1
POLICY RECOMMENDATIONS SINGLE WOMEN
WHO ARE HOMELESS OR AT RISK OF HOMELESSNESS
NATIONALLY
There was 59 995 homeless adults without children on census night in 2006, up from 54 356 in 2001,
an increase of 10.4 per cent. One-third of these adults were women. Adults without children are the
largest group of services users and many have been homeless for extended periods of time or have
moved in and out of homelessness1.
NDCA National annual report 2008/2009 2 Reflects that females, particularly young females, and
children were significant users of specialist homelessness services. In 2008–09, 1 in every 122
females aged 10 years and over, became a client of a specialist homelessness agency, with young
females aged 15–19 years the most likely group to become a client (1 in every 50 females in this age
bracket accessed support). Children also had a high rate of use, with 1 in 63 children overall and 1 in
every 39 children aged 0–4 years accompanying a parent or guardian to an agency.
In 2008–09, there were more female clients (62%) than male clients (38%) accessing SAAP services.
Females were more likely to become a client of homeless services than males. There were 82
female clients for every 10,000 females aged 10 years and over in the general population (or 1 in
122) who accessed SAAP services, compared with 51 male clients per 10,000 males aged 10 years
and over (or 1 in 196). For every age bracket up to 65 years, there were more female than male
homeless clients per 10,000 of the Australian population of each age group.
Overall, the most common main reasons unaccompanied females aged 25 years and older, cited for
accessing homeless services was domestic or family violence (in 40% of their support periods),
followed by other financial difficulty (9%). In contrast, males aged 25 years and over most
commonly reported drug, alcohol or substance use as their main reason for seeking assistance (in
15% of their support periods), followed by other financial difficulty (12%).
Young females alone aged under 25 years most often cited relationship or family breakdown (in 22%
of their support periods), with domestic or family violence as the second most frequently given
reason (17%), followed by time out from family or other situation (14%). For males alone aged under
25 years, relationship or family breakdown (21%) followed by time out from family or other situation
(11%) were the most commonly given reasons.
NEW SOUTH WALES
According to the Homelessness Census,3 women represented 41% of the overall homeless
population in NSW. Of these 47% were aged 19-24 years. Homeless women comprised the
following:
52% of people staying in SAAP accommodation:
28% of people living in boarding houses; and
48% of people staying with friends or relatives.
1
Counting the homeless 2006: New South Wales / Chris Chamberlain, David, 2009
Government Funded Specialist Homeless Services SAAP NDCA Annual Report 2008-2009; April 2010; AIHW
3 Counting the homeless 2006: New South Wales / Chris Chamberlain, David, 2009
2
2
SAAP National Data Collection Annual Report 2008-09 reflected the following client groups&
funding priorities in 2008-09.
Number of support periods provided according to the client group
NSW Funding allocation Primary target group NSW 2008-9
Agencies
No.
%
Funding
allocation(a)(b)(c)
$
Primary target group
Young people
Single men only
Single women only
Families
Women escaping domestic violence
Cross-target/multiple/general
150
32
14
24
88
51
41.
8.9
3.9
6.7
24.5
14.2
8 45,082,000
15,597,000
4,115,000
6,150,000
33,669,000
14,121,000
Total
359
100.0 118,734,000
Mean funding
per agency(a)(b)(c)
$
%
38.0
13.1
3.5
5.2
28.4
11.9
300,500
487,400
294,000
256,200
382,600
276,900
100.0
330,700
3
WOMEN & HOMELESSNESS
Gender plays a distinctive role in homelessness. The implication of being born female has a critical
effect on the trajectory into homelessness. Large service systems such as the labour market,
inequality of pay, the justice system, housing system, finance systems and the role or a female as
primary career of children influence, and enable homelessness among women4. These systems do
not impact on males in the same way.
Risk of homelessness can be higher for people who exercise a highly gendered profession, such as
sex working, which is predominately a female profession5. A higher level of women experience
exclusion and poverty related to difficulties accessing education & training while caring full time for
children.
Whilst the Census reflected that there were fewer women than men recorded in improvised
dwellings or sleeping rough (63% male compared to 37% female) considerations need to be made
regarding long term homeless women who continue to be masked through ‘invisibility’.
According to figures supplied by the Human Rights and Equal Opportunity Commission, Women are
significantly affected by homelessness. However, homeless women are often less visible than men
and the extent to which homelessness affects women is often underestimated. Homeless women
tend to remain out of sight, away from areas where homeless people congregate for fear of
violence, rape or other abuse6.
Women’s invisibility is not just a feature, but contributor to homelessness for women. Women with
no dependents have greater mobility through couch surfing, swapping sex for shelter and sleeping
rough. Research suggests that the needs of single homeless women are distinctly invisible in
research studies, nationally coordinated SAAP funding allocations, and service provision priorities;
That there are significant limitations with data collection methods with most only recording amount
of contact with services rather than actual homeless people, as people are only counted when they
access services. 7
Women’s Homelessness is a multi-complex subject. Not only are homeless women subjected to a
range of issues common to homelessness, they are also subjective to a range of factors quite
unrelated to homelessness, which are gendered in nature, and impends their quality of life and
potential.
