European Research Agenda on Homelessness

FEANTSA 2013

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Content Introduction ....................................................................................................................................................... 3 Effective Models of Housing and Social Support ............................................................................................... 4 ........................................................ 4 .......................................................... 5 ........................................... 5 ...................................................... 7 Policy Development, National Strategies and Governance............................................................................... 8 .............................................................. 8 .................................... 9 The Changing European Context ..................................................................................................................... 10 ........................................................................ 10 ......................................... 11 Dynamics and Measurement........................................................................................................................... 12 ........................................................................ 12 ...................................................................................................... 13 Employment and Social Inclusion .................................................................................................................... 14 .................................................... 14 ............................................................. 15 Specific Risk Groups ......................................................................................................................................... 16 ................................................................................................................ 16 ...................................................................... 17 .................................................................................................................... 17 Appendix: The European Observatory on Homelessness ............................................................................... 19 The European Observatory on Homelessness............................................................................................. 19 Selected works of The European Observatory on Homelessness, 1992-2013 ............................................ 19 Annual Research Conferences ..................................................................................................................... 20

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Introduction This document presents a European research agenda on homelessness seen from the perspective of the European Observatory on Homelessness. We outline key research topics and questions as the most important issues to be addressed in contemporary homelessness research in Europe. We do not review the existing literature but draw on the publication Homelessness Research in Europe (2010) which gives an overview of research on homelessness in Europe and discusses key topics and questions for a future research agenda on a range of dimensions. We also incorporate knowledge and recommendations from the European Consensus Conference on Homelessness which was held in Brussels in 2010. The background report for the consensus conference – Homelessness and Homeless Policies in Europe: Lessons from Research summarized the state of existing knowledge on homelessness and homelessness policies in Europe. The conclusions from the conference have been summarized in the paper European Consensus Conference on Homelessness: Policy Recommendations of the Jury. The research programme covers the following main themes and aspects:         

Effective models of housing and support The cost-effectiveness of homelessness programmes and interventions Policy development and governance User involvement, empowerment and recovery The changing European context Dynamics and measurement Risk and needs assessment Employment and social inclusion Specific risk groups

In the appendix we summarize the background and history of the European Observatory on Homelessness and list key publications from the Observatory.

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Effective Models of Housing and Social Support A growing body of research supports that permanent housing with social support (Housing First) is an effective solution to long-term homelessness. However, the access to both housing and social support poses barriers for implementing the Housing First model in many countries. More research is needed on how to promote access to permanent housing and on experiences with different forms of housing. More research is also needed on which methods of social support are most effective and for whom? Research is also needed on the organization and implementation of housing and support models on the local level.

Purpose In most European countries social housing plays and important role in providing access to permanent housing for socially marginalized groups. However, overall demand for housing is high and in some countries reforms of the social housing sector have increased the competition for housing amongst housing applicants bypassing traditional social allocation mechanisms. Also the demand for increased social mix in challenged housing estates has put pressure on the allocation of social housing to marginalized groups. Within this context of changing roles and organisations of the social housing sector there is a need for more research on how to promote access to social housing for the homeless. Research questions  How can access to social housing be promoted for homeless people?  Which allocation mechanisms to social housing facilitate access for homeless people?  How do social housing reforms influence access to social housing for homeless people?  Do policies to create social mix in housing estates create barriers of access to housing for marginalized groups?  Can access to social and housing-related support enhance access to social housing for homeless people?  How do different welfare regimes and systems influence access to social housing for homeless people?

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Purpose The high demand for housing in European cities and the changing organization of the social housing sector in many countries increase the need to find housing solutions for the homeless in the private rental sector. More research is needed on which rental and support models facilitate access to the private rental sector for homeless individuals with complex support needs and other groups amongst the homeless.

Research questions  How can access to the private rental sector be promoted for homeless people?  Can social rental agencies enhance access to suitable private rented housing for homeless people?  Can access to adequate social and housing-related support facilitate confidence amongst private landlords towards renting to homeless people with complex support needs?  How do differing welfare systems affect the ability to promote access to the private rental sector for homeless individuals?

