Single Homelessness as Social Exclusion: The Unique and the Extreme

Recent research into single homelessness and rough sleeping has begun to consider the issue using the concepts and the language of social exclusion. This paper considers the new literature and what it may mean in terms of changing our understanding of single homelessness and rough sleeping (called street homelessness in the United States). The paper begins by reviewing the concept of social exclusion and the recent literature on single homelessness and drawing associations between the analysis of social exclusion and the emerging academic work on the nature of single homelessness and rough sleeping. Drawing on this literature, it is argued that single homelessness needs to be reconceptualized and viewed as one of the products generated by the process of social exclusion. The paper concludes with the argument that single homelessness and rough sleeping are a form of social exclusion, characterized chiefly by the inability of a section of the socially excluded population to get access to welfare services and social housing, and that "homelessness" does not actually exist as a discrete social problem with unique characteristics and causes.     

The housing fulcrum: Balancing economic and social factors in housing research and policy

Abstract

We discuss the pivotal role that housing plays for both social and economic outcomes. All people need to be housed, and housing circumstances help determine social outcomes, especially for vulnerable groups. We outline an analytical framework that treats housing as a dynamic system, incorporating the life‐cycles of both individuals/households and houses. Each is long‐lived; decisions impact on housing for decades. This approach is relevant to the development of housing research and housing policy. We illustrate the issues with reference to the relationship between rental yields and measures of deprivation across New Zealand. The surprising nature of this relationship has consequences regarding potential poverty traps and wealth disparities. While highlighting an important housing market issue, any policy response to this issue is complicated by the need to take account of the life‐cycles of both individuals and of houses, and by the long‐lasting impacts of decisions.     

A Critique of the Concept of Social Exclusion and its Utility for Australian Social Housing Policy

The paper reviews the usefulness of the concept of social exclusion for Australian social housing policy. We draw on recent theoretical and empirical research from Europe and the UK to develop a critique of the concept of social exclusion. It is argued that any assessment of social exclusion needs to distinguish between its utility as an academic explanatory concept and its political deployment to justify new forms of policy intervention. Policy targeting anti‐social behaviour through increasingly more punitive means, for instance, is often justified on the basis that it ameliorates the problems of social exclusion experienced by tenants residing in public housing estates. We conclude that, in spite of the limitations of social exclusion as an analytical concept, for political and pragmatic reasons it is likely to become an important component of the emerging Australian housing policy agenda.     

The Pathways to Homelessness in the Post-Soviet Context

Homelessness is a complex problem, resulting from a combination of housing and social exclusion processes. This paper discusses some theoretical discourses regarding understanding homelessness and the major factors contributing to homelessness (rooflessness) in the post-soviet country of Georgia. “Roofless” people are the most vulnerable group who need special attention while currently there is no national strategy on homelessness in place. Mixed methods were used to study homeless people living in a special shelter in Tbilisi. In total, 70 homeless (mean age?=?48, male – 64%, female – 36%) were interviewed by semi-structural questionnaire. The results showed that a structural factor—unemployment (90%) was the major cause of homelessness. Moreover, almost half of the beneficiaries of emergency shelters need assistance in finding jobs even though they have high academic or professional education. In contrast to European roofless people who have multiple and serious support needs and problems (mental health, drag addiction, chronic homelessness), the majority of interviewed roofless people in Georgia are with less burdened life stories and can be more easily rehabilitated in the case of timely intervention, accommodation, and the proper national strategy on homelessness. Some recommendations for alleviating social segregation of homeless people are highlighted.     

International Homelessness: Policy, Socio-Cultural, and Individual Perspectives

This article draws on other papers in the special issue and additional literature to offer a multi-level framework for understanding the causes of homelessness in the developed world and efforts to reduce or end it. Social policies that reduce inequality and provide income and other supports to those at the bottom of the income distribution are associated with lower levels of homelessness across nations. The allocation of subsidies, patterns of social exclusion, and individual levels of economic, social, and human capital interact to influence who becomes homeless. Interventions to reduce homelessness at one level (e.g., social policy) can counteract vulnerabilities at a different level (e.g., individual risk factors) .     