The problem of homelessness among women is multifaceted and systemic. Solutions need to
address the multiple systems that impact on women – the homeless service system is just one that
interacts, impacts, supports and creates change in their lives.
4
Homelessness in Europe: The Role of Gender Equality Policies; Chityil B 2010
Homelessness in Europe: The Role of Gender Equality Policies; Chityil B 2010
6 Human Rights and Equal Opportunity Commission. (2008). Homelessness is a human rights issue.
http://www.hreoc.gov.au/Human_Rights/housing/homelessness_2008.html#5, accessed 20/6/08
7 Accommodation in crisis – Forgotten Women in Western Sydney – Catherine Robinson & Rose Searby 2006
5
4
Upon consultation with over 200 different participants who provide services to women who are
homeless or at risk of homelessness between August & October 2011, consultation with the Sydney
Women’s Homelessness Alliance & other key Government stakeholders we have developed the
following policy recommendations for Single women who are homeless.
POLICY RECOMMENDATIONS
GENDERED ANALYSIS OF HOMELESSNESS
There is a dearth of research in Australia on women & homelessness; in how gender impacts
different trajectories into, and out of homelessness, and on woman’s’ distinct experiences whilst
homeless. These different entries, experiences and exits for women require different worker skills,
programs & strategies to support their needs. It cannot be a one size fits all approach, and therefore
research is needed into the gender specific elements which makes homelessness different for
women.
We need to recognize that gender does influence homeless a woman’s situations and experience,
and that in failing to understand the distinct and unique situations of homeless women it will result
in a failure to develop responses and prevent homelessness among women. Women’s
homelessness can be distinctive relating to traumatic life experiences such as domestic violence,
sexual abuse, neglect, abandonment, poverty, child rearing, education opportunities, health issues,
regularly features in the causes of women’s homelessness.
The invisibility of women’s homelessness is a well-known phenomenon in homeless service
provision. In evidence cited above, it is identified that females make up a larger majority of
homeless service users (62%) in Australia, yet the homeless census data reflected that there are less
females than males who are homeless (44%). Women are more likely to be invisible when it comes
to counting homeless people – less likely to sleep on the streets due to it being unsafe, more likely to
ride trains, couch surf, stay with friends for accommodation, more likely to do sex work or sex for
accommodation, stay in domestic violence situations that lead to homelessness; They are also less
likely to identify as homeless.8
Single women have distinct experiences often including extremes of experiences associated with
homelessness – usually stay homeless longer, have higher drug and alcohol issues and rely more
heavily on places for food and financial assistance. Lack of representation in statistics reflects the
lack of adequate services to meet the needs of this homeless population. They remain hidden
among accommodating friends, mugs (pimps), sharing beds in rooming houses and sleeping rough. 9
Complex clients, such as sex working women with long term substance addiction, continue to slip
through the Specialist Homeless Service System and other main stream systems, provided to support
people who are homeless.
8
9
McFerran, L, 2010: IT COULD BE YOU: female, single, older & homeless
Parity – Volume 20, Issue 4- May 2007 – Homelessness & the Single Woman pg 15
5
We support the argument by Mcfarren 10 challenging the findings that women represent a smaller
percentage of homeless persons arguing that “women are under counted because they do not
appear in places where the visibly homeless are counted.”
Because of invisibility women who are homeless, are not researched – or missed out therefore a
gender analysis would contribute to recognising women’s experiences and existence in
homelessness.
RECOMMENDATION 1:
THE NEED FOR GENDERED ANALYSIS OF HOMELESSNESS TO CLEARLY ARTICULATE THE EXPERIENCE FOR SINGLE WOMEN
MUST BE ENDORSED AND FUNDS ALLOCATED FOR DEDICATED RESEARCH INTO THEIR NEEDS TO BETTER INFORM POLICY
DEVELOPMENT AND EFFECTIVE SERVICE RESPONSES.
RECOMMENDATION 2:
THAT IT IS ACCEPTED THAT WOMEN ARE UNDER- REPRESENTED IN ALL THE DATA AS A RESULT OF THERE BEING FEW
POINTS FOR SINGLE WOMEN TO BE COUNTED IN THE CURRENT HOMELESS SERVICE SYSTEM AND THAT FINANCIAL
RESOURCES ARE COMMITTED TO DEVELOPING SERVICE RESPONSE TO PREVENT SINGLE WOMEN FROM BECOMING
HOMELESS, AS WELL AS SERVICES FOR SINGLE WOMEN SHOULD THEY BECOME HOMELESS.
