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Homelessness and social housing reformLaunch sites framework

To receive this publication in an accessible format phone (03) 9096 5578, using the National Relay Service 13 36 77 if required.

Authorised and published by the Victorian Government, 1 Treasury Place, Melbourne.

© State of Victoria, Department of Health and Human Services, July 2016.

ISBN 978-0-7311-7038-8 (pdf/online)

Available on the department’s Funded Agency Channel <www.dhs.vic.gov.au/funded-agency-channel/about-service-agreements/program-requirements,-guidelines-and-policies2/homelessness-and-housing-reform-launch-sites>.

Contents

http://www.dhs.vic.gov.au/funded-agency-channel/about-service-agreements/program-requirements,-guidelines-and-policies2/homelessness-and-housing-reform-launch-siteswww.dhs.vic.gov.au/funded-agency-channel/about-service-agreements/program-requirements,-guidelines-and-policies2/homelessness-and-housing-reform-launch-sites

Part 1 – Introduction................................................................................................................................. 5Purpose of the framework........................................................................................................................... 5

Background................................................................................................................................................. 6

Objectives................................................................................................................................................... 6

Principles.................................................................................................................................................... 6

Part 2 – Service elements......................................................................................................................... 8Overview..................................................................................................................................................... 8

Individualised, outcome-focused responses...............................................................................................9

Part 3 – Design and implementation.....................................................................................................11Service design process............................................................................................................................. 11

Design questions...................................................................................................................................... 11

Timeframes............................................................................................................................................... 12

Resources................................................................................................................................................. 12

Governance.............................................................................................................................................. 12

Communication and engagement.............................................................................................................13

Data collection, reporting and evaluation..................................................................................................13

Outcomes and performance measures.....................................................................................................13

Review...................................................................................................................................................... 13

Appendix A: Public participation spectrum and co-design................................................................14

Appendix B: Governance....................................................................................................................... 15

Glossary.................................................................................................................................................. 16

Part 1 – Introduction

The Victorian Government has set an ambitious reform agenda to address some of the most pressing social issues in Victoria, including family violence, child and family vulnerability, and homelessness and social housing. The goal is to improve the health and wellbeing of all Victorians.

The reform includes designing a model for an integrated community services system that provides more coordinated and holistic responses to vulnerable individuals, children and families. Services will work together to create service pathways and the right supports, so that people do not experience multiple service entries. Services will share responsibility for making decisions in people’s best interests.

For homelessness and social housing, this new way of working will be developed and launched at three sites, then progressively rolled out across Victoria. The design of the launch sites will complement the integrated community services system model, family violence initiatives and broader reform agenda.

The Department of Health and Human Services chose the areas for the launch sites based on service capacity, existing innovations, and complementary reforms already underway.

The launch sites are in the areas of Brimbank Melton, Hume Moreland and Inner Gippsland.

Purpose of the frameworkThe Homelessness and social housing reform: launch sites framework (the framework) will guide stakeholders – government, homelessness and social housing sectors, other community and social services and service users – through the process of redesigning delivery and rethinking how we use our resources (funding, people, and physical and social capital) to deliver better outcomes for people who are homeless or in housing crisis.

This framework provides an overview of:

• the broad parameters of possible new service arrangements and ways of working • how service delivery could be redesigned• governance arrangements• evaluation, outcomes and performance measures• communication and engagement.

This framework sets broad parameters and expectations for launch sites to engage in collaborative service design that builds on local knowledge and relationships to suit the specific needs of people in each site.

Homelessness and social housing reform: launch sites framework

Background Local and international evidence indicates that Victoria’s homelessness service system needs to provide earlier intervention for people at risk of homelessness, more flexible support and faster access to affordable and stable housing.

In recent years the homelessness and social housing service systems in Victoria have developed new programs, innovative service models and networks of providers; however, the number of Victorians experiencing homelessness and housing crisis continues to grow.

The following policy and delivery issues have been identified.

