Submission to Family and Community Development Committee Inquiry into the adequacy and future directions of public housing in Victoria ...
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Submission to Family and Community Development Committee
Inquiry into the adequacy and future directions of public housing in
Victoria
“ As a community, we should not only be focusing on the economic costs of
housing affordability but also the health issues that can be triggered by the
housing affordability crisis, including the cost of depression, family
breakdowns, alcoholism and stress”
Robert Caulfield, Archicentre 2007
Executive Summary
Within the municipality of Frankston, there is a shortage of affordable housing, high
levels of housing insecurity and an urgent need for crisis accommodation. As the gap
between income and affordable housing grows, more Frankston residents will
experience housing stress, social and economic disadvantage and ill health.
Frankston City Council is committed to advocating for increased and appropriately
located affordable and social housing, as demonstrated in the Council Plan 2009 –
2013 Strategic Objective 3 – Active and healthy community with a vibrant culture;
3.1.3 Advocate for opportunities to increase affordable and social housing.
Council acknowledges the focus of the inquiry into public housing, however would
like to note initiatives, such as requiring all new developments to include a minimum
of 15 per cent of blocks set aside for affordable housing as in the ACT, would help
address the shortage of affordable housing in Victoria, and Frankston in particular.
Summary of Recommendations
Frankston City Council recommends a place based approach to planning
infrastructure and provision of services appropriate to the local area. An increase in
public housing and integrated support services should reflect the needs and
aspirations of the community as well as supporting and enabling all residents to
flourish.
To support a place based approach to addressing housing need within Frankston
City, Council offers a number of recommendations:
• affordable and social housing to be obtained to meet demand. As a general
rule, Frankston City Council supports integrated low-rise accommodation in
preference to high rise accommodation.
• minimum standards for public housing to be developed and implemented
• a variety of support and accommodation options to be available to meet the
varied complex needs of people who are experiencing or are vulnerable to
homelessness, as well as accommodation options for people from
backgrounds of low socio-economic status and families under severe housing
stress
• security of tenure in public housing to enable people to experience a sense of
control, autonomy and security
• location of public housing to be appropriately integrated into communities and
neighbourhoods to reduce areas of disadvantage
• awareness raising of housing issues to improve public support of public
housing developments
• community engagement to be undertaken before and during development of
public housing projects
A770157 1• Office of Housing to consult with Council to ascertain where to acquire social
housing, and what sort of housing is appropriate for the area
• Frankston City Council supports rooming houses. While it is recognised that
there always will be exceptional circumstances ideally all rooming houses
should have a planning permit.
• Frankston City Council believes that the provision of emergency
accommodation in the area is desperately needed, and should be given
funding priority.
Housing as a human right
Adequate housing is a fundamental human right. The International Covenant on
Economic, Social and Cultural Rights recognises the right of everyone to adequate
housing. People living without adequate housing may have many other basic human
rights compromised, such as the right to family life, freedom of movement, the right to
health and the right to development (Housing as Human Right, Chris Sidoti, 1996).
Frankston Council acknowledges the initiatives and policies of State and Federal
Government to address housing and homelessness; however this commitment has
not yet met the growing need.
Specific issues and needs of the Frankston Community
The municipality of Frankston is made up of unique communities with varying needs
and interests. Located on Port Phillip Bay, approximately 40 kilometres south east of
Melbourne, Frankston City had a population of 116,199 in 2006. Overall, 25% of the
population were aged 0-17yrs (compared to 22.7% in the Melbourne Statistical
Division); 17.4% were aged 60yrs+ (MSD 16.8%) (Frankston City Community Profile
http://profile.id.com.au).
Frankston has a SEIFA index of 996.5 and this ranks it the 8th most disadvantaged
municipality in metropolitan Melbourne. However, disadvantage is considerably
more prominent in the local areas of North Frankston and Frankston Central with
SEIFA ratings of 832.3 and 910.8 respectively.
Population
The estimated population for 2010 is 127, 974, by 2020 the Frankston population is
expected to rise by 9,023 people, with large increases in residents aged 40-75 years
old. By 2020, it is forecasted that residents aged 60+ will increase by 5,800 (24%)
and those over 80 will increase by 570 (13.5%) (http://forecast2.id.com.au). This will
have significant implications for housing in Frankston City. In 2007 the birth rate for
Frankston (births per 1000 women aged 15 - 44 years old) was 74, compared 64 for
Victoria (VLGA).
