only be measured but only category 8.1 sharing someone with someone else's when in contact with a Temporarily with else's private household. provider, agency or family/friends applies to dwelling. researcher. NZ 3a. Uninhabitable Living situations Uninhabitable The likelihood is that Inadequate housing where people reside housing people residing in 12. People living in unfit in a dilapidated 4a People staying in dilapidated dwellings housing. building are uninhabitable may only be considered housing. measured when in uninhabitable contact with a housing. provider, agency or researcher.

(1) See below for the complete Ethos typology 2007.

The ETHOS typology summarised (Edgar and Meert, 2006, p57-58.)

In order to define homelessness in an operational way, the FEANTSA approach identifies three domains which constitute a home, the absence of which can be taken to delineate homelessness. Having a home can be understood as: having a decent dwelling (or space) adequate to meet the needs of the person and his/her family (physical domain); being able to maintain privacy and enjoy social relations (social domain) and having exclusive possession, security of occupation and legal title (legal domain).

These three domains of homelessness (see figure 2) visualises seven theoretical types of homelessness and housing exclusion (see table 2), varying between rough sleeping on the one side and living within a decent and legally occupied dwelling without safety (eg women who experience domestic abuse) on the other side. These are explained in the Third Review of Homeless Statistics (Edgar et al, 2 004) and form the basis of the ETHOS typology of homelessness (see table 2).

Using this conceptual understanding of homelessness, FEANTSA adopted a conceptual definition of homelessness and housing exclusion outlined in table 2. This conception of homelessness is still being discussed within the European observatory on Homelessness (EOH) and the FEANTSA Data Collection Working Group. This is in order to confirm the nature of living situations and the differences in nomenclature and understanding between countries so that the operational categories can be more generic definitions that will allow application to different national contexts.

The FEANTSA ETHOS typology includes homelessness and housing exclusion. Hence homelessness is defined primarily as the roofless and houseless concepts which are operationally defined in seven main categories. However, the definition recognises that legislation in some countries identifies some situations of insecure housing (eg illegal occupation of land) and situations of inadequate housing (eg occupying mobile homes) as

15 homeless. The documentation also recognises that in a number of countries, for policy purposes, people leaving institutions within a defined period and people with enforced eviction orders are regarded as homeless even though they are not ex post-homeless. Finally, the explanation of the operational categories recognises the difficulty of treating as homeless people living in supported housing for homeless people for more than a transitional period (Edgar and Meert, 2005).

Table 2 Seven theoretical domains of homelessness

Conceptual category Physical Legal domain Social domain domain H 1 Rooflessness No dwelling No legal title to a No private and safe o (roof) space personal space m for exclusive for social relations e possession l 2 Houselessness Has a place to No legal title to a No private and safe e live, space personal space s fit for habitation for exclusive for social relations s possession n e s s 3 Insecure and Inadequate Has a place to No security of Has space housing live tenure for social relations H (not secure o and unfit for u habitation) s 4 Inadequate housing and Inadequate Has legal title No private and safe i social isolation within a dwelling and/or security of personal space n legally occupied (unfit for tenure for social relations g dwelling habitation) 5 Inadequate housing Inadequate Has legal title Has space e (secure tenure) dwelling and/or security of for social relations x (dwelling unfit tenure c for habitation) l 6 Insecure housing Has a place to No security of Has space u (adequate housing) live tenure for social relations s i o 7 Social isolation within a Has a place to Has legal title No private and safe n secure and adequate live and/or security of personal space context tenure for social relations

Table 3 ETHOS – European typology on homelessness and housing exclusion categories The conceptual categories are on the far left of the table: roofless, houseless, insecure and inadequate. The operational categories 1-7 are considered to define homelessness, while categories 8-13 represent other forms of housing exclusion.

