ࡱ> g ?bjbjVV r<r<7 ..Lq fHHHHH$!$V ^ HHu+ RHH`"Hp6c>[xA 0q $a$$T  q $. N: OUR HOMELESS CHILDREN REPORT OF THE NATIONAL INQUIRY INTO HOMELESS CHILDREN HUMAN RIGHTS AND EQUAL OPPORTUNITY COMMISSION Australian Government Publishing Service Canberra 1989 NOTES This Report frequently quotes from written submissions to the Inquiry. These are referred to by the letter 'S' and a number. Particulars of a quoted submission can be found in Appendix B. Quotes from the United Nations Declaration of the Rights of the Child are exactly as they appear in the Declaration adopted in 1959. The United Nations has since adopted a policy of using gender neutral language in official texts. This policy is reflected in the new Convention on the Rights of the Child presently being concluded. ISBN No: 0 644 08597 5 Typeset by MacQuade's Bureau Pty Limited. Printed by M.A.P.S. Litho Pty. Limited. Photograph used in cover design courtesy of John Fairfax & Sons Limited. i 10 February 1989  PREFACE This Report has been made possible by the many thoughtful written and oral submissions received from members of the public, community organisations, homeless children, and Federal, State and Territory governments. The problems which it identifies require responses not only from governments, but from our communities and, indeed, each of us as individuals. In compiling the Report, we found a major difficulty to be the lack of research in Australia on the plight of homeless people in general, and homeless children in particular. We also found many dedicated individuals and organisations working with very little information and very few resources often unaware of developments elsewhere in Australia that could have assisted their efforts. We have tried, therefore, within the limits of our resources, to include material that will give the Report some continuing value as a reference for those working with homeless children. We have attempted to take account of all relevant reports and studies previously made by government and non-government bodies. We record here our appreciation for the light which these have thrown on our efforts. We also wish to place on record our appreciation to staff of the Human Rights and Equal Opportunity Commission for their dedication, professionalism and sheer hard work. Many contributed but we wish to thank particularly Bill Chapman, Meredith Wilkie, Warren Simmons, Jim Fouras, Amanda Bowden, David Mason and Patricia Mohan. iv TABLE OF CONTENTS Page PART 1: BACKGROUND 1 Chapter 1: THE NATIONAL INQUIRY INTO YOUTH HOMELESSNESS 3 The Human Rights and Equal Opportunity Commission 3 Background to this Inquiry 3 Terms of Reference 3 The Commissioners 4 Procedure of the Inquiry 4 This Report 6 The Scope of the Inquiry 7 鱨վ and Young People 7 Homelessness 7 Homeless 鱨վ and Young People 7 Chapter 2; GOVERNMENT RESPONSES TO YOUTH HOMELESSNESS 9 Introduction 9 National Studies and Programs: Background 10 Study into Homelessness and Inadequate Housing: 1984-85 10 Youth Services Scheme 10 Senate Standing Committee on Social Welfare: Report on Homeless Youth 11 Evaluation of the Youth Services Scheme 11 Ministerial Review 12 Federal-State Accommodation Program 12 Supported Accommodation Assistance Program 12 SAAP Review 14 Federal Income Support Provisions 16 May Economic Statement 1987 16 State Welfare Responses 16 Child Welfare 16 Juvenile Justice 19 Conclusion 20 Chapter 3: DEVELOPMENTS SINCE THE INQUIRY BEGAN 27 Introduction 27 Income Support 27 Accommodation 27 Western Australia 27 Victoria 28 Northern Territory 28 Inquiries into Homelessness 28 South Australia 28 Queensland 28 New South Wales 28 Northern Territory 