Portugal helps the homeless get a foot in the door
Newsletter 2010-5
Publication date : 2011-02-08
The recent ‘National Strategy for the Integration of Homeless People’ (2009-2015) in Portugal marks a significant break from the past: homelessness is no longer in a bracket with “social problems” in general. Now, the specific issue of housing problem is treated separately and as a result the state is involved, taking responsibility where previously social organisations alone helped the homeless. The strategy is firstly concerned with improving the evidence-base on homelessness, starting with shared monitoring systems for relevant actors and the adoption of a common definition of homelessness so that an estimation of the scale of the problem could be established. The definition states: “A homeless person is considered to be an individual who, regardless of nationality, age, sex, socio-economic status and mental and physical health, is roofless and living in a public space or insecure form of shelter or accommodated in an emergency shelter, or is houseless and living in temporary accommodation for the homeless.” Accordingly, an estimation of 3,000 people, out of a total population of 10.6 million were calculated to be living without a fixed abode in Portugal. Having established a better idea of the problem, the quality of services addressing homelessness was addressed and three areas were signposted for improvements: prevention of homelessness arising from evictions or discharge from institutions; direct intervention in situations of homelessness, through the clarification of current procedures/ responsibilities and new innovative approaches; finally, follow-up support after resettlement via local social networks. The national strategy also includes concrete targets, for example 80% of homeless people should have a case manager, nobody should be on the street for more than 24 hours for lack of an alternative, and anyone leaving an institution should receive all necessary help to find a place to live. As part of the national strategy, 50 pilot projects in Lisbon tried out the “Housing First” principle. As the name implies, the principle works on the basis that getting homeless people into secure housing first and using the stability a home provides to deal with any other problems, rather than using temporary accommodation until they fulfil the requirement to be ready for move into a long-term home. It proved to be successful. The Peer Review was held in Lisbon, Portugal, November 4-5, 2010 and was hosted by the Institute for Social Security of the Portuguese Ministry of Labour and Social Solidarity. In addition to the host country, seven peer countries were represented (Denmark, Finland, Hungary, Ireland, Poland, Serbia and Spain). Stakeholders who attended were the Eurocities Working Group on Homelessness and the European Federation of National Organisations working with the Homeless (FEANTSA). Taking part for the European Commission was a representative of DG Employment, Social Affairs and Inclusion. Countries can model their approaches on the process and outcomes of the Portuguese strategy. In terms of process: stakeholders need to buy in, political commitment is key, and an umbrella organisation to represent all NGOs in discussions with the state is useful. In terms of outcome: targets must be laid out together with a comprehensive timetable to achieve them, backed by real financial commitment. Establishing a definition was an important initial stage in the Portuguese strategy; Portugal’s adoption of a narrow definition of homelessness which focused on housing helped to get action off the ground in the short run. In the long run a broader definition, which is more inclusive of the problems that led to homelessness, support to address related problems and so on, would be necessary to comprehensively tackle the problem. Portugal’s strategy showed it is important to improve the empirical research on which policy is based before more concrete steps can be taken to deal with the problem. Proper staff training is important when it comes to executing policy and should not be overlooked. Cost-effectiveness is a Europe-wide concern and European guidelines would help countries make progress. The “Housing First” principle proved to be a success, and was a signal for countries still focused on temporary housing to try a different approach. Tackling the problems facing homeless people is an important aspect of achieving the EU’s goals for social inclusion. It was important to hear from the Portuguese national strategy because it is a breakthrough in the southern European approach towards homelessness which – unlike most of northern European countries – traditionally relies on informal social networks rather than on state organised systems of social welfare. Lessons learned