HOMELESS WOMEN ARE PARTICULARLY VULNERABLE
There are a range of factors and social issues which create particular vulnerably for women who are
homeless. These factors tend to be gender specific and have critical implications on a woman’s
resource to resolve homelessness.
DOMESTIC VIOLENCE
Domestic and family violence strongly relates to structured gender inequality, and is both a
significant cause and continuing component of homelessness11. In 2007/08 women accounted for
22,300 (59%) of the 37,700 clients assisted by SAAP in NSW. Domestic and family violence is a
significant factor in the pathways into homelessness for women. Fifty-five per cent of women with
children and 37 per cent of young single women who seek assistance from homelessness services do
so to escape violence. Domestic violence is also a key cause of homelessness among children. In
2007/08, 17,800 children accompanied their parents/guardians to SAAP services.
The most common main reasons that clients gave for seeking assistance from specialist homeless
services was domestic or family violence (in 22% of support periods)12. In NSW Domestic violence
again was the main reason for homeless clients seeking assistance (18.8% of support periods)13.
Women’s vulnerability is impacted particularly around dynamics of power & control. Women face
high levels of violence, sexual assault and abuse, as a result of being a woman. Domestic violence
continues to be a key driver for female homelessness, however is challenging because the vast
majority of women &/or children who become homeless as a “”result of violence do so after
10
Mcfarren, L, 20101, It could be you: female, single, older & homeless, p 31
Accommodation in crisis – Forgotten Women in Western Sydney – Catherine Robinson & Rose Searby 2006
12 AIHW, 2010, Government Funded Specialist Homeless Services SAAP NDCA Annual Report 2008-2009
13 AIHW, 2010, Government Funded Specialist Homeless Services SAAP NDCA New South Wales; Annual Report 2008-2009
11
6
reaching a crisis point”14. The prevention of homelessness due to domestic violence & family
violence however is dependent upon the development of an integrated system where improving
safety of women, and holding perpetrators account able is the primary objective of all agencies
responding to domestic & family violence.
Additionally, early intervention responses for women and children experiencing violence need to be
available not just to women and their children who have made contact with support services but
also those women for whom admitting domestic and family violence is shameful15. This is no small
task. Initiatives like Staying Home Leaving Violence (SHLV) programs seek to support women and
children to remain in their homes; once the perpetrator of domestic and family violence has been
removed. However initial pilots of these models has of highlighted some of the key elements of
service integration that were needed to make the broader use of such programs successful.16
We supports the rights of women and children not to become homeless as a result of domestic
violence and their right to choose to remain in their home and have the perpetrator of violence
removed. We support the ongoing development of SHLV programs in NSW as one component of a
range of responses that should be available to women and children who are at risk of homelessness
due to domestic and family violence.
Whilst there is investment as a priority into DV specific services, of concern is the limitation in access
for these services. Services prioritise women and children currently experiencing and escaping
domestic violence . . While many women’s homelessness may be caused by domestic violence,
unless they are currently escaping it, there is little priority put on accommodating these women.
RECOMMENDATION 3:
FINANCIAL RESOURCES ARE MADE AVAILABLE TO ASSIST WOMEN WHO HAVE EXPERIENCED DOMESTIC AND FAMILY
VIOLENCE REGARDLESS OF WHEN THEY HAVE EXPERIENCED VIOLENCE.
SEXUAL ASSAULT & ABUSE
It is estimated that approximately one in five women (19 per cent) have experienced sexual violence
at some stage in their lives since the age of 15, and one in three women (33 per cent) have
experienced physical violence at some stage in their lives since the age of 15. 17
Women are more likely to have experience sexual assault, abuse and violence in their lives from
significant others, therefore impacting their understanding of healthy relationships, trust, dignity,
self-esteem & self-worth. Most sexual assault victims are female (82 per cent in 2003), reflecting
that females consistently recorded higher rates of sexual assault than males irrespective of age. For
females, the highest sexual assault victimization rates are for the 10–14 and 15–19 year age groups
14
Tually, S., Faulkner, D., Cutler, C., Slatter, M., 2008, Women, Domestic and Family violence and Homelessness: A
Synthesis Report, Commonwealth of Australia P.32
15 Weeks and Oberin in Tually, S., Faulkner, D., Cutler, C., Slatter, M., 2008, Women, Domestic and Family Violence and
Homelessness: A Synthesis Report p. 32
16
Bega Women’s Refuge, 2007, Executive Summary of the Evaluation of the Bega Staying Home Leaving Violence
Pilot.
17
ABS Personal Safety Survey 2005
7
(475 and 520 per 100 000 population); over three times the rate for the general female population
and fifteen times the rate for the general male population.18
There are strong links between the trajectory of homelessness & violence. The lack of research on
homelessness & sexual assault, along with the absence of any explicit mention of sexual assault in
contemporary homelessness policy suggests that there is an oversight of the significant problem that
sexual assault and other violent trauma plays in women’s abilities to maintain housing.19 Explicit
recognition of the experience of sexual assault and other trauma facing many homeless people is
necessary in policy & service provision.
