Summary

On Census night in 2016, around 21,200 Australians were in supported accommodation for the homeless (ABS 2018)—living in hostels for the homeless, night shelters, or refuges. This number has increased over the past decade, from around 17,300 in supported accommodation for the homeless in the 2006 Census. These estimates, derived from the Census, are likely to underestimate the extent of homelessness, and there are no data available to determine the magnitude of the underestimation (ABS 2018). 

This report presents, for the first time, a comprehensive analysis of people experiencing homelessness in Australia living in short-term or emergency accommodation, over a 4 year period, using the Specialist Homelessness Services Collection (SHSC). 

Those in short-term or emergency accommodation were more likely to be female, aged 15–34, not in the labour force and present alone

As a group, the 20,400 clients in short-term or emergency accommodation who sought the assistance of specialist homelessness services (SHS) upon their first presentation to services in 2011–12, had different demographic characteristics to all other adult SHS clients (136,200). More than half (54% or 11,000) were female compared with 63% (8 5,800) of other SHS clients; almost half (48% or 9,700) reported they were living alone, compared with 36% (36,900) of other SHS clients, and most (92% or 17,700) were unemployed or not in the labour force, compared with 87% (82,300) of other SHS clients. 

Analysis of the service use patterns of clients in short-term or emergency accommodation in 2011–12 revealed 3 cohorts 

  • Persistent service users: 2,900 clients (or 14% of clients in short-term or emergency accommodation) accessed services every financial year from 2011–12 to 2014–15. 
  • Service cyclers: 8,800 clients (or 43% of clients in short-term or emergency accommodation) accessed services in 2 or 3 years of the 4-year period. 
  • Transitory service users: 8,700 clients (or 43% of clients in short-term or emergency accommodation) accessed services in 2011–12 only. 

Service use increases with increasingly complex needs 

Those in short-term or emergency accommodation showed increasing service use according to their needs or ‘vulnerability conditions’. In this analysis, vulnerability is based on whether someone had ever reported: a mental health issue, problematic drug and/or alcohol use, and/or domestic or family violence. 

Persistent service users had the most complex needs of all cohorts. Almost 3 in 4 (74%) reported a mental health issue, while almost two-thirds (62%) reported at least 2 of the 3 vulnerability conditions. 

More than half (54%) of service cyclers reported a mental health issue, while 2 in 5 (40%) reported at least 2 of the 3 vulnerability conditions. 

Transitory service users were the least likely to report experiencing mental health issues, domestic or family violence and/or problematic drug and/or alcohol use. Less than 1 in 5 (17%) reported at least 2 out of 3 vulnerability conditions.

People in short-term or emergency accommodation most frequently seek accommodation and financial services 

Accommodation and financial services were most commonly sought by all 3 cohorts in short-term or emergency accommodation. Younger clients (aged 15–24) in general were more likely than older clients (aged 50 and over) to seek these services. 

Those in short-term or emergency accommodation also sought assistance with interpersonal relationships—particularly domestic and family violence. Across all 3 groups of those in short-term or emergency accommodation, females were around 5 times more likely than males to seek assistance with domestic and family violence. 

People already in short-term or emergency accommodation were likely to keep receiving it when needed 

In this study, all clients first presented to specialist homeles sness services in short-term or emergency accommodation. Of these clients, almost 6 in 10 (58%) indicated a need to receive short-term or emergency accommodation. Of these clients with a continued need for this kind of accommodation provision, short-term or emergency accommodation was provided to almost 4 in 5 (79%). Only 1 in 10 (11%) who needed additional short-term or emergency accommodation were not provided or referred to another agency for this service. 

Many of those in short-term or emergency accommodation experience positive outcomes following SHS support 

Clients in short-term or emergency accommodation approaching SHS agencies for assistance are by definition homeless. Following support around 35% were housed: ranging from 22% of transitory service users to 44% of both persistent service users and service cyclers. Housing outcomes for 1 in 5 (18%) clients were unknown. 

  • Almost 6 in 10 (59%) persistent service users had repeat periods of homelessness during the 4 years (that is, transitioned from homeless to housed and then to homeless again). Almost half (44%) were housed at the end of support. For more than 1 in 10 (12%) persistent service users accessing support across the 4 years, their housing outcome was unknown. 
  • Around one-quarter (26%) of service cyclers also experienced repeat episodes of homelessness and almost half (44%) were housed at the end of the study period. For more than 1 in 5 (21%) service cyclers their housing outcome was unknown. 
  • While only 3% of transitory service users experienced repeat homelessness during their engagement with SHS, more than 1 in 5 (22%) were housed at the end of their support. The housing outcomes for around 1 in 5 (18%) transitory service users was unknown. 

Linking data sets could provide more comprehensive information 

This analysis reports only on clients accessing services from SHS agencies, and not all of those in short-term or emergency accommodation. It also only reports on findings to 30 June 2015. Linking this data to other sources—for example, information on rent assistance, income support, or social housing—would provide more comprehensive information on a client’s circumstances, journey and outcomes, to better inform service responses. In addition, further work on identifying and improving the estimation of homelessness is required to facilitate transparent and reliable measures that will inform effective policy and service responses.