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An International Review of Homelessness and Social Housing Policy

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An International Review of Homelessness and Social Housing Policy An International Review of Homelessness and Social Housing Policy www.communities.gov.uk community, opportunity, prosperity An International Review of Homelessness and Social Housing Policy Suzanne Fitzpatrick and Mark Stephens Centre for Housing Policy, University of York November 2007 Department for Communities and Local Government: London The findings and recommendations in this report are those of the authors and do not necessarily represent the view of the Department for Communities and Local Government Department for Communities and Local Government Eland House Bressenden Place London SW1E 5DU Telephone: 020 7944 4400 Website: www.communities.gov.uk © Queen’s Printer and Controller of Her Majesty’s Stationery Office, 2007 Copyright in the typographical arrangement rests with the Crown. This publication, excluding logos, may be reproduced free of charge in any format or medium for research, private study or for internal circulation within an organisation. This is subject to it being reproduced accurately and not used in a misleading context. The material must be acknowledged as Crown copyright and the title of the publication specified. Any other use of the contents of this publication would require a copyright licence. Please apply for a Click-Use Licence for core material at www.opsi.gov.uk/click-use/system/online/pLogin.asp, or by writing to the Office of Public Sector Information, Information Policy Team, St Clements House, 2-16 Colegate, Norwich, NR3 1BQ. Fax: 01603 723000 or email: [email protected] If you require this publication in an alternative format please email [email protected] Communities and Local Government Publications PO Box 236 Wetherby West Yorkshire LS23 7NB Tel: 08701 226 236 Fax: 08701 226 237 Textphone: 08701 207 405 Email: [email protected] or online via the Communities and Local Government website: www.communities.gov.uk November 2007 Reference Number: 07 ASCT04901 ISBN: 978 1 85112 888 4 Contents Acknowledgments 7 Glossary of terms 11 Executive summary 13 Introduction 13 Social rented housing 14 Size of sector 14 Ownership of social rented housing 14 Demand 15 Security of tenure 15 Eligibility 15 Allocation policies 15 Income mixing 16 Excluded households 16 Homelessness 16 Scale, nature and causes of homelessness 16 A right to accommodation? 17 State-funded homelessness programmes 18 Strengths and weaknesses of systems of homelessness assistance 18 Conclusions 19 Chapter 1: Introduction 21 Introduction 21 Context and selection of countries 21 Research approach 22 Structure of the report 22 Chapter 2: The Social Rented Sector 23 Introduction 23 Size of the social rented sector 25 Trends 26 The ownership of social rented housing 27 Demand for social rented housing 29 Indicators of demand for social rented housing 30 Indicators of housing need 30 Low demand 31 Security of tenure 31 Eligibility 33 Immigrants 38 Allocations 40 Allocation criteria 41 Allocation process 42 Income mixing 43 Excluded households 44 Conclusions 46 6|An International Review of Homelessness and Social Housing Policy Chapter 3: Homelessness 47 Introduction 47 Scale, nature and causes of homelessness 47 Scale of homelessness 47 The causes of homelessness 53 The nature of the homeless population 54 The relationship between the scale, nature and causes of homelessness 56 A right to accommodation? 57 Enforceable rights leading to settled housing for homeless people 58 Enforceable rights leading to settled housing for particular social groups 61 Enforceable rights to emergency shelter/accommodation 61 ‘Indirect’ rights to accommodation and other assistance through social welfare legislation 63 State-funded homelessness programmes 63 Who provides state-funded homelessness services? 66 Who receives state-funded homelessness services? 68 What is provided? 69 Strengths and weaknesses of systems of homelessness assistance 73 English-speaking countries 73 EU-15 countries 74 A8 Accession countries 74 Conclusions 75 Chapter 4: Conclusions 77 References 79 Annex I: Country profiles 82 Acknowledgments | 7 Acknowledgments The analysis in this report is based largely on detailed survey responses by homelessness and social housing experts in each of the surveyed countries. We would like to thank all of the country experts for the detailed information they provided, and also for their willingness to comment on successive drafts of the report. The country experts were as follows. AUSTRALIA Vivienne Milligan Adjunct Associate Professor, Urban and Regional Planning and Director Australian Housing and Urban Research Institute (AHURI) Sydney Research Centre Faculty of Architecture (G04) University of Sydney NSW 2006 