Purpose A long-standing debate in the homeless research literature is about which forms of housing are most suitable for homeless people and for different subgroups among homeless people. Debates about the merits of housing homeless individuals with complex support needs in ordinary housing or in specialized housing are key to future service and policy developments. More research is needed on what forms of housing are most suitable for different groups and how housing needs interact with support needs and the availability of support. Research questions  How do housing needs of homeless people vary according to support needs?  For what groups does independent scattered housing or specialized, integrated housing work best – and under what conditions?  How does the ability to live in independent housing interact with the availability of social support and different methods of social support?  What support methods increase housing sustainability and prevent evictions?  What are the experiences with specialized housing for different subgroups?  Are there any unintended effects from using congregate housing?  Are there any unintended effects from using scattered housing?  What are the experiences of dealing with neighbour conflicts in the Housing First model? 5

Purpose Research has shown that social support in the process of rehousing increase the chances of formerly homeless individuals of staying housed. Assertive Community Treatment (ACT), Individual case management (ICM) and Critical Time Intervention (CTI) are evidence-based methods of social support. More research is needed on the effectiveness of these methods in a European context and how they can be organized and implemented within different types of welfare systems and on the local level – e.g. on municipal level. More research is also needed on the effectiveness of support models of lower intensity. Research questions  What are the experiences with Assertive Community Treatment (ACT), Individual case management (ICM) and Critical Time Intervention (CTI) in Europe?  What interventions are effective for which target groups?  To what extent are lower intensity support models effective?  What are the most effective methods of prevention of homelessness?  What methods can provide holistic support for homeless individuals with complex support needs?  How can homelessness support models and mental health and addiction support models be integrated?  How can physical health needs and care needs be met within different support models?  Do different welfare systems affect the effectiveness of different support models or limit the implement of specific service models?  How can effective methods of social support be organized and implemented on a local level?  What are the experiences with social innovations and new methods of providing support?  How can social innovations be facilitated?

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Purpose Long-term homelessness involves high costs not only to the individual but also for society in terms of shelter use, emergency health services, the criminal justice system etc. Cost-effectiveness studies of permanent housing and support models mainly from the US demonstrate that these methods not only are effective in rehousing homeless citizens but also that the interventions are cost-effective for society as costs are widely offset by savings in other areas of services. Research is needed on the cost effectiveness of permanent housing and support models in a European context. Research questions  What is the relative cost-effectiveness of the Housing First model versus shelter and staircase systems?  What is the relative cost-effectiveness of different methods of social support such as Assertive Community Treatment, Intensive Case Management and Critical Time Intervention?  Which are the most cost effective support methods for different subgroups amongst the homeless?  What is the level of cost-savings by early prevention?

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Policy Development, National Strategies and Governance In the last decade many European countries have developed national homelessness strategies setting goals on national level for reducing homelessness and with a focus on developing more coherent policies at national and local level. At the same time challenges of financing European welfare states increase the pressure to find more effective models of governance and service provision. Changing models of governance also involves a changing focus on homeless individuals as service users and on ways to strengthen empowerment and user involvement.

Purpose During the last decade homelessness strategies have been adopted in many EU-countries at national, regional and city level. Experiences have been formed with different types of housing and different support models and through implementing new initiatives on the local level. Valuable lessons can be learned from comparing experiences across cities, countries and welfare systems. Research questions  What are the necessary conditions for national homelessness strategies to become effective?  How are national strategies anchored and implemented on local level and what are the experiences?  How are interventions and services supported by national strategies sustained after the end of programs?  What models of housing and support have been facilitated in national strategy programs?  What are the experiences across cities and municipalities in different countries and different welfare systems?

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Purpose Policy developments and an increased focus on governance models and the effectiveness of interventions also redefines the role of homeless people as service users. There is an increased focus on empowerment and user involvement which goes hand in hand with the spread of a recovery oriented focus, but at the same time the need to demonstrate the effectiveness of services and interventions may reinforce demands on users to show motivation and ability to change. More research is needed on social practices and innovations to strengthen user involvement and empowerment and on eventual unintended consequences of the demand of effectiveness of services. Research questions  How can the participation of homeless individuals in developing and implementing different support models be strengthened?  How can recovery and empowerment be further incorporated into the social practice of services and interventions?  What are the unintended consequences of the effectiveness paradigm and how can such adverse effects be avoided?