Researching Homelessness and Rough Sleeping in the Scottish Context

This paper offers some reflections on a number of methodological and personal issues associated with researching homelessness, particularly in the Scottish context. It opens with an examination of the political and social construction of statistics on homelessness. It highlights the limitations of official data sources, and outlines the problems in quantifying (or even estimating) the extent of one of the most extreme manifestations of homelessness—rough sleeping. It identifies some other practical difficulties in conducting research amongst homeless people, such as setting and meeting interview targets, and questions the perceived level of risk in conducting face-to-face work with street homeless people. The second part of the paper considers a range of ethical tensions, posing a series of dilemmas which can arise for an academic researching homelessness. It is suggested that these issues and concerns could be widely applied to social policy research, and are therefore of equal relevance to academic researchers involved with any groups affected by poverty and social exclusion. Drawing on recent controversial practice debates, the paper questions the role of the researcher in perpetuating the so-called 'homelessness industry'. Finally, the paper argues that the researcher should seek opportunities to enhance user-involvement policy development as well as research. The paper suggests that researchers in the field of homelessness occupy a privileged position, providing a link between homeless people, agencies responsible for policy and practice, and politicians. It concludes that research can make a real contribution to understanding and alleviating homelessness. This, it argues, is the only valid justification for making a living out of homelessness research.     

Housing and the Social Exclusion Agenda in England

In the period immediately following its election in 1997 the current Labour government in the UK declared a commitment to ‘combating social exclusion’ to be at the core of the domestic policy agenda. The interpretation of the term ‘social exclusion’ has been the source of extensive debate. This paper focuses on one aspect of the current debate, exploring the relationship between housing and social exclusion, both in theory and in contemporary central government policy in England. I argue that theoretical imprecision is a very real issue, not least because it allows policy makers to refer to rather vague causal mechanisms or social processes to justify actions and interventions. I identify some of the areas that require further exploration and theoretical development if we are to have a rigorous understanding of the concept of social exclusion and its link to housing. Most fundamentally, I suggest that the question of whether the concept of ‘social exclusion’ contributes anything valuable to our ability to understand social disadvantage needs to be addressed directly.     

Conditionality in the context of housing-led homelessness policy: Comparing Australia’s Housing First agenda to Scotland’s “rights-based” approach

Homelessness services and policy have historically tended to be organised by an explicitly conditional logic, wherein people experiencing homelessness must prove their “housing readiness” before accessing settled housing. This model has been robustly challenged in recent decades by “housing-led” approaches that ostensibly eschew conditionality and prioritise the rapid rehousing of people experiencing homelessness. Various countries now include housing-led approaches in the national policy frameworks, including Australia, which overhauled its approach to homelessness in 2008, and Scotland, where a housing-led approach is supported by a legal right to housing for homeless households. Notwithstanding this policy shift, conditionality remains an enduring feature of responses to homelessness in both jurisdictions. This paper sheds light on this phenomenon by comparing the Australian experience with that of Scotland. We demonstrate how conditionality remains a feature of both jurisdictions; however, there is greater effort in Scotland to identify and minimise conditionality, whereas in Australia it is able to persist relatively unchallenged. We conclude with some reflections on what Australia can learn from Scotland’s relative success, highlighting the importance of a national-level policy framework and an adequate affordable housing supply.     

GAUGING NEW ZEALAND'S SUCCESS AT POVERTY REDUCTION IN THE NEW MILLENIUM

This paper presents the results of the New Zealand Poverty Measurement Project's analysis of the effects of the 1990s social reforms in New Zealand on the incidence and severity of poverty, and assesses the impact of five social and economic policies introduced by the Labour‐led coalition governments since 1999: New Zealand superannuation, income‐related rents on state houses, active labour market policies for an employment‐rich economy, the Primary Health Care Strategy and the planned income support policy to reduce child poverty. Superannuation is assessed as both adequate and sustainable, rents for state houses are found to be affordable, and GDP growth and employment have increased incrementally as unemployment and benefit numbers have decreased. The Primary Health Care Strategy is an innovative initiative that will increase affordable access to general practitioners, but it and the proposed child assistance initiatives are too new to be adequately assessed. Of the challenges that remain, policy priorities should centre on housing alternatives, including home ownership for low‐income households not in state houses; income support for poor households, particularly those with children; and multi‐sector development of education and training aimed at lifting economic and social capacity.     

Social Housing Policy Challenges in Tasmania

This paper considers the social policy discourses that senior public housing and Non‐Government Organisation (NGO) housing managers employ to articulate and explain changes in social housing provision in Tasmania. We suggest that the Tasmanian social housing reform agenda is reflective of reforms in other Australian states. The period 2003–10 marked a time of policy change affecting social housing supply and policy discourse, which were influenced by neo‐liberal practices favouring multi‐actor governance models and financing. Interviews reveal that contradictory values and discourses were commonplace. Divergent views centred on the social goals and the efficiency elements of the new social policy focus, the Affordable Housing Strategy (AHS) and its eventual key delivery organisation, Tasmanian Affordable Housing Limited (TAHL). Despite constrained application, neo‐liberal processes remained strong within accounts of new social housing governance practices. We suggest that neo‐liberal practices have extended economic considerations into areas of social housing provision that were previously sheltered from market concerns.     