29 Legislative Responses 29 New South Wales 29 Victoria 30 Queensland 30 Administrative Responses 30 South Australia 30 New South Wales 30 Other Developments 30 Federal 30 Chapter 4: THE RIGHTS OF THE CHILD 33 Introduction 33 Meaning and Content of the Declaration of the Rights of the Child 33 Role of the Family 33 Right of the Child to 'Special Protection' 34 Right to Social Security 35 Right to Adequate Housing, Medical Services and Nutrition 35 Protection Against Neglect, Cruelty and Exploitation 36 The Significance of the Convention on the Rights of the Child 37 PART II: THE DIMENSIONS OF YOUTH HOMELESSNESS 41 Chapter 5: THE EXPERIENCE OF HOMELESSNESS 43 Introduction 43 Duration of Homelessness 43 In the Beginning 44 Accommodation Options 45 Income 48 Offending 49 Drug Dealing 50 Prostitution 50 Transience 51 Violence 51 Health 52 Exploitation 53 Police 54 Welfare Authorities 55 Youth Workers 56 Education 56 Employment Prospects 58 Conclusion 58 Chapter 6: THE INCIDENCE OF YOUTH HOMELESSNESS 65 Introduction 65 Estimates of Total Homeless Youth 65 Estimate of Homeless 12-15 Year Olds 67 Estimate of Homeless and At Risk 16-17 Year Olds 68 Estimate of Homeless and At Risk 15-24 Year Olds 68 Age Range 68 Other Demographic Features 69 Conclusion 69 Chapter 7: THE COSTS OF YOUTH HOMELESSNESS 73 Introduction 73 Homelessness and Poverty 73 Costs to the Individual 74 Costs to the Community 75 Direct Government Costs: Division of Responsibility 75 vi Income Support Short-term 76 76 Family Allowance and Family Assistance Payments 76 76 Long-term Social Security Costs 77 77 Housing Costs 78 78 Medical and Health Costs 78 78 Short-term Costs 78 78 Longer-term Costs 78 78 Community Services Costs 79 79 Education and Training Costs 79 79 Crime Prevention and Correctional Services Costs 80 80 Costs to State Governments 80 80 Costs to the Community 80 80 Approaches to Reducing or Eliminating These Costs 81 81 PART III: FACTORS CONTRIBUTING TO YOUTH HOMELESSNESS 83 83 Chapter 8: FAMILIES UNDER STRESS 85 85 Introduction 85 85 Incentives to Leave Home 86 86 Reuniting 鱨վ with Families Where Possible 87 87 Family Conflict 88 88 Fragmentation and Reconstitution of Families 88 88 Neglect 89 89 Abuse 90 90 Response by State Welfare Services 91 91 Community-based Services 94 94 Conclusion 94 94 Chapter 9: FAMILY POVERTY AND ISOLATION 99 99 Introduction 99 99 Extent of Family Poverty 99 99 Nature of Family Poverty 100 100 Unemployment 100 100 Sole Parent Families 100 100 Income Support 100 100 Housing Costs 101 101 Effects of Family Poverty 101 101 Social Isolation 102 102 Addressing Family Poverty and Isolation 102 102 Income Support 102 102 Family Support Program 102 103 Other Federal Support 103 105 Conclusion 105 105 Chapter 10: CHILDREN IN THE CARE OF THE STATE 109 Introduction 109 109 鱨վ in Care 109 112 鱨վ Leaving Care 112 112 Deinstitutionalisation 112 114 Programs for 鱨վ Leaving Care 116 116 Conclusion 117 117 Chapter 11: YOUTH UNEMPLOYMENT 121 Introduction 121 Extent of Youth Unemployment 122 Causes of Youth Unemployment 122 Nature of Youth Unemployment 123 Duration 123 Hardship 123 Accommodation 124 Impact of Unemployment 125 Desire for Employment 125 Chapter 12: THE SITUATION OF ABORIGINAL CHILDREN AND YOUNG PEOPLE 129 Incidence and Nature of Homelessness 129 Causes of Aboriginal Youth Homelessness 131 Housing Need 131 Lack of Income 131 'The Welfare' 132 Institutions 132 Family Constitution 133 Alcohol Abuse 134 Migration to Urban Centres 134 Approach to the Provision of Services for Aboriginal Communities and Young People 135 Conclusion 135 Chapter 13: THE SITUATION OF YOUNG REFUGEES 139 Introduction 