• People experiencing homelessness do not have access to the same range and quality of services and assistance across the state.

• Access to social housing is not integrated and the different systems can be difficult to navigate.• Access to and support for private rental housing is limited.• Opportunities for early intervention and prevention are lost, meaning people end up needing higher

cost services.

The Royal Commission into Family Violence highlighted the lack of appropriate accommodation for victims of family violence, with many people being turned away. It described the social and community services system as fragmented, lacking coordination and not adequately tailoring support for people’s individual circumstances. It concluded that a systemic, whole-of-government response is required.

On 13 April 2016 the Victorian Government announced a $572 million boost in family violence funding to deliver 65 of the Royal Commission’s most urgent recommendations. This includes $152.5 million for a ‘housing blitz’ that will improve access to private rental assistance, increase crisis and medium-term accommodation, increase help for victims to remain at home and redevelop family violence refuges.

ObjectivesThe objectives for the launch sites are to:

• design and test new service approaches to reduce homelessness • increase housing choices (for example, private rentals)• integrate homelessness services with social housing and broader social services responses• create pathways that are seamless, scalable and sustainable • embed an environment and culture of continuous improvement and innovation.

Principles The integrated community services system model aligns with the department’s four main priorities:

• person-centred services and care – designing services and funding models around people• local solutions – hearing the voices of people and communities as we design and plan services• earlier and more connected support – getting in early to prevent or stop problems before they become

too big, and tailoring service responses so that they fit people and not programs• advancing quality, safety and innovation – keeping our eye on the fundamental importance of the

safety and wellbeing of people – focusing not just on what we do, but how we do it and why we are doing it.


Accordingly, the following principles will guide reform in the launch sites.

• Service users are at the centre of policy design and service delivery.• Resources, supports and interventions are informed by evidence and focused on sustainable

outcomes. The policy goal is to end rather than manage a person’s homelessness.• Service responses are tailored to meet the needs of service users and are based on risk, need and

local circumstances.• The system supports engagement, self-determination and decision making by service users.• A broad range of stakeholders is involved in the redesign of services, including but not limited to

service users, homelessness service providers, community housing organisations, public housing, community service providers, relevant business entities (for example, real estate agents) and government.


Part 2 – Service elements

Overview The launch sites will implement models for individualised responses that focus on long-term outcomes in people’s health and wellbeing. Reform elements include:

• consistent risk and needs assessment• effective client support • minimising the need for crisis support • increased private rental assistance• maximising outcomes through the Victorian Housing Register• choice-based letting for social housing.

Homelessness and social housing services (Figure 1) will be integrated within the broader integrated community services system model.

The reform process will be phased, to allow effective consultation, co-design and evaluation, laying the foundation for longer term, sustainable change.

Figure 1: Homelessness and social housing service system


Individualised, outcome-focused responses In the new model, when a person presents to an access point they will be able to access the full suite of housing and related service options available in that area. Service responses will be culturally, gender and age appropriate and targeted to ensure greatest impact. [Note: Although the access point will assess and refer a person for all the services they require, they may need to go to another location to receive the service(s).]

People who are homeless or in housing crisis will receive:

• a consistent approach to assessment that quickly identifies their needs and determines responses that move them towards stable housing

• streamlined access to services and support via clear pathways, to facilitate early intervention and prevention, rapidly rehouse them or allow them to stay safely at home

• information and advice about housing and service options, to help them make informed choices• emergency, crisis or refuge accommodation as a first step in their pathway towards stable housing• supported accommodation (including youth foyers, transitional housing or supported permanent

housing) as a step towards stable accommodation• support that is underpinned by evidence-informed practice, tailored to their individual needs, focused

on outcomes, reviewed regularly and of sufficient duration to move them towards independence• flexible packages to help them with private rental, rental bonds (including bond loans) and other

needs relating to sustaining their housing• facilitated referral (where relevant) to other services such as education, employment, health, family

violence, family services, alcohol and other drug, mental health and Centrelink• private rental advocacy to help them identify vacancies, build relationships with landlords, resolve

leasing issues, secure private rental and organise tenancy arrangements• access to social housing, as required.

