While California makes a good start on the question, Governor Newsom's new plan is just a first step.
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Finland has a better approach.
FINLAND PREFACE
‘Finland’s success is not a matter of luck or the outcome of
“quick fixes.” Rather, it is the result of a sustained, well-resourced national
strategy, driven by a “Housing First” approach, which provides people
experiencing homelessness with immediate, independent, permanent housing,
rather than temporary accommodation (OECD, 2020). A key pillar of this effort
has been to combine emergency assistance with the supply of rentals to host
previously homeless people, either by converting some existing shelters into
residential buildings with independent apartments (Kaakinen, 2019) or by
building new flats by a government agency (ARA, 2021).’
FINLAND BODY
‘Finland’s Zero Homeless Strategy: Lessons from a Success
Story; December 13, 2021
By Laurence Boone, Boris Cournède, OECD Economics
Department; and Marissa Plouin, OECD Directorate for Employment, Labour and
Social Affairs
Following a period when homelessness rose in many countries,
the onset of the COVID-19 pandemic prompted governments across the OECD area to
provide unprecedented public support – including to the homeless. In the United
Kingdom, for instance, people who had been living on the streets or in shelters
were housed in individual accommodations in a matter of days. And in cities and
towns across the OECD, public authorities worked closely with service providers
and other partners to provide support to the homeless that had previously been
considered impossible.
How can countries build on this momentum and ensure more durable
outcomes? The experience of Finland over the past several decades – during
which the country has nearly eradicated homelessness – provides a glimpse of
what can be possible with a sustained national strategy and enduring political
will.
The number of homeless people in Finland has continuously
decreased over the past three decades from over 16 000 in 1989 to around 4 000,
or 0.08% of the population (Figure 1). This is a very low number, especially
considering that Finland uses a relatively broad definition of homelessness,
whereby in particular it includes people temporarily living with friends and
relatives in its official homelessness count. In 2020, practically no-one was
sleeping rough on a given night in Finland.
Figure 1. Homelessness has shrunk remarkably in Finland
Source:
Report 2021: Homelessness in Finland 2020, The Housing Finance and Development
Centre of Finland (ARA).
This is undoubtedly a remarkable success, even if comparing
homelessness statistics across countries is fraught with difficulties (OECD,
2020). Many homeless people live precariously, with the implication that
statistical tools such as household surveys typically fail to accurately
measure their living conditions. Furthermore, countries define homelessness
very differently, for instance counting people who temporarily live with
friends or relatives as homeless (as Finland does) or excluding them from
homelessness statistics. While there is no OECD-wide average against which to
compare Finland’s homeless rate of 0.08%, other countries with similarly broad
definitions of homelessness provide points of reference, such as neighbouring
Sweden (0.33%) or the Netherlands (0.23%).1
Finland’s success is not a matter of luck or the outcome of
“quick fixes.” Rather, it is the result of a sustained, well-resourced national
strategy, driven by a “Housing First” approach, which provides people
experiencing homelessness with immediate, independent, permanent housing,
rather than temporary accommodation (OECD, 2020). A key pillar of this effort
has been to combine emergency assistance with the supply of rentals to host
previously homeless people, either by converting some existing shelters into
residential buildings with independent apartments (Kaakinen, 2019) or by
building new flats by a government agency (ARA, 2021). Building flats is key:
otherwise, especially if housing supply is particularly rigid, the funding of
rentals can risk driving up rents (OECD, 2021a), thus reducing the “bang for
the buck” of public spending.
The Finnish experience demonstrates the effectiveness of
tackling homelessness through a combination of financial assistance, integrated
and targeted support services and more supply: using just one of these levers
is unlikely to work. Financial assistance comes from the social benefits
systems, which includes a housing allowance for low-income people (mostly
jobless persons with no or low unemployment benefits) covering about 80% of
housing costs (Kangas and Kalliomaa-Puha, 2019). Emergency social assistance
funding can complement the housing allowance if it is insufficient. Social
services provide housing before other interventions that are targeted to
beneficiaries’ needs (such as, to pick one example, providing health services
to help overcome substance abuse). These efforts require dwellings: investment
grants by Finland’s Housing Finance and Development Centre financed the
construction of 2 200 flats over 2016-19 for long-term homeless people (ARA,
2021). Indeed, investing in housing development should be a priority for OECD
governments as they navigate the recovery from the crisis: over the past two
decades, public investment in housing development has dropped to just 0.06% of
GDP across the OECD on average (OECD, 2021b).
Another important driver of Finland’s success is the
integration of efforts to fight homelessness with other parts of the social
safety net. When a housing need is identified in any part of the social service
system, housing is provided first, to provide a solid basis for employment,
long-term health and/or family assistance (OECD, 2020). This integrated
approach avoids the pitfalls that can arise, for instance, when benefits are
preconditioned on having an address, or when obtaining a flat requires a
minimum income. There are indications that, by facilitating the integration of
previously homeless people in society, the upfront Finnish investment that
provides people with housing first, pays off by reducing subsequent costs
incurred by social services. Evaluations point to annual savings in public
expenditure in the range of EUR 9 600-15 000 per person who had previously
experienced homelessness (Y-Foundation, 2017; Ministry of the Environment,
2011).
Overall, Finland’s achievements illustrate the benefits of
integration, balance and continuity in policies to tackle homelessness:
integration across housing and social assistance programmes, balance between
demand and supply, and political continuity over time have helped to maximise
the results of the country’s investment to end homelessness. Not only has this
approach resulted in a steady decline in homelessness, but it has also made the
system more resilient to shocks, including the COVID-19 crisis. Indeed, the
pandemic was less of a strain to Finland’s homeless support system compared to
other countries, given that many vulnerable people were already housed and
supported in individual flats (Fondation Abbé Pierre – FEANTSA, 2021).
These lessons can be transposed to other OECD countries as
they look to build on the momentum and lessons learned from the COVID crisis.
https://oecdecoscope.blog/2021/12/13/finlands-zero-homeless-strategy-lessons-from-a-success-story/
By Laurence Boone, Boris Cournède, OECD Economics
Department; and Marissa Plouin, OECD Directorate for Employment, Labour and Social
Affairs ‘