139 Income Support 140 Alternative Accommodation 141 Other Services 141 Conclusion 142 PART IV: INCOME AND SHELTER 145 Chapter 14: INCOME SUPPORT FOR HOMELESS YOUNG PEOPLE 147 Approaches to Income Support 147 Incentives and Disincentives 147 Welfare and Need 147 Current Approach 148 Young Homeless Allowance 149 YHA Eligibility 149 Number of YHA Recipients 150 Criticisms of YHA 151 Eligibility Criteria 151 The Rate of YHA 155 Criticisms of the Implementation of YHA 156 Independent Austudy 159 Job Search Allowance 160 Findings and Recommendations 161 Chapter 15: YOUTH SUPPORTED ACCOMMODATION PROGRAM 169 Aims of Supported Accommodation Programs 169 YSAP Services 169 Refuges 169 Community Placement Schemes 170 Detached Housing Support Workers 170 Services for Groups with Special Needs 171 Assessment of the Program 176 Lack of Planning and Co-ordination 177 Lack of Alternatives 178 Lack of Expertise, Time and Resources 181 Rejection of 'Difficult' Young People 182 Unsuitable for Very Young People 182 Findings and Recommendations 183 Chapter 16: COMMONWEALTH-STATE HOUSING AGREEMENT 189 Introduction 189 Nature of the Public Sector 189 Commonwealth-State Housing Agreement 189 CSHA Programs 191 Mortgage and Rent Relief Scheme 191 Crisis Accommodation Program 191 Local Government and Community Housing Program 191 Young People's Access to Public Housing 192 New South Wales 192 Victoria 193 Queensland 194 South Australia 195 Western Australia 195 Tasmania 196 Northern Territory 196 Findings and Recommendations 19'7 Chapter 17: PRIVATE SECTOR ACCOMMODATION 203 Cost 203 Discrimination 204 Capacity to Sign a Lease 205 Common Law 205 Law Reform 206 Perception of Incapacity 206 Guarantors 206 Findings and Recommendations 207 Chapter 18: ACCOMMODATION SERVICES 211 Introduction 211 Objectives of Accommodation Services 211 Prevention 211 Rights 212 Range of Options 212 Support 212 Integration and Co-ordination 213 Outreach 213 Service Models 214 An Integrated Service: Logan City (Queensland) 214 A Staged Accommodation Service: BABI (Queensland) 216 A Community Placement Service: The Community Placement Scheme (Victoria) 217 Detached Housing Support 219 Head Leasing Transfer Scheme (New South Wales) 219 Wombat Youth Accommodation Services Group Inc. (Victoria) 220 Accommodation Programs for 鱨վ with Special Needs 220 Residential Alternatives for Teenagers (A.C.T.) 220 Intensive Neighbourhood Care Scheme (South Australia) 221 Rileys Inner City Youth Advocacy Service (New South Wales) 222 Public Sector Accommodation Models 223 Community Tenancy Scheme (New South Wales) 223 Information, Outreach and Referral 224 Housing and Young People's Outreach Service (Tasmania) 224 Community-based Management 225 Conclusion 228 PART V: OTHER SERVICES 233 Chapter 19: HEALTH NEEDS AND SERVICES 235 Introduction 235 Health Status 235 AIDS 236 Particular Issues 237 Drug and Alcohol Abuse 237 Intellectual Disability, Mental Illness and Emotional and Behavioural Disturbances 238 Existing Services 239 Innovative Models 240 Specialist Services 241 Findings and Recommendations 242 Chapter 20: SUPPORT NEEDS AND SERVICES 249 Introduction 249 Preventive Services 250 Findings and Recommendations 251 The Commonwealth's Role 251 The Role of State Welfare Authorities 252 Support Needs of Homeless 鱨վ 254 Findings and Recommendations 256 Chapter 21: LEGAL NEEDS AND SERVICES 259 Introduction 259 Access to Entitlements and Services 259 Access to Housing 259 Access to Income Support 259 Youth Workers and Legal Resources 259 Criminal Justice and Child Welfare 260 Approach to the Provision of Legal Services 263 Findings and Recommendations 264 