Without such recognition we contribute to a culture of silence, minimizing the impacts of abuse, and
preventing it from having a presence in homelessness priorities.20 However the limited research that
does exist both nationally and internationally reflects disturbing trends in the frequency and violent
nature of sexual assault amongst homeless women both before, during and after episodes of
homelessness.
Morrison2009 identifies the following Australian research regarding homelessness & sexual assault:
A study of women and men who were homeless in Sydney (Buhrich, Hodder, & Teeson, 2000) found
that half of all the women and 10% of the men had been raped in their lifetime (for men, the
experience of rape usually occurred in an institutional setting). In a study by Alder (1991), 70% of
young women and 20% of young men had been sexually assaulted while homeless— only 20% had
discussed it with any service provider. When asked about victimization in the preceding 12-month
period, 52% of young women who were homeless reported that they had been sexually assaulted
and 65% had been physically assaulted (Alder, 1991).21
Grief & Loss
Again an under researched area for homeless women is of the impacts and outcomes of trauma
related to removal of children from their care. Once custody of the child is lost, the trauma for this
woman will often spiral mental health, & substance issues, and contribute to entrenchment for this
woman into the homeless system, as resources and hope diminishes. For chronically homeless
women, often this creates an outcome that the woman will spend most of her life grieving for the
loss, and hoping for a reconnection with her child, which becomes a key focus of her goals of their
case management. Without the emotional skills and support to manage and heal from this
cataclysm of guilt and grief, the impacts on their mental and emotional well-being, is critical.
RECOMMENDATION 4:
FINANCIAL RESOURCES ARE COMMITTED TO DEVELOP A TRAINING AND CAPACITY BUILDING STRATEGY TO DEVELOP
TRAUMA INFORMED SERVICES FOR WOMEN WHO ARE HOMELESS.
RECOMMENDATION 5:
THE DEVELOPMENT OF STRONG PARTNERSHIPS BETWEEN HOUSING, HOMELESSNESS AND SEXUAL ASSAULT SERVICES FOR
WOMEN IS SUPPORTED AND RESOURCED.
18
19
ABS Recorded Crime – Victims 2003
Morrison, Z., 2009 Homelessness & Sexual Assault, Australian Institute for Family Studies p.1
Morrison, Z., 2009 Homelessness & Sexual Assault, Australian Institute for Family Studies p.5
21
Morrison, Z, 2009 Sexual assault & Homelessness; Australian Institute of Family studies p 3
20
8
INCREASED PROVISION OF AFFORDABLE HOUSING
Having enough money to rent or buy housing is a key element for exiting homelessness. To be able
to pay for appropriate housing a person must have access to adequate income in relation to housing
affordability.
The definition of Affordable housing is identified as when households, which are renting or
purchasing, are able to pay their housing costs and still have sufficient income to meet other basic
needs such as food, clothing, transport, medical care and education.22Spending more than 30 per
cent of household income on housing costs is said to create “Housing Stress”.
Housing stress is the number one reason for homelessness, identified by callers when contacting the
Homeless Persons’ information Centre (HPIC) for assistance– the central phone point in Sydney for
referral to crisis accommodation. Of over 61,000 callers contacting the line across NSW in 2009,
nearly 15,000 callers identified housing stress as the reason for their homelessness.23
While the cause of homelessness may be different for young people, & women escaping domestic
violence, it certainly paints a picture of the increasing unaffordability of private rental and home
ownership challenging many tenants.
Greater Commonwealth and State funding is needed for affordable housing to increase supply; as
social housing can’t be the answer for everyone who is unable to access the private rental market.
However it is concerning that thousands of key workers - public sector employees who provide
essential services - in Sydney priced out of the private market by rising house prices and rents; and
now need to access affordable housing to enable them to continue working in inner city locations.
Providing affordable housing is a solution to homelessness. Housing policy needs to incorporate the
role of government in relation to early intervention when a client is a risk of losing a tenancy, and
linking these clients to the support systems that are available to assist the client resolving issues
prior to eviction from public housing.
SOCIAL HOUSING PROVISION
The proportion of clients in NSW who were in public housing prior to accessing a homeless service
for support in 2008/9 was 8.5% of all support periods, and 9.1% of all closed support periods to
clients. Comparatively clients accessing support from social housing rental is 2.1% of all support
periods & 2.6% of all closed support periods.24 This data suggests that social housing provided by
community housing providers is more effective in supporting clients retain a tenancy than public
housing.