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The Changing European Context The economic crisis has caused new challenges and risks of social exclusion particularly in countries hardest hit by the crisis. Furthermore, patterns of homelessness in Europe have become increasingly influenced by transnational factors such as poverty and migration within the EU, which may be further accelerated due to the crisis.

Purpose The economic crisis has caused new segments of the population in many countries to be at risk of social exclusion and homelessness. At the same time the crisis has caused pressure on national and local government budgets, which threatens to weaken welfare services towards the homeless and other marginalized and low income groups. Research questions  How does the economic crisis affect the risk of homelessness in EU countries?  How does the economic crisis affect the funding and development of homeless services and interventions?  How do reforms and changes in welfare policies affect the risk of homelessness in European countries?

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Purpose The economic crisis may further accelerate internal poverty migration within the European Union. While many migrants succeed in their transition to a new life in another country, some EU migrants face social exclusion and eventually experience homelessness in the destination country. More research is needed on the relation between poverty, transnational migration and homelessness and on how the problem of migration due to poverty and the risk of homelessness in the destination countries can be tackled on European level, in destination countries and in countries of origin. Research questions  How does internal EU-migration and homelessness amongst EU-migrants relate to poverty in countries of emigration and are patterns changing with the economic crisis?  What were the marginalization patterns of homeless migrants in their countries of origin, how do they undergo a marginalization process in destination countries?  How can policies and models of cooperation be developed across EU-countries to handle homelessness amongst internal migrants within the European Union?

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Dynamics and Measurement Data on homelessness and on homeless services vary greatly amongst European Countries. More research is needed on the scale and composition of homeless populations as a basis for the formation of policies on both national and local levels. Particular data are needed that enable cross-country comparisons and comparisons across welfare regimes and data that give a better understanding of the interplay between structural, institutional and individual factors in the formation of homelessness and the implications for solutions and interventions.

Purpose Research from the US has shown that point-in-time counts do not provide a full picture of the scale and dynamics of homeless. Longitudinal studies add important information about the extent and composition of the homeless population and of movement in an out of homelessness. There is a need for more research in Europe of the dynamics of homelessness and how the scale and profiles of homelessness vary across countries and welfare regimes and on the implications for homeless policies, services and interventions. The ETHOS classification (European Typology of Homelessness and Housing Exclusion) is an important point of reference for comparisons across countries and welfare regimes. Research questions  Which share of the population has experienced homelessness?  Which share of the population experience homelessness over a year?  What are the turn-over rates?  What are the pathways in and out of homelessness?  What is the share of transitional, episodic and chronic homelessness amongst individuals experiencing homelessness?  Does the composition of the homelessness population vary across welfare regimes?  What does the composition of the homeless population imply for housing and support needs and for social interventions?

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Purpose

Homeless people often face a multitude of vulnerabilities and exclusions. The proper assessment of conditions such as mental illness, addiction problems and cognitive skills are crucial for assessing support needs and assigning individuals to adequate interventions, and thereby also for increasing the effectiveness of interventions. Research questions

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Which methods and tools can be used for risk and needs assessment? How can risk and needs assessment enhance referral and service allocation processes for social care, housing related, health and other services for homeless people? Which methods of risk and needs assessment are most valid and most effective? How can methods of risk and needs assessment be implemented in local services? How can methods of risk and needs assessment be linked to individual action and support plans for homeless people and to the coherence of such plans? How can risk and needs assessment reduce possible constraints identified at the level of service planning and development that may interfere with effective service outcomes? How can risk and needs assessment increase the cost-effectiveness of interventions?