Chapter 22: ROLE OF THE EDUCATION SYSTEM 271 Introduction 271 School as a Factor in Homelessness 271 Related Influences 273 Potential of the School to Assist 273 Education Prospects While Homeless 275 Accommodation 275 Income Support 276 Personal Support 276 Other Needs 277 A Sobering Comparison 278 Findings and Recommendations 278 Chapter 23: JOB TRAINING AND EMPLOYMENT PROGRAMS 283 Introduction 283 Employment Programs Federal 284 Policy 284 Training Programs 285 Access by Homeless Young People 286 Community-based Training 286 Employment Programs States 287 Victoria 287 South Australia 288 Queensland 289 Community-based Training and Employment Services for Homeless Young People 289 Findings and Recommendations 291 PART VI: ROLE OF GOVERNMENT AND NON-GOVERNMENT SECTORS 297 Chapter 24: A YOUTH ACCOMMODATION AND SUPPORT SERVICES PROGRAM 299 A New Program 299 Problems with the Current Response 300 Lack of Clear Demarcation of Responsibilities 300 Lack of Agreed Policy Objectives 301 Failure of Planning and Co-ordination 301 Lack of Standards 302 Inadequate Resources and Other Support 302 Inadequate Training and Conditions for Workers 303 Roles of the Government and Non-Government Sectors 305 The Commonwealth 305 The States and Territories 306 Local Governments 306 Community Organisations 308 The Business Sector 308 The Proposed New Arrangement 309 The Partners 309 Scope 311 Guidelines and Sanctions 311 Training and Conditions of Service 312 Co-ordination 313 Conclusion 314 SUMMARY OF RECOMMENDATIONS 321 Income Support 321 Commonwealth Responsibility for Homeless 鱨վ 321 xi Benefit Levels and Conditions 321 Access to Income Support 321 Youth Supported Accommodation Program 322 Crisis Refuges 322 Detached Housing Support Workers 322 Reuniting Families 322 Appropriate Accommodation Services 322 Access to Other Services 322 Accommodation for 鱨վ with Disabilities 323 Accommodation for Drug Dependent 鱨վ 323 Accommodation for Aboriginal 鱨վ 323 Commonwealth-State Housing Agreement 323 Commonwealth Responsibility 323 State Responsibility 323 Crisis Accommodation Program 324 Independent Accommodation 324 Local Government and Community Housing Program 324 Private Sector Accommodation 324 Measures to Increase Private Sector Accommodation 324 Legal Reform 324 Prohibition of Age Discrimination 325 Accommodation Services 325 Principles for all Youth Accommodation Services 325 Health Needs and Services 325 Health Education for Young People 325 Multi-serviCe Health Centres 325 Outreach Services 325 Provincial Services 326 Psychiatric and Therapeutic Services 326 Drug Treatment 326 Sensitivity of Services to Special Groups 326 Integration of Services 326 A National Conference 326 Support Needs and Services 327 Commonwealth Responsibility 327 Upgrading of Services 327 Family Support 327 State 鱨վ's Welfare Services 327 Services for Abused Adolescents 327 鱨վ in Care 328 Provision of Comprehensive Services 328 Appropriate Service Delivery 328 Youth Worker Training 328 Legal Needs and Services 328 Access to Legal Services 328 Police Interrogation and Custody 328 Bail 328 Legal Representation 329 Training for Law Officers 329 Youth Advocacy Services 329 Training for Youth Workers 329 The Role of the Education System 329 School Teachers and Homeless 鱨վ 329 xii vii ix   #$9:KL^z{ucQC5hnM@B*OJQJphhnM@B*OJQJph"hgZu5@B*CJOJQJph"hnM5@B*CJOJQJph"hnM5@B*CJOJQJph"hgZu5B*CJ'OJQJRHnph"hnM5B*CJ'OJQJRHnph)hgZu56@B*CJOOJQJRH<ph)hnM56@B*CJOOJQJRH<ph)hgZu56@B*CJOOJQJRH<ph)hnM56@B*CJOOJQJRH<ph $:L{v j$ & F h` h HH#]h^ `Ha$ & F h` h HH]h^ `H d^  $X^Xa$ $Xd ^Xa$ d$^Xd^XHd^H d ^ d$^d^ - 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