CANADA Zabia Chamberlain Director/Directrice Policy and Government Relations Anna Lenk Policy and Research Division Canada Mortgage and Housing Corporation 700 Montreal Road Ottawa Ontario K1A 0P7 Kareem D. Sadiq Strategic Research Analyst Human Resources and Social Development Canada Housing and Homelessness Branch 165 rue Hôtel-de-Ville, 7ième étage / 7th Floor, Pièce / Room 7D191 Gatineau Québec K1A 0J2 8|An International Review of Homelessness and Social Housing Policy CZECH REPUBLIC Martin Lux Institute of Sociology, Academy of Sciences Jilská 1 110 00 Praha 1 FRANCE Jean-Claude Driant Institut d'Urbanisme de Paris Université Paris 12 – Val-de-Marne 61, avenue du Général-de-Gaulle 94010 Créteil cedex Férial Drosso Institut d'Urbanisme de Paris Université Paris 12 – Val-de-Marne 61, avenue du Général-de-Gaulle 94010 Créteil cedex GERMANY Volker Busch-Geertsema GISS Gesellschaft für innovative Sozialforschung und Sozialplanung Kohlhökerstrasse 22 D-28203 Bremen HUNGARY Nora Teller Researcher Metropolitan Research Institute H – 1093 Budapest Lónyay u. 34 Eszter Somogyi Metropolitan Research Institute H – 1093 Budapest Lónyay u. 34 Eva Gerohazi Metropolitan Research Institute H – 1093 Budapest Lónyay u. 34 Acknowledgments | 9 NETHERLANDS Guido van Steen Delft University of Technology OTB Research Institute for Housing, Urban and Mobility Studies Jaffalaan 9, 2628 BX Delft POLAND Jerzy Adamski IRM, Instytut Rozwoju miast (Institute of Urban Development) Ul. Cieszynska 2 30-015 Kraków SPAIN Montserrat Pareja Eastaway Escola d'Empresarials Departament de Teoria Econòmica Universitat de Barcelona Avinguda Diagonal, 696. 3a planta 08034 Barcelona SWEDEN Ingrid Sahlin Department of Sociology Göteborg University PO Box 640 SE 40530 Göteborg UNITED STATES Martha Burt Urban Institute 2100 M Street, N.W. Washington, DC 20037 10 | An International Review of Homelessness and Social Housing Policy We are very grateful to Keith Kirby, who managed the project on behalf of Communities and Local Government, for all his help and support in finalising the report. We would also like to thank the following who gave us helpful comments on earlier drafts of this report, or provided other advice or assistance: William Edgar (University of Dundee, UK) Mike Dailly (Principal Solicitor, Govan Law Centre, Glasgow) Michelle Norris (University College, Dublin) Hal Pawson (Heriot Watt University, UK) Nicholas Pleace (University of York, UK) Frank Wassenberg (OTB Delft Technical University, Netherlands) Judith Woolf (Trimbos Institute, Netherlands) Finally, we are grateful to Jane Allen and Lynne Lonsdale (University of York) who assisted with the administration of the research and helped to prepare the report for publication. All opinions expressed in this report are those of the authors, and are not necessarily shared by the country experts or those who commented on drafts. All remaining errors are the sole responsibility of the authors. Glossary of terms | 11 Glossary of terms A8 Accession states: The new member states which joined the European Union (EU) on 1st May 2004 (with the exception of Cyprus and Malta). These countries are Czech Republic, Estonia, Hungary, Latvia, Lithuania, Poland, Slovakia and Slovenia. Commonwealth State Housing Agreement (Australia): Australian federal housing programme agreed between the government and the states and territories. The current agreement runs from 2003-08 and will provide AUS$4.75 bn for a variety of housing programmes including social rented housing, indigenous housing, assistance for private tenants, assistance with house purchase and crisis accommodation. EU-15: The 15 existing members of the EU as at 30 April 2004. Enforceable rights: Legal rights that a court of law will enforce against public authorities on behalf of individuals. English-speaking countries: United States (US), Canada and Australia. European Economic Area (EEA): The EU plus Norway, Liechtenstein and Iceland. HLM (habitations à loyer modéré) (France): Literally ‘housing at a moderate rent’, HLM are public corporations sponsored by local authorities or regions (HLM-OP or OPAC); or corporations sponsored by private and public companies (HLM-SA). Holobyt (Czech Republic): Literally ‘shelters’ used to house people evicted for rent arrears. HOPE VI (US): A federal programme begun in 1992 that funds the demolition of highly distressed public housing estates and gives the former tenants vouchers to seek housing elsewhere with the objective of creating mixed and sustainable communities. Housing and Urban Development (HUD) (US): Federal department with responsibility for housing. Literal homelessness: Sleeping rough (on the streets or in another public space) or living in accommodation provided for homeless people. Low Income Housing Tax Credits (US): A generous tax subsidy created in 1986 which
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