Experiences of homelessness by people seeking asylum in Australia: A review of published and “grey” literature

This review examines the current published and “grey” literature relating to the experiences of homelessness by people seeking asylum within Australia. While many people seeking asylum have experienced homelessness during their flight, inadequate and unaffordable housing are a feature of the settlement experience for a large number of new arrivals to Australia, putting at risk their successful settlement. This study aims to explore the factors influencing access to stable housing. A systematic review of the academic literature and a search of the grey literature identified 11 articles and 20 documents related to homelessness and people seeking asylum in Australia. The academic literature included a variety of methods and approaches to the investigation of the experience of homelessness in Australia. The grey literature was more practice based, including evaluation and research reports, submissions, and newsletters. Findings suggest that experiences of homelessness are multifaceted and have a range of influences, including policy, financial stress, lack of access to education and employment, and a lack of affordable and suitable housing. Any solutions to address homelessness need to be similarly diverse. Discrimination from real estate agents and employers was also identified as a barrier to housing for many people seeking asylum, an issue that will need to be addressed at a systematic level. The lack of research published in the academic literature means that although there may be some programmes or solutions operating in the community, as demonstrated in the grey literature, this information is not being shared beyond organisation websites or subscriber lists, resulting in a lack of coherency or sharing of solutions. This review highlights the need for further attention to the factors influencing homelessness in asylum seekers, the experience of homelessness, and how these can be addressed by government and non-government led strategies and policy development.     

Complicated Problems,Complicated Solutions? Homelessness and Joined‐up Policy Responses

The government has recently signalled its determination to address both the symptoms and causes of homelessness through the introduction of new legislation requiring local authorities within England and Wales to develop strategic approaches to addressing this issue. Moreover, in common with many other areas of social provision in recent years, the “joining‐up” of services has been identified as a central tenet of these new approaches. In the case of homelessness, then, experience gleaned from other policy fields may prove an invaluable resource, in terms both of guiding approaches and in avoiding potential pitfalls. This paper examines the findings from a study undertaken within one Midlands city to investigate this assumption. Based upon evidence from this study it is suggested that, while precedent can offer this particular policy area valuable lessons, homelessness is an issue which, due to its multi‐dimensionality, offers new and unique challenges of its own.     

Approaches to Homelessness Policy in Europe, the United States, and Australia

Workable and effective policies addressing homelessness need to be based on a clear definition of homelessness. This overview of recent policies in the European Union, the U.S., and Australia shows that, even at the very basic level of being able to define and enumerate the homeless, policy approaches are extremely variable. Research indicates the growing significance of the "new homeless," consisting of families, women, and children. Homelessness also needs to be seen as something dynamic that may involve movement into and out of housing and other supports over time. Older policies that address only limited kinds of homelessness and which do not recognize the dynamics involved are likely to be less effective. "Good practice" policy incorporates these changing understandings of homelessness by addressing the housing, psychological and social needs of the homeless, as well as integrating across programs and increasing independence through capacity building .     

Renting in New Zealand: perspectives from tenant advocates

Currently, around a third of New Zealand’s households, and half its population live in rental accommodation. The proportion of tenant households is growing. Tenant advocates, who are a first port of call for tenants experiencing difficulties in their housing situation, can provide unique insight into the experience of renting in New Zealand. This article presents key themes generated from semi-structured interviews with tenant advocates. Tenants are confronted with issues of poor housing quality, insecure housing, high rents relative to income, lack of autonomy, and difficulty asserting their legislative rights. These aspects of renting in New Zealand are likely to have adverse effects on health. Tenant advocates play an important role in supporting tenants to better housing. Their knowledge of the relationship between a landlord and tenant, particularly in times of trouble, means they can provide unique perspectives on policy solutions.     

Homelessness Prevention Policy: A Case Study

Although serious and long‐term commitment to homelessness prevention is evident in some countries in the form of primary prevention measures, it is not clear whether a strong shift has already been made from secondary to primary prevention. It is argued here that after almost two decades of literature regarding the ‘prevention turn’ in homelessness policy, one may speak of primary prevention in the prevention stage, and add secondary and tertiary prevention to each of the other three stages of homelessness policy – early, emergency, and long‐term intervention strategies. Yet, there must be an attempt at primary prevention, which is more difficult to maintain, mainly for financial reasons. Political will is one key to success in doing this. Homelessness prevention policies are explained in this article using the case study of Israel's policies in 1948–2010. The findings indicate that Israel dealt with a high risk of homelessness in the 1950s and again in the 1990s through primary homelessness prevention by intervening in the housing market and providing cash assistance. Subsequently, after an overall homelessness policy was first published in Israel in 1996, prevention almost disappeared. However, it seems that, since then, prevention still manifests itself in the form of secondary prevention measures, such as public assistance benefits and housing subsidies. Tertiary prevention also seems to exist, addressing the more entrenched nature of homelessness by means of permanent supportive housing. This article shows that where there is a will there may be a way for prevention.     