Demand outstrips supply for public housing
In 2005 there was 1753 Office of Housing stock in Frankston, with the majority being
3 bedroom houses. 67 percent of the stock was constructed in the 1980’s or before,
requiring significant resources for maintenance. (Greg Collins, Frankston Housing &
Community Conference – 27 September 2005). At June 2008 there was 1758 Office
of Housing Stock in Frankston, so despite the acquisition of 16 units of stock in
period 2007 to 2008 the total stock in Frankston increased by only 5 properties in this
three year period. This can be attributed to the high percentage of the Office of
Housing’s stock related budget going towards maintenance and physical
improvements and a policy of selling properties in the poorest condition.
A770157 2Housing Stress
• 10.4% of low income families with home loans are in housing stress.
• 5.3% of low income families renting homes are in housing stress.
• One parent families had by far the highest levels of housing stress in
Frankston, comprising 35% of all households in stress
• Housing stress was a particular problem among one parent families with
young children in rented accommodation, with 60% being in stress.
As this data was complied in 2006 we can expect many more people are
experiencing housing stress since the economic downturn. The average rental
population in Melbourne is 24.5 %. In parts of Frankston we have a renting
population up to 43.3 %. When looking at the income levels and the rising rental
prices we can see that these people are going to experience continued (and growing)
rental stress. Anecdotally it is believed up to 30% of people in Frankston are now in
housing stress. Frankston Community Support and Information Centre provided 684
public housing tenants with emergency relief in 2009.
Older People
Local agencies have identified Frankston City has experienced a significant increase
in the number of people over 55 years old who are becoming homeless. Elderly
people experiencing elder abuse1, social isolation and mental health issues find
maintaining accommodation increasingly difficult, which is exacerbated by the high
cost of living and the pressured private rental market. Public housing is unable to
meet the ever growing need for units to house elderly people (nationally currently
public housing meets 42% of demand from eligible older people), and this gap will
continue to increase with our ageing population without major investment in housing
infrastructure.
People with disabilities
In 2009, 7% of residents had disabilities causing profound restrictions, 9.1% had
disabilities which affected education or employment. Altogether 22% of Frankston
residents have some kind of disability (Inferred figures from VLGA Social Statistics
Library). The waiting list for accessible housing can be in excess of 18 months, with
little or no accessible transitional accommodation available.
New settlers
In 2006 20.8% of Frankston residents were born overseas with 8.9% from non-
English speaking backgrounds (MSD 29% and 22% respectively), there is an
emerging Indian and Sri Lankan population in Carrum Downs. Although Frankston
does not have a large migrant or refugee population, it is important to have housing
options available for all. Our neighbouring municipalities such as City of Greater
Dandenong, City of Kingston and Monash City have significant new settler
communities that are beginining to extend into Frankston.
1
The World Health Organisation defines elder abuse as “a single or repeated act o lack of appropriate
action, occurring within any relationship where there is an expectation of trust which causes harm or
distress to an older person.”
A770157 3People with complex needs
People with complex needs such as mental illness, alcohol and drug dependence
need specific types of housing and usually support to help them maintain housing
and live sustainably in the community. Services such as Skills for Life and intensive
outreach provided by Peninsula Support Services in the Frankston area, offer people
with complex needs the support required to live independently.
Indigenous
Frankston had 749 self-identified indigenous residents in the 2006 Census.
Family Violence
Family Violence is a serious issue in Frankston City, with 1102 family violence
incidents recorded in 2005/06 (Victoria Police Provisional Crime Statistics). It is
widely recognised that family violence is a major contributor to homelessness, with
many women and children caught in cycles of violence, homelessness and
disadvantage.
Single parent families
Frankston has a higher percentage of single parent families than the Melbourne
Statistical Division, with 3665 one parent families with children 15 years and under in
2006, or 11.7% of the population (MSD 7.5%).
Waiting lists
People in Frankston can experience long periods on the public housing waiting lists.
This can result in individuals staying longer in transitional housing than required, and
inturn the flow of people moving from crisis accommodation to transitional housing
can be significantly slowed.
Frankston Public Housing Waiting List as at June 2009
– Early Housing 274
– Wait Turn 1837
– Total 2111
Frankston Public Housing Transfer List as at June 2009
- Early Housing 83
- Wait Turn 289
- Total 372
Long waits for public housing can force people into secondary and tertiary
homelessness, staying in unsuitable accommodation such as rooming houses and
caravan parks. People may have to find private rental accommodation that is beyond
their means causing financial strain, and possibly incurring debt. Others stay with
family or friends, straining relationships and causing overcrowding.
Rooming houses
Frankston Council welcomes the State government adoption of all 32
recommendations of Martin Foley’s Rooming House Standards Taskforce in October
2009.
There are currently approximately 40 rooming houses registered in Frankston under
the Health (Prescribed Accommodation) Regulations 2001, and anecdotal evidence
A770157 4estimates an additional 15 houses unregistered. The number of rooming houses has
significantly increased in the past few years, indicative of a lack of affordable housing
options in Frankston.