The launch sites will establish processes to better identify people at risk of being evicted and intervene before their issues reach crisis point. Existing private rental brokerage programs will be combined into one program with flexible packages. The new approach will be managed consistently statewide.

The sites will feature simpler access to social housing and greater choice for prospective social housing tenants. The public housing and community housing waiting lists will be joined to create a single Victorian Housing Register with consistent eligibility requirements and a single social housing application form. Choice-based letting will give more options to social housing applicants.


Case study

Sasha, who has just broken up with her partner of six years, is sleeping on a friend’s couch and looking for a place to live. She is staying a long distance away from her work and is regularly turning up late, which is putting her job at risk. She has not had any luck securing a private rental within her budget, and she has no extra money to pay for private rental establishment costs. Sasha approaches a homelessness service.Current service: Sasha does not meet the eligibility criteria for the brokerage programs that are available in her area, because they are targeted to women escaping family violence, young people and people leaving care. The homelessness service is not able to help her.Improved service: A quick needs assessment determines that Sasha’s housing situation could be resolved quickly by an immediate response with a support worker. The support worker identifies that Sasha is eligible for private rental brokerage. The worker consults the private rental broker’s weekly private rental listings and finds some options for shared accommodation and studio apartments that are in Sasha’s price range. Sasha makes appointments to view the properties and agrees to move into a shared accommodation property. Sasha uses her package of brokerage funds to employ a reliable and inexpensive removalist.New resources – quick needs assessment, private rental broker and private rental brokerage funds


Part 3 – Design and implementation

Service design processThe service elements of the framework that are outlined in Part 2 – Service elements are in scope for service design. Stakeholders will be involved in the service design process.

While allowing for local variability, the statewide rollout of launch site reforms will require a level of consistency. Importantly, service elements must be designed so that they are consistent with other reforms that are delivering on the Royal Commission into Family Violence recommendations and the government’s broader reform agenda. There will be opportunity for discussion on how we undertake the service design process.

Throughout the service design process we will:

• identify service elements and practices that are already working well and need to be kept, and those that will cease or be redesigned

• identify and analyse data on demand and outcomes• consider evidence on existing effective practice• use the IAP2 public participation spectrum (Appendix A) to guide the process of engagement during

the design process• use co-design where possible, for example, when designing access points, client support and

packages for housing options• join up with co-design of broader departmental reforms where appropriate• design services informed by the ‘lived experience’ of service users• design services informed by evidence• develop service tools and guidelines that focus on outcomes to be achieved• establish accountability measures and requirements that focus on the quality and effectiveness of

service responses• identify system-wide outcome and performance measures• identify training needs to support implementation and ongoing delivery.

Design questions The following questions will guide the service design process.

• How might we better understand service users’ needs and preferred outcomes?• How can we improve the experience and outcomes for service users?• How do we better integrate the homelessness, social housing and broader social service systems?• Who are the priority cohorts?• How do we ensure service users get the right help and services at the first point of contact? • How might we better leverage universal supports and other targeted supports to address

homelessness and housing crisis, and to reduce duplication of response?• How might we use existing homelessness and social housing resources more effectively to establish

stable housing?• How can private rental assistance programs have the flexibility to allow effective local targeting

without compromising statewide consistency? • How can the Victorian Housing Register be leveraged to achieve sustainable housing outcomes?


• What is the best way for eligible people to be notified of vacancies? • What does success look like and how will we measure it?

Timeframes From mid 2016 support initiatives will be progressively designed and implemented. Implementation will be monitored, and reform elements will be adjusted as necessary to ensure their effectiveness.

The findings from evaluation of the launch sites will be used to refine and inform service design and rollout to other areas.

Resources Each launch site will be allocated the following resources:

• a facilitator to support local implementation and decision making • a ‘private rental broker’ who will establish relationships with real estate agents and landlords, and

maintain a list of affordable rental properties in the area• additional private rental brokerage.