Once a client is evicted from public or social housing, the likelihood of resolving their homelessness
is diminished as there are limited exit options for this client group. Eviction from social housing
entrenches the client into homelessness, and contributes to create a substantial barrier to breaking
the cycle of homelessness. There needs to be housing policy integrally linked to homeless policy
frame works to prevent eviction from public or social housing into homelessness. This includes the
establishment of mechanisms to create pathways to support services when a person’s tenancy is at
risk in order to sustain their social housing tenancy. If an eviction is imminent then effort should be
made to ensure the client exits into affordable housing rather than homelessness.
22
http://www.housing.nsw.gov.au/Centre+For+Affordable+Housing/About+Affordable+Housing/
Data Report 2009
24 Government Funded Specialist Homeless Services SAAP NDCA New South Wales; Annual Report 2008-2009; April 2010;
AIHW
23HPIC
9
Evidence from a range of places (including Australian studies 25 )reflect that it may be significantly
more cost effective to provide people with appropriate supportive housing rather than continue,
year after year, to watch people remain homeless and try to have their needs met via crisis services,
hospitals and the police. The argument is not just a moral one, but an economic one. Research
estimates that it could cost as much as $34,000 a year for some people to remain chronically
homeless in Sydney.26
The National Rental Affordability Scheme 27 has been an excellent initiative, in order to increase the
supply of affordable housing available in the market. Homelessness NSW also supports the transfer
of title to the Community Housing sector in NSW, in order to provide a platform for greater leverage
and investment in social housing. We encourage the Commonwealth and NSW Government to look
to targeting funding to the Community Housing sector - rather than just funding housing
construction to big developers, and believe that by engaging community housing providers, we can
reduce the pressure on the social housing waiting list by providing a range of alternative, adequate,
safe & affordable housing options.
There is currently no opportunity to move between affordable housing and social housing if both
forms of housing are not managed by the same housing provider. Systems need to be established to
integrate social housing and affordable housing waiting lists and systems to ensure that there is
transparency and equity if clients must move between housing forms.
Flexibility is needed across a community housing providers portfolio, in relation to units of housing
established for social housing and affordable housing on a portfolio basis rather than based on the
actual property – this would enable greater flexibility in relation to allocation by the provider (in
order to create social mix) and also for clients as their income levels change in relation to the life
cycle.
RECOMMENDATION 6:
ESTABLISH A HOUSING FIRST RESPONSE FOR “HARD TO FIND” WOMEN TO INCREASE ACCESS FOR THESE WOMEN TO
PROGRAMS THAT PROVE TO BE EFFECTIVE.
RECOMMENDATION 7:
NO EXITS INTO HOMELESSNESS FROM SOCIAL HOUSING - HOUSING POLICY INTEGRALLY LINKED TO HOMELESS POLICY
FRAME WORKS
RECOMMENDATION 8:
INCREASED ACCESS TO SAFE & AFFORDABLE HOUSING THROUGH CONTINUED TITLE TRANSFER TO COMMUNITY
HOUSING PROVIDERS
RECOMMENDATION 9:
REVIEW OF THE AFFORDABLE HOUSING DEFINITION & STRUCTURE OF AFFORDABLE HOUSING FUNDING
INTEGRATED SYSTEMS ARE NEEDED FOR A WHOLE OF GOVERNMENT APPROACH TO HOMELESSNESS
25
Berry, M; Chamberlain, C; Dalton, T; Horn, M & Berman, G: Counting the cost of homelessness: A systematic review of
cost effectiveness and cost benefit studies of homelessness, AHURI, 2003
26Presentation paper 2006 National Homelessness conference; So, exactly how much does it cost to remain homeless?
27http://www.chfa.com.au/nras/
10
Homelessness is the collective responsibility of whole-of-government and the community.
The roles of main stream services in identifying and linking people who are homeless or at risk of
homelessness are imperative. Schools, places of employment, community centers, church
communities and other mainstream supports need stronger links with the homeless system, and
knowledge of ways to access services for clients. They are also pivotal exit points for clients who
have resolved homelessness and are seeking to find communities and inclusion in the wider society.
Building a stronger partnership between government and NGOs is fundamental to changing the way
we support homeless women. Linking homeless policy, with KEEP THEM SAFE frameworks could
contribute greatly to a significant improvement in the integration of mainstream, and specialist
homeless services.
RECOMMENDATION 9:
DEVELOPMENT OF A COMMUNITY EDUCATION CAMPAIGN HIGHLIGHTING ISSUES RELATING TO HOMELESSNESS (SIMILAR
TO THAT OF VIOLENCE) NEEDS TO BE DEVELOPED TO BUILD THE CAPACITY OF THE COMMUNITY, GOVERNMENT &
MAINSTREAM SERVICES TO UNDERSTAND AND IDENTIFY THE NEEDS OF THOSE WHO ARE AT RISK, OR CURRENTLY
HOMELESS.