Social Exclusion and Poverty: Translating Social Capital into Accessible Resources

This article investigates the dynamic multi‐dimensional processes through which the poor become excluded from social participation. Drawing on social capital literature, it traces how bridging and bonding capital do not always translate into expected levels of social participation. It does so by detailing research findings from low income focus groups undertaken in Dunedin, New Zealand. These describe the experiences of group members in attempting to manage connections around employment, their own broader social participation or the participation of their children. In each case, the study highlights the difficulties of translation they experienced: in particular, translating available bridging or bonding capital into useful social, cultural or economic resources which could mitigate their social exclusion or enable fuller social participation.     

Transport related social exclusion in New Zealand: Evidence and challenges

Abstract

People without functional access to a car in countries where private vehicles are the predominant form of transport are at a disadvantage. Alternative modes of travel in such settings often do not meet people's mobility needs, creating barriers to participation in work, education, social activities, sport and leisure, and to accessing basic goods and services. In New Zealand, private vehicles have long been prioritised as the mode of personal transport in land transport planning policy. However, this is beginning to change with policy objectives now including improvement of access and mobility for all, and reduction of social exclusion. Despite this there is very little evidence of the experiences of those with mobility or access problems in New Zealand. This article seeks to provide qualitative data about experiences of transport related social exclusion, the efficacy of alternative modes for people's mobility needs, the impacts of these difficulties on people's lives, and the policy implications of these findings.     

Factual accounting in the discourse on homelessness

Discussions about homelessness can be approached as action that constructs social reality. From this point of view, an important finding in the analysis of interviews with four leading politicians is the number of rhetorical devices the speakers use in factual accounting: to make the state of affairs and events around homelessness appear as obvious facts, a reflection of reality. Five strategies of factual accounting are identified in this article: the witness strategy (the speaker has seen or heard the facts him- or herself), no alternatives strategy ("this is the only way to act"), the quantification strategy (warranting by means of figures and/or nonnumerical quantification), the social norms strategy (appealing to consensually accepted issues) and the expertise strategy (appealing to specialized knowledge). These strategies are used by the speakers to warrant the truth of facts that in many ways are more than likely to contribute to homelessness. Above all, they create an image of a static housing problem for which there is no remedy. It is, however, possible to alter this static picture if we start from the assumption that there are two sides to every issue. It is possible to argue against facts offered as true; the housing problem may not be so static after all, and solving it may not be so hopeless.     

Social workers' attitudes towards family group conferences in Sweden and the UK

The New Zealand family group conference (FGC) approach to decision making in child welfare and protection has attracted strong interest among policy makers and professionals all over the world. While New Zealand’s legislation makes use of FGCs more or less mandatory in child protection, other countries permit social workers to refer families to an FGC at their own discretion. Knowledge about social workers’ attitudes towards the model is thus paramount if we want to understand implementation and evaluations of FGCs outside New Zealand. This study looks at attitudes towards and actual referrals to FGCs amongst 219 social workers from 18 local authorities in Sweden and the UK. Results reveal an overwhelmingly positive attitude towards FGCs in both countries. Given these attitudes it was striking that only 42% of the social workers had initiated at least one FGC over an 18‐month period. The number of implemented FGCs was almost exactly the same in Sweden and the UK, after adjusting for time and number of social workers. Possible explanations for this paradox are discussed, using data from the survey and child welfare literature.     

Compulsory income management: Combatting or compounding the underlying causes of homelessness?

Compulsory Income Management (CIM) is a form of conditional welfare that involves the mandatory quarantining of a portion of welfare recipients’ social security payments. Quarantined funds are accessible via a government-issued debit card, with restrictions surrounding where and on what funds can be spent. Official justifications of CIM have framed these policies as attempts to combat substance abuse and gambling problems, and to thus secure better outcomes for welfare recipients and their families. Central to this narrative has been the argument that welfare quarantining will ensure more money is spent on ‘essentials’, including accommodation. No existing studies, however, have specifically interrogated the impacts of CIM on housing security. This article responds to this gap in the literature by reviewing existing research concerning CIM's impacts and locating this research within broader debates regarding the causes of homelessness and the efficacy of individualised policy interventions. In doing so, it highlights CIM's potential to exacerbate housing insecurity not only through technical issues such as rental transfer failures, but also by contributing to underlying stressors such as economic disadvantage; relationship difficulties, poor health and addiction; and social stigma. The article concludes that – far from addressing the structural causes of homelessness – CIM has enflamed them.