Funding has also been set aside for training and professional development. Training needs and a delivery strategy will be considered during the design and development of the reforms.

Governance The governance structure to oversee delivery of the reforms is depicted in Figure 2 at Appendix B and is described in more detail below. A departmental project team including the launch site facilitators will support the governance groups, prepare reports and data analysis, and support and maintain sector communications.

Senior leadership group The senior leadership group will oversee the design and rollout of the reforms across the launch sites. It will engage in strategic discussion and approval of major policy and project decisions; look at potential areas of interdependency; identify implications for statewide rollout; consider impacts and opportunities relating to broader health and human services reform; and ensure consistency of messaging.

Area implementation groups Each launch site will establish an area implementation group to analyse local demand data and service information to determine how best to deliver the reforms in their area. The group will oversee implementation of the service design, and monitor ongoing operations and outcomes for service users. The group will also raise issues to the evaluation group and senior leadership group, to support an active and iterative approach to service design and improvement. Members of the group who represent service providers must have sufficient seniority within their organisations to authorise changes in the operation of their services, so that the reformed service model can be effectively implemented.

Evaluation group The evaluation group will oversee the evaluation of the launch site reforms. The group will advise on the evaluation framework and implementation, and identify outcome measures for the launch sites. The evaluators will be engaged through a department-led procurement process.


Service users Service design, implementation and evaluation will be informed by people with a lived experience of homelessness. Service users will be identified in collaboration with the peak bodies (Council to Homeless Persons and Community Housing Federation of Victoria) and service providers in the launch sites.

Communication and engagement To support the roll out of these reforms beyond the launch sites, communications with the wider homelessness, social housing and support services sectors will be essential. Services in the launch sites will be asked to regularly share information on the progress of reform in a variety of fora across Victoria.

Find more information about the launch sites on the department’s Funded Agency Channel at <www.dhs.vic.gov.au/funded-agency-channel>. The information is available in ‘About service agreements’ / ‘Program requirements, guidelines and policies’ / ‘Homelessness and housing reform launch sites’.

Data collection, reporting and evaluation Homelessness providers are required to collect data in line with the Specialist Homelessness Service Collection. There will be a focus on ensuring data integrity to support meaningful reporting and analysis, which will in turn support service planning. System-level indicators will be developed in collaboration with launch sites.

The department will engage evaluators to review the effectiveness of the reforms in the launch sites. Baseline data will be collected in the launch sites before service reforms begin. Evaluation will be embedded in design and implementation processes, with constant feedback on evidence about area needs and the impact of reforms, in order to allow iterative implementation at the local level. The evaluation will consider qualitative and quantitative information, including performance and financial benchmarks, and existing partnerships and innovations. The evaluation findings will be used to refine service design and inform statewide rollout of the reforms.

Service providers in the launch sites will:

• participate in initial identification of area and service outcome measures• participate in the evaluation • collect and report high-quality data • share data and information with the evaluators and with the wider sector as agreed.

Outcomes and performance measures The performance of the launch sites will be measured on the outcomes of service delivery. Outcome measures will be identified by the evaluation group, with the preference that these outcomes are measured through existing data collection mechanisms. This will be an iterative process.

These outcomes will align with the department’s Outcomes Framework.

ReviewThis framework will be regularly reviewed and adjusted over the next two years to ensure it remains current.


http://www.dhs.vic.gov.au/funded-agency-channel/about-service-agreements/program-requirements,-guidelines-and-policies2/homelessness-and-housing-reform-launch-sites

Appendix A: Public participation spectrum and co-design

The International Association for Public Participation (IAP2) public participation spectrum is broadly accepted across government and industry as a standard for defining the public’s role any public participation process.

IAP2 does not use or define the term ‘co-design’. The department defines co-design as ‘the process of creating new approaches to services with the people who use or deliver our services’. Table 1 depicts the IAP2 public participation spectrum as it relates to the concept of co-design.