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Employment and Social Inclusion Many homeless individuals face social exclusion on a range of dimensions. Mental health and addiction problems can limit capabilities to engage in education, training and paid work and potentially reinforce exclusion from the labour market and a lack of income opportunities. Poverty and housing affordability problems limit chances of exiting homelessness. While housing and social support can be crucial to ending homelessness, access to employment, income and meaningful daily activities can also be important elements to strengthen social inclusion and recovery and reduce the risks of recurrent or enduring homelessness.

Purpose Many countries have carried through workfare oriented labour market reforms and welfare policies to increase work incentives and reduce welfare costs. The eligibility to receive social benefits is increasingly attached to the ‘ability’ and ’willingness’ to work. More research is needed to which extent and through which mechanisms increased emphasis of workfare policies may pose increased risks of social exclusion and homelessness for individuals with mental illness or addiction problems thereby reinforcing processes of social marginalization.

Research questions  Does increased emphasis on workfare policies, reduced benefits and the use of sanctions on benefits increase the risk of homelessness for groups such as long-term welfare claimants, the mentally ill and substance abusers?  Is there a link between workfare policies, sanctions and evictions?

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Purpose Many homeless people face exclusion from the labour market and have few educational skills. Lack of employment and income keep the individual trapped in poverty and inability to afford housing. Besides the financial element, employment and other meaningful daily activities are also important in promoting and supporting social and economic integration. Exclusion from the labour market reinforces social isolation and limits the chance for recovery and social integration. More research is needed on promoting access to employment and income for the homeless and the role of employment and meaningful daily activities in facilitating recovery and social inclusion for the homeless. Research questions  How can access to employment and income for homeless people be facilitated?  How can social and economic inclusion of formerly homeless individuals be strengthened through employment and social activities?  To which extent are chances for social integration conditioned to labour market activation?  To which extent are social enterprises a way of strengthening access to income and economic and social inclusion?  Can support with social and economic integration help enhance health and well-being among homeless people?  What creates the risk of homelessness amongst the working poor?

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Specific Risk Groups Homeless people are not a homogenous group. Some subgroups among the homeless people may experience specific risk and needs profiles. Amongst the groups with particular risks and needs are young homeless individuals, homeless individuals with ethnic minority backgrounds and homeless women.

Purpose A significant part of the homelessness population in many European countries consists of young people. The transition from adolescence to adulthood is a particular risk phase where individual vulnerabilities such as the outbreak of mental illness and early addiction problems and barriers of access to employment and housing increase the risk of homelessness. Early experiences of homelessness may also lead to early use of alcohol or drugs. A lack of early interventions may increase the risk of life-long marginalization in adulthood. Research questions  What are the risk profiles of young homeless individuals?  What are the housing pathways for young individuals?  What failures of housing transitions increase the risk of homelessness?  How does relationship breakdown with parents and unplanned moves from the parental home affect the risk of homelessness?  How are mental illness and early addiction problems associated with risks of homelessness?  What are effective models of early interventions for young homeless individuals and youth at risk of homelessness?  How can support in the critical transition from childhood to adulthood for vulnerable youth and children who have been in foster or state care be strengthened?  How can access to housing, education, training and employment be promoted for young homeless individuals and vulnerable youth at risk of homelessness?  What are the consequences of workfare policies and incentives to employment and education e.g. in terms of reduced social benefits for the risk of youth homelessness?

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Purpose In most European countries ethnic minorities are overrepresented amongst the homeless. Mechanisms of social exclusion may be different for minority groups facing additional barriers of access to employment and housing. This may be the case for both first and second generation immigrants and for minority groups such as the Roma people. Research questions  What mechanisms of social exclusion differ amongst homeless individuals with ethnic minority and majority background?  What cultural and ethnic differences have implications for housing and support models?  How can access to housing and support be promoted for homeless individuals with ethnic minority background?