RECOMMENDATION 10:
COMMITMENT IS MADE TO REVIEW CUSTOMER SERVICE STRATEGIES & STAFF EDUCATION AND PROFESSIONAL
DEVELOPMENT RELATING TO HOMELESSNESS, WITHIN HOUSING NSW IN LINE WITH OTHER GOVERNMENT
DEPARTMENTS SUCH AS CENTERLINK
In line with integrated system principles, Housing NSW needs to address a range of policy and
system issues within the department to improve support and assistance to clients. Current systems
such as phones, you can’t leave messages on once you wait on a phone line for 15 minutes to be
connected to, creates challenges for homeless services to support their clients effectively.
Pressuring clients such as single mothers with one month old babies to access the private rental
market is inappropriate, and setting clients up to fail. Client service employees who appear to have
little knowledge of the homeless service system, or customer service practice, needs to be
addressed and educated. At a minimum, providing a referral to the homeless system of clients at
risk of losing their tenancy would be a necessary shift, alongside with an obvious shift in culture and
customer service practices.
THE HOMELESS SECTOR NEEDS A STRONG WORKFORCE DEVELOPMENT PLAN
The increasing complexity of homeless women requires a strong multi skilled professional expert
workforce to develop increasingly specialist skills across a vast range of issues and priority health
issues. National Quality Framework consultations identified the existing educational & professional
pathways available to workers in the homeless sector are vague and may not equip staff with the
skills required to deliver quality services. An ongoing process of training assessment linked to
standards and accreditation was considered likely to not only improve the quality of staff in the
sector, but provide support to retain workers in services.28
28
http://www.fahcsia.gov.au/sa/housing/progserv/homelessness/national_quality_framework/Pages/default.aspx
11
Building the workforce is integral. Continuously, throughout our consultations with providers
regarding homeless women, there was a clear identification of training and skill development
opportunities requested in a variety of areas of specific subgroups of women (see section below)
discussed, identified by specialist homeless service providers. The focus should be on opportunities
for joint training, networking and skill development, providing resources to NGOs to help with their
own workforce planning, and investing in developing management and governance capabilities;
this will effectively build the capacity of the workforce to support these homeless women. A sound
& systematic plan to increase the sectors multidisciplinary nature and skill level, and investment into
this planning , similar to NSW KEEP THEM SAFE frame work29, or the Victorian governments
Homelessness system reform approach is required.
RECOMMENDATION 11:
INVEST IN THE HOMELESSNESS WORKFORCE BY CREATING A WORKFORCE DEVELOPMENT STRATEGY THAT PLANS TO
ADDRESS CURRENT AND FUTURE SKILLS SHORTAGES WITHIN THE WORKFORCE.
SPECIFIC MARGINALISED SUB GROUPS OF SINGLE WOMEN
INDIGENOUS WOMEN
On Census night in 2006, 1960 (7.2%) of the 27,374 homeless people in NSW were Aboriginal. Of
these, just over were 1000 were in SAAP services.30 Indigenous women are Are a particularly
marginalized and disadvantaged group within society. Additional issues impact these women such
as high incaseration, morality & violence, and low levels of health and life expectancy directly linked
to their indigenous status. Indigenous women have complex needs related to cultural implications
of grief relating to loss of identity, culture and family and are particularly vulnerable to extremely
high levels of domestic violence.
The Aboriginal rate of homeless for the inner city of Sydney was 23% (Census 2006). Aboriginal
people comprise about 2.3% of the population of NSW but make up 18.2% of SAAP clients across
NSW. Of the 35,300 clients in SAAP in 2007/08, 6,400 were Aboriginal. While both Aboriginal men
and women are over-represented in SAAP services, the rate of over-representation is far greater for
women. Aboriginal men comprise 14.3% (2050) of all male SAAP clients while Aboriginal women
formed over a fifth (4,350 or 20.9%) of the 20,800 female SAAP clients in 2007/08. These figures
indicate that around two thirds of Aboriginal people in SAAP were women.
Indigenous women make up just 2.1% of the total NSW population, and represent 30% of NSW
women in prison (Baldry & McCaulsand 2009). Aboriginal women have the fastest return to prison
rates of any group; are far more socially disadvantaged than other women offenders; and as an
intersectional group experience higher rates of mental illness & domestic violence and higher
numbers of dependent children to non-Aboriginal women prisoners (Baldry & McCausland 2009;
Baldry, Ruddock & Taylor 2008).
29
30
http://www.keepthemsafe.nsw.gov.au/ngos_and_the_new_system
2009 Counting the Homeless 2006: NSW Report
12
Domestic violence is a key driver in Aboriginal homelessness and it is expected that one of the key
outcomes of the current homeless regional planning process will be a strong focus on reducing the
number of Aboriginal women and children becoming homeless due to domestic violence in NSW.
More effective & consistent cultural sensitivity training is required across the sector, to create a
stronger understanding of indigenous language, and cultural aspects that makes indigenous people
who they are. This should be a standard module available through Community Service Funded
training. Through consultation it was identified that there is a need for indigenous workers in policy
making positions to be able to influence the frame works for policy development specifically related
to indigenous communities.
