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Crisis Accommodation Program in NSW: a Background Paper

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Crisis Accommodation Program in NSW: a Background Paper Crisis Accommodation Program in NSW: a background paper Paul van Reyk May 2013 ‘Crisis Accommodation Program in NSW: a background paper’ By Paul van Reyk First published in May 2013. This copy printed 10 May 2013. Shelter Brief 53 ISSN 1448-7950 © Shelter NSW Incorporated 2013 Shelter NSW 377 Sussex Street, Sydney NSW 2000 www.shelternsw.org.au This paper may be reproduced in part or whole by non-profit organisations and individuals for educational purposes, so long as Shelter NSW is acknowledged. Any opinions expressed in this paper are those of the author and do not necessarily reflect the views of Shelter NSW. Shelter NSW gratefully acknowledges the financial contribution of Homelessness NSW towards this project: www.homelessnessnsw.org.au. Shelter NSW and the author sincerely thank the interviewees and organisations who generously contributed to this project, including Adam Farrar, Leonie King, Gary Moore, Southern Youth and Family Services, and Yfoundations. Research for this report was undertaken from October 2012 to March 2013. The data in this paper are, to the best of the author’s knowledge, current as at March 2013. While every effort has been made to ensure the information is up-to-date and accurate, socio-economic conditions, public policy and the law are constantly changing. Shelter NSW accepts no responsibility for any errors resulting from unforeseen inaccuracies or for damage or loss suffered by any individual or agency as a result. Readers are advised to seek professional advice and refer to relevant legislation, as necessary, before taking action in relation to any matters covered by this document. Contents Executive summary ................................................................................................... 1 Introduction .............................................................................................................. 4 Context .......................................................................................................................... 4 The research project ...................................................................................................... 5 Methodology ................................................................................................................. 6 1. Building blocks ...................................................................................................... 7 1.1 Funding for homelessness capital programs pre-CAP................................................ 7 1.2 The Crisis Accommodation Program ......................................................................... 8 1.2.1 Establishment ................................................................................................ 8 1.2.2 CAP guidelines 2006 ....................................................................................... 9 1.2.3 The end of CAP ............................................................................................ 11 1.3 Supported Accommodation Assistance Program .................................................... 12 1.3.1 Aim .............................................................................................................. 12 1.3.2 Implementation ........................................................................................... 12 1.4 Public housing ........................................................................................................ 14 1.5 Community housing ............................................................................................... 14 2. Stocktake of CAP properties ............................................................................... 17 2.1 Number of properties ............................................................................................ 17 2.2 CAP as a proportion of the total NSW social housing sector.................................... 18 2.2 Distribution of CAP properties ................................................................................ 21 2.2.1 Regional distribution of CAP properties ........................................................ 21 2.2.2 Regional distribution of specialist homelessness services compared to regional distribution of CAP properties ................................................................. 22 2.2.3 Regional distribution of CAP properties by specialist homelessness service type ...................................................................................................................... 24 3. Maintenance and management of CAP properties ............................................. 25 3.1 Background ............................................................................................................ 25 3.2 Maintenance .......................................................................................................... 27 3.2.1 The responsibility for maintenance up to 2012 ............................................ 27 3.2.2 The standard and timeliness of maintenance ............................................... 28 3.2.3 Undertaking maintenance in the future ....................................................... 31 3.2.4 Paying for maintenance of CAP properties ................................................... 33 3.2.5 Insurance on CAP properties ........................................................................ 40 3.2.6 Tenancy management.................................................................................. 41 3.2.7 Registration as community housing provider ............................................... 44 4. The use of CAP properties ................................................................................... 47 4.1 Who is accommodated in CAP properties? ............................................................. 47 4.1.1 Demographic characteristics ........................................................................ 47 4.1.2 Changing client needs .................................................................................. 48 4.2 Lengths of stay in CAP properties ........................................................................... 51 4.3 Specialist homelessness service and community housing provider CAP partnerships .................................................................................................................................... 53 4.4 Specialist homelessness service offices in CAP properties ....................................... 57 5. The place of CAP properties in the future homelessness response continuum . 59 5.1 Going Home Staying Home ..................................................................................... 59 5.2 CAP properties in the homelessness response continuum ...................................... 60 5.3 Exit points from CAP............................................................................................... 62 5.3.1 Waiting lists for social housing ..................................................................... 63 5.3.2 Housing Pathways ........................................................................................ 63 5.3.3 The lack of social and affordable rental housing ........................................... 66 5.4 The shape of specialist homelessness services in the future ................................... 68 Acronyms used in the text ...................................................................................... 70 Appendix 1. Shelter NSW Crisis Accommodation Program project consultation questions ................................................................................................................ 71 Appendix 2. CAP Properties by local government area and Housing NSW region .. 72 Central Coast ........................................................................................................ 72 Coastal Sydney ..................................................................................................... 73 Greater Western Sydney ...................................................................................... 74 Hunter .................................................................................................................. 75 Illawarra ............................................................................................................... 75 New England ........................................................................................................ 76 North Coast .......................................................................................................... 77 Riverina Murray .................................................................................................... 78 South-East ............................................................................................................ 79 Western ............................................................................................................... 80 Endnotes ................................................................................................................. 81 Executive summary This report is about the ‘state of play’ of the dwellings funded under the Crisis Accommodation Program (CAP) in New South Wales. The report covers the history of the program, explores how the properties are being used by specialist homelessness services and registered community housing providers, and looks at what role specialist homelessness services see for these dwellings part of a comprehensive response to homelessness. Stocktake of CAP properties 1. While the number of CAP properties has increased
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