Conceptual category Living situation Generic definition R 1 People living 1.1 Public space or external Living in the streets or public spaces, O rough space without a shelter that can be defined as O living quarters F L 2 People in 2.1 Night shelter People with no usual place of residence E emergency who make use of overnight shelter, low S accommodation threshold shelter S 3 People in 3.1 Homeless hostel accommodation 3.2 Temporary accommodation Where the period of stay is intended to be for the homeless 3.3 Transitional supported short term accommodation 4 People in a 4.1 Women’s shelter Women accommodated due to experience women’s shelter accommodation of domestic violence and where the period H of stay is intended to be short term O 5 People in 5.1 Temporary accommodation / Immigrants in reception or short term U accommodation . . reception centres accommodation due to their immigrant S for immigrants 5.2 Migrant workers status E accommodation L 6 People due to be 6.1 Penal institutions No housing available prior to release E S released from 6.2. Medical institutions (includes Stay longer than needed due to lack of S institutions . drug rehabilitation, psychiatric housing . . . . . hospital, etc.) No housing identified (e.g by 18th 6.3 Children’s institution / homes birthday) 7 People receiving 7.1 Residential care for older Long stay accommodation with care for longer-term … homeless people …………….. formerly homeless people (normally more support (due to than one year) homelessness) 7.2 Supported accommodation for formerly homeless people 8 People living in 8.1 Temporarily with family/friends Living in conventional housing but not the insecure ...... usual or place of residence due to lack of accommodation 8.2 .………. housing I . No legal (sub) tenancy . . . . . Occupation of dwelling with no legal N . tenancy illegal occupation of a dwelling S 8.3 Illegal occupation of land …… E Occupation of land with no legal rights C U 9 People living 9.1 Legal orders enforced (rented) Where orders for eviction are operative R under threat of Re-possession orders Where mortgagor has legal order to re- E eviction 9.2 (owned) possess 10 People living 10.1 Police recorded incidents Where police action is taken to ensure under threat of place of safety for victims of domestic violence violence I 11 People living in 11.1 Mobile home Not intended as place of usual residence N temporary / non- Makeshift shelter, shack or shanty A conventional 11.2 Non-conventional building Semi-permanent structure hut or cabin D structures 11.3 Temporary structure E Q 12 People living in 12.1 Occupied dwellings unfit for Defined as unfit for habitation by national U unfit housing habitation legislation or building regulations A 13 People living in 13.1 Highest national norm of Defined as exceeding national density T extreme overcrowding standard for floor-space or useable rooms E overcrowding

Appendix 2

The draft classification and criteria are included here to assist in understanding the definition and will be finalised for the standard of homelessness. Draft classification Living situations for each conceptual category are separately classified.

Draft classification criteria The principal criterion for classifying homelessness is based upon the distinctions between no dwelling, private dwellings and non-private dwellings.

Those with no dwelling are classified in category one, living rough. Non-private dwellings are classified in category two, temporary accommodation. Private dwellings are classified in category three, sharing accommodation, when: the living situation of the person is sharing someone else's accommodation and it is not the person's own dwelling. In category four private dwellings are classified here if the dwelling is dilapidated yet inhabited.

1 Living rough 11 Living outside 111 Living on the street 119 Living outside nec 12 Living in improvised dwellings 121 Makeshift shelter 122 Shack 123 Tent 124 Garage 125 Vehicle (excl vehicles in motor camp) 129 Living in improvised dwellings nec

2 Temporary accommodation 21 Night shelters 211 Night shelter 212 Police cells 22 Transitional supported accommodation 221 Transitional supported accommodation (mental health providers) 229 Transitional supported accommodation nec 23 Refuges for victims of violence 231 Women's refuge 239 Refuges nec 24 Boarding houses 241 Boarding house 25 Camping grounds/motor camps 251 Caravan 252 Cabin 253 Mobile home 259 Other nec 26 Homeless hostel 261 Homeless hostel

27 Marae 271 Marae 29 Other temporary and emergency accommodation 291 Other temporary and emergency accommodation (eg emergency accommodation in motels, backpackers)

