We have identified a number of issues and pitfalls in this model that are resulting in the model itself standing in the way of everyday New Zealanders from attaining housing security and a Decent Home.

Join us over our series into the Housing Continuum to understand these issues, some key groups who are being particularly let down by them, and how we can take action on housing in New Zealand.  

NZCCSS Kaitātari Kaupapa, Policy Advisor Rachel Mackay

What is the Continuum and why does it matter? 

Since the early 2000s, Aotearoa has been using the concept of a ‘Housing Continuum’ to describe the way different parts of housing and housing support fit together. This model is used internationally to show the different forms of housing in a community, but in a New Zealand it also illustrates the different financial supports afforded by those living in the specific kind of housing. The model, like most models, is a reductionist view of the housing ecosystem that makes it look like an easy and straightforward process to move along the continuum from homelessness and housing instability all the way up to home-ownership.

The barriers to progression, both as a result of insurmountable financial jumps between categories and the ongoing national housing shortage, are not illustrated whatsoever.  

The continuum itself also does not address programmes and parameters of housing that exist outside of it, such as Housing First, Papakāinga, Co-housing, and Aged Residential Care.  

Also not outlined is how the different sectors of the continuum may or may not meet the definitions of ‘A Decent Home’ as outlined by the Decency Principles in the Right to a Decent Home inquiry being undertaken by the Human Rights Commission.  

The Right to a Decent Home 

The Right to a Decent Home is based upon Aotearoa New Zealand’s signing to several International Human Rights agreements – principally the International Bill of Human Rights, but also the Convention on the Rights of the Child, the Convention on the Rights of Persons with Disabilities, and importantly the Declaration on the Rights of Indigenous Peoples.   

Coming out of these documents and the breadth of international law around the Right to a Decent Home, it has been determined that a “home” is so much more than just sufficient shelter. This marries with the mātauranga of Te Ao, which highlights the importance of whenua and kāinga on the hauora of an individual. 

 Seven key principles can be applied to a home to determine how decent it is –  

• Affordability 
• Habitability 
• Accessibility 
• Security of Tenure 
• Proximity to Education, Employment and Healthcare 
• Access to Core Services 
• Cultural Adequacy 

The Housing Continuum 

Homelessness and Housing Instability   

• Having no fixed address at which the needs of the individual or family can be consistently met in terms of shelter and amenities. 
• Includes sleeping rough, couch surfing, sleeping in cars, and other such circumstances. 
• Individuals and whānau at this stage are eligible for assistance, but can or do not access it for a variety of reasons. 
• By definition, meets no decency principles of a decent home. 

Emergency Housing  

• Short term intervention funded in 7-day increments by MSD, designed to provide temporary support for those experiencing homelessness and housing instability while they find more permanent accommodation. 
• After the first 7 days, recipients are expected to contribute 25% of their household income to accommodation costs (Income Related Rent Subsidy) 
• Not a tenancy situation, and as a result not covered by the Residential Tenancies Act, no matter the duration. 
• Emergency housing is likely to be in a motel or shelter environment, and are likely to only meet affordability and habitability principles.  
• In December 2022 wholesale change to Emergency Housing was proposed by the Labour Government, however as of publication this has not eventuated. 

Transitional Housing  

• Interim housing solution while individuals and families wait on the Social Housing Register to obtain social housing (or private rental). 
• Funded in 12-week stints by HUD and subject to Income Related Rent Subsidy, transitional housing is accompanied by support from providers (usually either CHPs or Kāinga Ora) for programmes to enable more security of future tenure, such as budgeting or computer literacy courses. 
• While intended to be in a more home-like setting, due to overwhelming demand for the Social Housing register many Transitional Housing clients are now living in motel environments for prolonged periods of time. 
• Not a form of tenancy, so not covered by the RTA no matter the duration – HUD is in a work stream of creating a Code of Practice to help regulate this space but not yet in effect. 
• Depending on the form of transitional housing assigned, this step on the continuum will meet between four and seven of the Decency Principles. 