Often rooming houses are simply modified suburban homes with limited facilities and
space. Shared facilities and lack of space for communal activities are not conducive
to family life, and can be particularly hazardous to people experiencing mental health
issues. Rooming houses of a particular size (less than 4 people) are not covered
under The Health (Prescribed Accommodation) Regulations 2001 and Building Code
of Australia. While it needs to be recognised that there are many cooperative
arrangements in shared housing (for instance, students sharing a home), it also
needs to be recognised that vulnerable residents in accommodation crisis are at risk
in those environments that fall below the planning scheme requirements. One
legislative option is to require that to operate any rooming house requires a planning
permit and then list appropriate exceptions.
Emergency Accommodation
Frankston City Council believes that the provision of emergency accommodation in
the Frankston area is desperately needed and should be given funding priority. The
lack of emergency accommodation is creating blockages in emergency and
transitional accommodation due to the lack of sufficient housing stock. However the
crisis accommodation service delivery model needs further and detailed discussion to
accommodate a place based strategy and take into account the characteristics of the
municipality and the culture of the community.
Caravan and cabin parks
Tenants in caravan and cabin parks have no security of tenure, and poor living
conditions can exacerbate the complex social issues that residents often experience.
Also, pressures of development may result in the sale of these facilities, resulting in
further displacement and demand upon housing assistance. There are currently six
caravan parks in the municipality that are often used as affordable and crisis
accommodation. Council has received anecdotal reports that fewer caravan parks
are taking disadvantaged people due to the lack of ongoing support typically required
by these tenants.
Place based recommendations
Greater supply
Although the Office of Housing advises they are acquiring and building additional
public housing in the Frankston municipality this still falls significantly short of
addressing the demand for accommodation. Frankston’s increasing population along
with the growing gap between income and affordable housing will place further
demands on public and social housing.
Frankston Council recommends
• Additional funds be made available for the acquisition of more appropriately
located public and social housing, outside the area of the CAD bounded by
Young, Beach, Nepean Highway and Davey Streets, to address the dire need
for affordable accommodation for Frankston residents, as well as ongoing
investment in improvements and maintenance.
• Public transport be planned in tandem with public housing developments, as it
is an essential part of community infrastructure.
A770157 5Minimum Standards
“Of the 74,000 public housing properties in Victoria, 56,351 fail to meet
energy efficiency standards. The Victorian Utility Consumption Survey of
households has consistently found that difficulties in heating homes in winter
were much more common for private and public renters than for home
owners.”
A Future Focussed Housing Standard - VCOSS - October 2009
Frankston council recommends
• All housing purchased for public housing stock should meet minimum
standards around accessibility and environmental sustainability.
• Standards include properties be weather proof, insulated, and window
coverings be provided to protect against high internal temperatures and
weather extremes. These standards would enable homes to be more
affordably kept at a reasonable temperature, and would prevent poor
ventilation or damp, improving the health and wellbeing of tenants.
Varied and complex needs
Frankston Council recommends a variety of support and accommodation options are
available to meet the varied complex needs of people who are experiencing or are
vulnerable to homelessness.
Older people
Frankston Council recommends that
• Further suitable infrastructure is constructed and/or purchased to meet the
demands of a rapidly ageing population. Accommodation should be located
close to public transport and health and community facilities.
• Older people should have a choice of being accommodated in village style
communities with other older people, or in accommodation in the general
community.
Indigenous
Frankston Council recommends
• Consultation with the indigenous communities of Frankston be undertaken to
ascertain their specific public housing requirements.
Refugees and migrant communities
Frankston Council recommends public housing and support address the specific
needs of migrant communities through:
• suitable dwellings for higher population households (extended families and/ or
more than 4 children) located in areas with access to public transport,
community services and employment opportunities
• specific support for the community enhancing information channels and
awareness raising potentially in the form of a multicultural liaison officer
• training in financial management and basic tenancy law to assist migrants to
develop skills and knowledge to maintain a property and access services
People with disabilities
Frankston Council recommends
• additional accessible infrastructure to meet the needs of people with
disabilities, located close to public transport and health and community
facilities
A770157 6Single parent families
Single parent families, especially families escaping family violence have specific
housing requirements. Research shows the needs of women and children are best
accommodated by staying safely in their homes following family violence, however
when this is not an option suitable safe crisis, transitional and long term
accommodation needs to be available.
Frankston Council recommends
• Increase public housing suitable for single parent families located near
schools and community and health services.
Mental health
Frankston Council recommends
• A support system for people living with mental health issues and ongoing
safe, stable accommodation is required.