3 Sharing accommodation 31 Sharing accommodation 311 Sharing accommodation with a one person household 312 Sharing accommodation with a one family household 313 Sharing accommodation with a two or more family household 314 Sharing accommodation with other multi-person household 319 Sharing accommodation nec

4 Uninhabitable housing 41 Uninhabitable housing 411 Dilapidated dwelling 419 Uninhabitable housing nec

Appendix 3

Excerpts from the working group consultation paper New Zealand definition of homelessness: proposed final draft . 26/5/2009

Introduction (page 2)

In early 2008, the Ministers of Statistics and Housing requested that their respective agencies develop an agreed definition of homelessness that would assist in the enumeration of homelessness in New Zealand. A working group was established in July 2008 with members from Statistics New Zealand, Housing New Zealand Corporation and the Ministry of Social Development to carry out the definitional work.

Currently in New Zealand there is no statistical definition of homelessness for use across government. An agreed definition of homelessness is required for government policy planning purposes. It will assist government organisations and researchers to measure and monitor homelessness for policy and service provision.

A common definition can facilitate: • More informed debate on homelessness at the local level, and broader public understanding of the issues • The ability to compare data between agencies and across geographic regions • More widely accepted research and statistics that are comparable in their findings.

A common definition for the whole community needs to be relevant for Mäori as tangata whenua, and inclusive of New Zealand’s cultural diversity.

The extent of homelessness may not always be apparent in the New Zealand environment as New Zealanders tend to take people into their homes (temporarily at the outset) who might find themselves on the street in other countries, or people occupy or continue to live in substandard housing. Hence, in New Zealand homelessness intersects in a unique way with issues of sharing and housing quality.

A discussion paper on defining homelessness was published on Statistics New Zealand’s website, and a range of central government, local government, service delivery, research and community organisations were consulted as stakeholders in developing the proposed definition.

All of the approaches to defining homelessness that were considered for New Zealand focus on the living situations, rather than the person. The public consultation on defining homelessness found support for both the ETHOS typology and the Australian definition. The consultation document acknowledged that both definitions would require adaptation for New Zealand. Some of the feedback supported a combination of both approaches, and some suggested that there was sufficient alignment between the ETHOS and Australian approaches at the living situation level to develop a definition that would have some comparability with both.

One of the advantages of the ETHOS typology is that it is broad enough to cover issues such as crowded and substandard housing that are important in New Zealand. However, it also includes living situations that are not applicable in New Zealand and would need to be excluded. Through

20 feedback, themes also emerged regarding the adaptations required for New Zealand, and living situations that ought to be included.

The consultation suggested neither approach be adopted in its entirety.

Further information and clarification (page 6)

Comparability with international definitions of homelessness The following table compares the coverage of the proposed definitions with the Australian and ETHOS definitions of homelessness.

Proposed Australian ETHOS ETHOS What is included? definition definition* definition* ‘light’*

No dwelling Public or outdoor places Yes Yes Yes Yes Improvised dwellings** Yes Yes No Yes Night shelter Yes Yes Yes Yes

Non-private dwelling Temporary shelter – non-private Yes Yes Yes Yes Staying long term in shelter or Yes No? Yes? No? hostel Shelter or refuge for victims of Yes Yes Yes Yes violence

Private dwelling** Sharing another household’s home Yes Yes No Yes Substandard housing Yes No No No

* Information and references on the Australian and ETHOS definitions was included in Developing a definitions of homelessness: Revised discussion paper (2009). ETHOS ‘light’ is an abridged version of ETHOS intended for use in European censuses being conducted in 2011. For more information see Edgar et al. (2007) and FEANTSA (2008).

** The ETHOS typology of homelessness and housing exclusion does include categories similar to the improvised and private dwelling living situations shown here, but appears to define them as insecure or inadequate housing rather than homelessness. This distinction is highlighted by Edgar and Meert (2006:58).