Keeping aboriginal people in jobs, and children in school, can be effectively implemented through
mentoring, creating a formal setting and employment for what may aboriginal community leaders
have been doing for years. Aboriginal workers are required to provide quality health, homelessness
and other services, Aboriginal workers however need to have their own support network to ensure
they are supported to support the community.
RECOMMENDATION 12:
ABORIGINAL WORKERS ARE REQUIRED TO PROVIDE QUALITY HOMELESS, HEALTH AND OTHER SERVICES TO HOMELESS
INDIGENOUS AUSTRALIANS, AND NEED TO HAVE THEIR OWN SUPPORT NETWORK TO ENSURE THESE WORKERS ARE
SUPPORTED TO SUPPORT THE COMMUNITY.
RECOMMENDATION 13:
IN-SERVICE CULTURAL SENSITIVITY TRAINING FUNDED FOR SPECIALIST HOMELESS SERVICES
YOUNG WOMEN ARE PARTICULARLY AT RISK OF HOMELESSNESS
Latest NDCA data identifies young women between the ages of 15-19 to be the largest target group
accessing homeless support services (1 in 50 of all young women in this age bracket will become a
client)31. There needs to be additional focus on this client group, and support relating to their
reasons for homelessness particularly focused around family violence, sexual abuse, & break down
in interpersonal relationships. As discussed above, trauma informed services are required to
support the complexities and impacts of this violence and abuse at such a young and critical age.
Schools and other such community groups such as community centers have a crucial role to play in
early identification of young women at risk.
PREGNANT WOMEN
Another marginalised sub group within single women, who have little access to crisis
accommodation options, is women who are pregnant. According to a report released by the NSW
Ombudsman, pregnant women are often excluded from accessing SAAP services and agencies. For
instance, according to the findings of the Ombudsman’s report: five agency policies reviewed listed
pregnancy as a reason for exclusion, some in all cases and others after a certain stage of pregnancy,
or dependent on health status or vacancy of a downstairs room32.
31
32
NDCA 2008/09 National report
New South Wales Ombudsman. (2004). Final report: Assisting homeless people – the need to
13
The lack of crisis accommodation for women & young women who are pregnant, severely impacts
both the child’s safety and development & a woman’s skill development in caring for their
developing child. Removal of child appears to entrench women into homelessness, yet is one of the
only options available to reduce the risk of harm to a child who is homeless.
RECOMMENDATION 13:
ACCOMMODATION OPTIONS BOTH CRISIS AND LONG TERM ARE NEEDED TO SUPPORT WOMEN WHO ARE PREGNANT, OR
NEW MOTHERS, NOT LINKED TO ESCAPING DOMESTIC VIOLENCE.
CALD WOMEN
Culturally linguistically Diverse Women are another sub group of women who are particularly
invisible. There are a range of situations where migrant women may be exploited abused or
trafficked, unable to access supports as they don’t know the system, speak English, or are unable to
escape. These women are particularly marginalized, and often lack any form of support systems
such as family, friends or community. For women who come to Australia on spousal visas for
example and then experience domestic and family violence, are often threatened with deportation
by their spouse, who is often their sponsor for entry into the country.
Many of these women tell us they are at risk of severe punishment & persecution if they are to
return to their country of birth due to a “failed marriage”, and fear retribution of the supposed
shame they have brought on their families & community. These women have identified having
passports stolen & withheld, as a means of preventing them seeking help or alerting authorities to
the violence they experience, and expressed sever experiences of sexual assault, abuse and slavery
as part of their journey into homelessness. These women have no residency status, therefore are
ineligible to receive income assistance, access housing, or crisis housing. There is a minimal payment
available to those women who successfully demonstrate their experience of domestic violence,
through centerlink are approved a payment of Special Benefit, through Centrelink incurs a dollar for
dollar reduction in their fortnightly payment should they accumulate any savings in an attempt to
better their future. In a similar vein, the limitations to access of English classes for people holding
temporary visas, compounds their dependence on a system, which will not adequately support
them, contributing to an increased lack of awareness of their rights & how to navigate our complex
systems for support.
Resources that are available to CALD women are limited and not provided on an equitable platform.
To respond to the increase in women being delivered to crisis accommodation services by the police,
women’s crisis services have made available, and several beds for CALD women who have no
income. Samaritan Services (Salvation Army) for example has invested in an Anti-Trafficking
accommodations program attached to their regular women’s services.
However all these crisis accommodation options are limited, and continuously full, as there are no
exit options for these women until they have their residency approved and this can take up to two
years.
RECOMMENDATION 14:
BROADEN ELIGIBILITY CRITERIA FOR HOUSING TO INCLUDE PEOPLE WITHOUT PERMANENT RESIDENCY
improve their access to accommodation and support services. New South Wales Ombudsman: Sydney, p. 56
14
RECOMMENDATION 15:
REVIEW SPECIAL BENEFIT PAYMENT CONDITIONS TO CREATE EQUITY & EQUALITY IN RECEIVING A BENEFIT TO
SUPPLEMENT IN COME.