Support
There are a number of support services available in Frankston for people with
ongoing high support needs, as well as emergency relief assistance and support for
tenancies at risk.
Frankston Council strongly supports an increased focus on prevention and early
intervention indicated in the Homelessness 2020 Strategy discussion paper.
Providing integrated, individually tailored support will help prevent recurring
homelessness, and alleviate pressure on the public housing system.
Frankston Council recommends onsite support in concentrations of public housing. A
regular or constant worker with decision making authority can dramatically improve
the management of neighbourhoods, and improve residents’ confidence. Caretakers,
neighbourhood police officers and tenancy support workers can all play this role if
able to respond to issues as they arise, and ensure essential maintenance is carried
out.
Security of Tenure
Security of tenure is an important aspect of public housing providing people with “a
sense of autonomy, identity and control over their living environment, resulting in
increased residential security and reduced stress. This benefits children’s education
and neighbourhood social cohesion, and in some contexts enables workforce
participation“(AHURI Research and policy bulletin – How does security of tenure
impact on public housing tenants? Issue 78 August 2006).
Council recognises that people being confident of remaining in their homes provides
them with the ability to focus on longer term goals, and to be more able and willing to
become part of the community. A national survey found public housing tenants rated
security of tenure above dwelling security or safety (AHURI Research and policy
bulletin – How does security of tenure impact on public housing tenants? Issue 78
August 2006).
A lack of control over ones living environment has been identified as a potentially
‘chronic’ source of stress. Chronic stress can affect people’s physical health, leading
to rashes, headaches, hair loss, high blood pressure and heart attacks.
A770157 7An inquiry question relates to the feasibility of making all public housing transitional.
Council strongly suggests that the scarcity and cost of private rental accommodation
would make it very difficult for people leaving public housing to find permanent
accommodation with security of tenure if all public housing was purely transitional.
Allocation and Targeting
Frankston Council acknowledges that the ‘segmented waiting list’ is one way of
targeting scarce housing resources on the basis of need. However there are serious
consequences associated with people experiencing long periods on waiting lists, as
well as targeting contributing to the creation and maintenance of areas of
disadvantage.
Areas of disadvantage can occur when public housing is targeted only to those most
in need, “contributing to concentrations of disadvantaged people in particular
neighbourhoods, perpetuating social stigma about these neighbourhoods and their
residents, and heightening barriers to employment” (Housing Assistance and
Disadvantaged places AHURI Research and Policy bulletin Issue 85 November
2006).
Pressures of demand often mean that people have little or no choice in the location
or type of accommodation offered to them, with their application being withdrawn if
they do not have significant medical or other reasons for refusing a property. Having
limited or no choice in where you live, as mentioned above when discussing housing
insecurity, can have serious health implications.
Frankston Council recommends
• significant and ongoing investment for acquiring additional public housing,
working with Council to identify appropriate areas for housing, and utilising
examples of good design, mixed tenure and layout options where public
housing is not identifiable, to create sustainable diverse communities. Council
acknowledges that this type of development is higher in cost, and will require
commitment from Federal as well as State Government to a broader program;
however Council believes it will help alleviate future social issues, and save
money in the long term.
• meaningful explicit local allocation systems, sensitive to the differences in
local housing markets and conditions would allow for a more sustainable mix
of tenancies.
Awareness raising and community engagement
The development of social housing can provoke opposition by surrounding
neighbours concerned by the type of tenant to be housed, and the fear that their
property will be devalued by the development. It is important that public and social
housing develop fits the local neighbourhood character and is not a conspicuous
high-rise dwelling or encourages a concentration of disadvantage. A culmination of
unfortunate circumstances can see homelessness befall anyone, and significant
numbers of people in the community suffering from housing stress are already
vulnerable to this situation.
A770157 8Frankston Council recommends
• An ongoing awareness raising campaign in the community regarding the
need for affordable housing is an important step in reducing public concern.
• Frankston City Council supports integrated low-rise accommodation in
preference to high-rise accommodation.
Community engagement prior to and during the development of public housing is
incredibly important to reducing community angst, and to the future social cohesion
of the neighbourhood. Council is ideally placed in this process, having a thorough
understanding of the geography, demography and existing relationships with the
community.
Frankston Council strongly recommends
• The Office of Housing consults with Council to ascertain suitable areas for
development, outside the area of the CAD bounded by Young, Beach,
Nepean Highway and Davey Streets, and appropriate accommodation type
and the method of community engagement.
Conclusion
The opportunity to provide feedback to the inquiry into the adequacy and future of
public housing is very welcome.
Council emphasises that a place based approach to the provision of public housing
would provide significant health and wellbeing and benefits for the community.
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