Social Housing  

• Permanent accommodation, reserved for those who have been placed on the Social Housing Register 
• Subject to the Income Related Rent Subsidy, meaning tenants pay only 25% of their household income as rent, with the rest paid by HUD. Provided by Community Housing Providers and Kāinga Ora.  
• There is no time limit on how long individuals can remain in Social Housing, they must simply remain within the eligibility requirements of the Social Housing Register.  
• Tenancies are protected by the RTA.  
• Whānau are only assigned to housing in that it fits their needs, and all Social Housing must comply with the Healthy Homes standards as of July 1st, 2023. Tenants have security of tenure provided they continue to meet the eligibility requirements of Social Housing, and as a result all Decency Principles either have been or will be met at this step. 

Assisted Rental  

• Rental properties in the main market which have their rent levels intentionally set below market rates. 
• Often further functionally subsidised by Accommodation Supplement due to the individual’s income eligibility. Accommodation supplement is not a requirement of being in an assisted rental, nor is being housed in a property with below-market rent is not a requirement of receiving accommodation supplement. 
• Tenancies covered by the RTA, and as private rentals the property must comply with the Healthy Homes standards. Depending on location of property, this step is likely to meet all of the Decency Principles, although most are not guaranteed, as a family may take a home that does not meet all their needs to obtain accommodation. 

Assisted Ownership  

• Programmes designed to support low-income individuals and families into home ownership 
• Includes shared and co-ownership schemes, affordable equity, and rent to buy schemes 
• Not historically used within Aotearoa but becoming more widespread – the NZ Housing Foundation and the PHO fund through HUD both facilitate this form of ownership, as do a number of iwi. Subject to regional restrictions on availability and income limits 
• Eligible for Home Start and Kiwisaver contributions in most circumstances 
• Depending on location of property, this step is likely to meet all of the Decency Principles, although some are not guaranteed as a family may take a home that does not meet all their needs to obtain accommodation. 

Private Rental  

• Market rate rented accommodation in the main market .
• No regulation on cost, and many who can afford this form of accommodation are ineligible for Accommodation supplement or other housing related financial supports. 
• Tenancies covered by the RTA, and as private rentals the property must comply with Healthy Homes standards. Depending on location of property, this step is likely to meet many of the Decency Principles, although none other than Healthy-Homes compliant habitability are guaranteed as a family may take a home that does not meet all their needs to obtain accommodation. Private rentals have no requirements to meet affordability assessments, and many do not under current market conditions.

Private Ownership  

• Ownership of own accommodation, purchased from the private market or built, with and without a mortgage. 
• No regulation on costs of housing, and minimal financial support – none of which is not also available for Assisted Ownership individuals. 
• This step on the continuum is likely to have the most freedom to meet all the Decency Principles, with the probable exception of affordability under current market conditions.

 

Why does the Continuum matter? 

The Housing continuum underlies all the planning, decision making and funding of New Zealand’s housing system. Where you are along the continuum determines how much assistance you receive from the government in terms of special needs grants, income related rent subsidy, or accommodation supplement. The steps along the continuum define the categories of housing that are available from a planning perspective, both in terms of building and in procurement by social agencies.

It gives us a framework to understand the current state of housing security (or insecurity as the case may be) in our country and provides target demographics to observe for data collection around housing related issues. It also gives the illusion that the continuum will, inevitably, continue – that with some effort and dedication anyone in the country could work their way up from absolute housing insecurity and homelessness to a Decent Home. This, however, is not the case. Like any model, the Housing Continuum looks like an excellent concept until it is forced to interact with reality.

We have identified a number of issues and pitfalls in this model that are resulting in the model itself standing in the way of everyday New Zealanders from attaining housing security and a Decent Home. Join us over our series into the Housing Continuum to understand these issues, some key groups who are being particularly let down by them, and how we can take action on housing in New Zealand.