RECOMMENDATION 16:
INCREASED ACCESS TO ENGLISH CLASSES & AUSTRALIAN CULTURAL EDUCATION, TO ALL TYPE OF VISA HOLDERS, TO
IMPROVE OPPORTUNITIES FOR ECONOMIC PARTICIPATION & SOCIAL INCLUSION.
OLDER WOMEN
“We tend to think the homeless are those temporarily driven from their homes by family violence or
chronically homeless due to a life crisis exasperated by alcohol or substance abuse and deteriorating
mental health problems. We rarely think about older working women as a potential wave of
homeless people, but the evidence is that is exactly the problem we face, and one for which we are
poorly prepared.”33
The recent research and report by McFerran “IT COULD BE YOU: single, female, older & homeless”,
identifies research has emerged on the pivotal social and economic impacts of divorce and
separation on the capacity for women to secure and maintain affordable and appropriate housing
into old age. The compelling evidence of the high levels of housing risk for single, ageing women
uncovers a serious oversight in housing and homeless policy and service provision. McFerran cites
poverty as the major difference in experiences for women & men in aging and therefore risk of
homelessness. Issues discussed relating to women’s lower pay, leaving the workforce for
childrearing reasons and divorce, are all contributing to older women’s significant decline in
development of, superannuation, assets or savings for the latter part of their life; and a disturbing
trend of older first time homeless, aging women.
We support the recommendations made in McFerran’s report.
WOMEN EXPERIENCING MENTAL HEALTH
Homelessness can be caused by mental health admissions to treatment facilities. Experiencing a
mental disorder is a key factor in initiating and shaping trajectories of homelessness through
increased isolation, vulnerability and trauma, and exclusion from the employment and housing
markets34. Many women who become homeless have already been diagnosed with a mental illness,
and the illness can range from mild to chronic. Chronic mental illness is prevalent in the population
of single homeless women, and many of these women also suffer from past or current substance
misuse. Their mental illness can dramatically affect the capacity of single women to obtain and/or
maintain their housing35. While the research findings predominately highlight the additional
disadvantage experienced by homeless persons, the rate of mental illness among homeless women
appears to be relatively greater than for men, particularly schizophrenia, suggesting that mental
illness is a significant feature within the population of homeless women36.
Again research into the needs, treatment and support requirements of women in relation to
homelessness and mental health and treatment options is required.
33
McFerran, L, 20101, It could be you, female, single, older & homeless, p
Accommodation in crisis – Forgotten Women in Western Sydney – Catherine Robinson & Rose Searby 2006
35 Parity – Volume 20, Issue 4- May 2007 – The causes of Homelessness Among Single Homeless Women- pg 17
36 Virgona, A. Buhrich, N. and Teesson, M. (1993) "Prevalence of Schizophrenia Among Women in Refuges for the
Homeless" Australian and New Zealand
34
15
RECOMMENDATION17:
RESEARCH REGARDING THE NEEDS, TREATMENT AND SUPPORT REQUIREMENTS OF WOMEN IN RELATION TO
HOMELESSNESS AND MENTAL HEALTH TREATMENT OPTIONS IS REQUIRED.
RECOMMENDATION 18:
INCREASE TO NON-MEDICAL MENTAL HEALTH SUPPORT IS REQUIRED.
WOMEN WITH SUBSTANCE DEPENDENCY
Drug and alcohol dependency are contributing factors to homelessness, and are often related to
women’s self-management of experiences of sexual abuse and violence and mental health disorders.
However it is this dependency that can also place women at greater risk of further sexual abuse and
violence. 37
Issues that combine mental illness with risk taking behaviours such as drug dependency, and street
work further complicates access to housing. This group often remains invisible as they are not
represented in homeless data due to many service limitations on a client being substance free to
access crisis accommodation. For services to increase their capacity to manage such complex client
behaviours attached to problematic substance use, investment is needed into training &
considerations of these employees pay levels to support clients with a complexity of issues which
keeps them trapped in the homeless sub culture, and blurs the extent to female chronic
homelessness.
The lack of Intoxicated Persons Unit, and rehab beds available for women compared to those
available to men, to access, for support and treatment options, provides little alternative for a single
woman other than to remain in unsafe situations, and practices to meet their accommodation
needs.
RECOMMENDATION 19:
DRUGS & ALCOHOL SERVICES NEED TO BE ACCESSIBLE & EQUITABLE IN THEIR AVAILABILITY AND TIMELINESS OF
TREATMENT – FOR BOTH MEN & WOMEN .
37
Accommodation in crisis – Forgotten Women in Western Sydney – Catherine Robinson & Rose Searby 2006