Table 1: IAP2 public participation spectrum and its relevance to co-design

Co-design

Approach Inform Consult Involve Collaborate Empower

Definition To provide balanced and objective information to assist stakeholder understanding

To obtain stakeholder feedback on analysis, alternatives and/or decisions

To work directly with stakeholders throughout the process to ensure that their issues and concerns are consistently understood and considered

To partner with stakeholders in each aspect of decisions including the development of alternatives and the identification of the preferred solution

To place final decision making in the hands of the stakeholders

Promise We will keep you informed

We will keep you informed, listen to and acknowledge your concerns and provide feedback on how it has influenced decisions

We will work with you to ensure that your concerns and issues are directly reflected in the alternatives developed and provide feedback on how your input influenced the decisions

We will look to you for direct advice and innovation in formulating solutions and incorporate your advice and recommendations into the decisions to the maximum extent possible

We will implement what you decided

Outcomes Stakeholders are prepared and aware

Stakeholders have contributed to decision

Stakeholders contribute to and guide the project

Stakeholders have joint commitment to decisions

Stakeholders have the final decision


Appendix B: Governance


Glossary

Table 2: Glossary of terms relating to homelessness and social housing services in Victoria

Term Definition

Access points Entry points to the homelessness and social housing system that are connected and provide a clear, highly visible ‘front end’ that is easy for people to access and navigate

Bond loans Funding to help eligible people move into private rental

Choice-based letting Allocation of social housing vacancies based on applicants’ expressed interest in advertised vacant properties

Co-design The process of creating new approaches to services with the people who use or deliver our services (department definition)

Community housing Rental housing managed by not-for-profit organisations for people on low incomes or with specific needs

Crisis supported accommodation

Immediate accommodation for people who are homeless and in crisis from one night to six weeks, for example, family violence refuges, youth refuges and major inner city crisis support accommodation

Housing Establishment Fund (HEF)

Grant program provided by homelessness, housing and support agencies to help eligible people to access and maintain private rental housing, or to access emergency short-term accommodation, for example, help with bond loans, rent arrears, rent in advance, removal costs or purchasing emergency short-term accommodation

IAP2 public participation spectrum

IAP2's public participation spectrum helps organisations to choose the level of participation that defines the public's role in any community engagement program.

Launch sites Brimbank Melton, Hume Moreland and Inner Gippsland have been chosen to launch a new way of working across the homelessness and housing service systems and introduce new approaches, in partnership with local community organisations.

Launch site facilitator Departmental staff member who will lead the development, implementation and monitoring of homelessness and housing reforms in each launch site

Local area service network (LASN)

Funded homelessness providers in a catchment who work together to provide a coordinated response by sharing an approach to assessment and referral processes, resource allocation and service system planning within their own catchments

Private rental Housing that is available in the private rental market, comprising a range of housing types, for example, houses, apartments and caravan parks

Private rental broker Builds strong connections with the local real estate industry to identify private rental opportunities, helps people who are homeless or at risk of homelessness to maintain their existing tenancy or to secure a new tenancy, and helps to resolve tenancy issues

Private rental brokerage

Financial assistance to cover essential costs to ensure a successful tenancy, including establishment costs, time-limited subsidies, debt alleviation and so on

Public housing Long-term rental housing managed by the Director of Housing for people on low incomes who are most in need, especially those who have recently


Term Definition

experienced homelessness or have other special needs

Resource register Electronic resource register that operates at the local level and details notices of all vacancies, including crisis supported accommodation, transitional housing, support capacity and expertise, long-term community housing, financial assistance and other resources in the area

Service users People who access homelessness, social housing and other community support services

Social housing Public housing and community housing

Transitional Housing Management (THM)

Accommodation for up to 12 months (18 months for young people) for people who are homeless or at risk of homelessness

Victorian Housing Register

Single waiting list for the social housing system that uses a common housing application form and allows all social housing organisations to allocate from a single register of applicants and coordinates housing information and advice


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