Purpose All across Europe, homeless women have remained statistically invisible and have received relatively little attention. The fact that women are far less likely than men to be among the ”roofless” categories, may contribute to this invisibility. In fact, there is growing evidence of the prevalence of hidden forms of homelessness among homeless women in most European countries. Along their trajectories, homeless women encounter different risks and different ‘constructions’ of homelessness, which have an impact on their experience of accessing and using support services, within different welfare systems. Research questions  What is the impact of the adoption of different definitions of homelessness and of different measurement strategies in understanding the prevalence and composition of women’s homelessness?  What are the experiences of homeless women in accessing support services?  How does the composition of women’s homelessness and their diverse needs challenge the existing provision of homeless services?  What are women’s experiences with shielded emergency services for women?  Which survival strategies are homeless women using in order to cope with the challenges they encounter? What role does gender (and gender representations) play within these strategies?

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What are the consequences of the financial crisis and ensuing consolidation measures in increasing women’s (and women headed households’) vulnerability to housing exclusion and homelessness? How are women’s experiences of violence and abuse linked to women’s homelessness trajectories?

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Appendix: The European Observatory on Homelessness The European Observatory on Homelessness The European Observatory on Homelessness was established in 1992 by FEANTSA ‒ the European Federation of National Organizations working with the Homeless with the aim to monitor the homelessness situation in the EU and to facilitate transnational research with a European focus on homelessness. Since 2007 the Observatory publishes the European Journal of Homelessness and organizes an annual research conference on homelessness in collaboration with the WELPHASE working group under the European Network of Housing Research (ENHR). The Observatory currently consists of researchers from Denmark, Germany, Ireland, Hungary, Portugal and the UK.

Selected works of The European Observatory on Homelessness, 1992-2013  European Journal of Homelessness (2007 Comparative Studies N°1 ‒ Social Housing Allocation and Homelessness (2011).  Comparative Studies N°2 ‒ Counting Homeless People in the 2011 Housing and Population Census (2012).  Homelessness Research in Europe ‒ Festschrift for Bill Edgar and Joe Doherty (2010)  Homelessness and Homeless Policies in Europe: Lessons from Research: A Report for the European Consensus Conference on Homelessness (2010).  European Review of Statistics on Homelessness (2009)  Fifth Review of Statistics on Homelessness in Europe (2006)  Homelessness and Exclusion: Regulating Public Space (2006)  Barriers of Access to Health Services for Homeless People (2006)  Conflict, Rooflessness and the Use of Public Space (2006)  Fourth Review of Statistics on Homelessness in Europe: The ETHOS definition of Homelessness (2005)  Welfare Delivery in the Neoliberal Era (2005)  Services for homeless people and inter-agency working (2005)  Still depending on emergency services in Europe: who and why? (2005)  Third Review of Statistics on Homelessness in Europe: Developing an Operational Definition of Homelessness (2004)  The State and the Housing Markets of Europe (2004)  Homelessness in the Written Press: A Discourse Analysis (2004)  Organizational Factors Affecting the Delivery of Services for Homeless People (2004)  Immigration and Homelessness in Europe (2004)  Transnational Review of Homelessness Statistics in the EU (2003)  The Changing Role of the State: State Intervention in Welfare and Housing (2003)  Macro Social Context and Recent Trends (2003)  Regulation and Funding Implications for Service Development (2003)  Transnational Report on Homelessness Statistics in Europe (2002)  Access to Housing (2002)  Women and Homelessness in Europe (2001)  Support and Housing in Europe (2000)  Services for Homeless People (1999)  Coping with Homelessness (1999)  Youth Homelessness in the European Union (1998)

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The Invisible Hand of the Housing Market (1996) Homelessness in the European Union (1995) The Right to a Home, The Right to a Future (1994) Abandoned: Profile of Europe’s Homeless People (1993) European Homelessness – the Rising Tide (1992)

Annual Research Conferences       

2013 – Housing First. What’s second? (Berlin, Germany) 2012 – Access to Housing for Homeless People in Europe (York, UK) 2011 – Homelessness, Migration and Demographic Change in Europe (Pisa, Italy) 2010 – Understanding Homelessness and Housing Exclusion in the New European Context (Budapest, Hungary) 2009 – Homelessness and Poverty (Paris, France) 2008 – Good Governance: the key to effective Homelessness Policies (The Hague, The Netherlands) 2007 – Rethinking Homelessness Policies (Lisbon, Portugal)

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