Attachment 4 Affordable Housing 15 March 2010

AffordableHousingDiscussionPaper 2009
Contents
1.
Introduction............................................................................................................................3
Whatisaffordablehousing?........................................................................................................3
Whydoweneedaffordablehousing?AHumanRightsPerspective...........................................4
2.
TheroleofLocalGovernment................................................................................................5
MorelandCityCouncil..................................................................................................................6
KnoxCityCouncil..........................................................................................................................6
CityofPortPhillip.........................................................................................................................7
MaribyrnongCityCouncil.............................................................................................................7
CityofBoroondara.......................................................................................................................7
3.
WhatistheCityofWhitehorsecurrentlydoing?...................................................................8
AffordableandSocialHousingPolicy2002..................................................................................9
StructurePlansandUrbanDesignFramework............................................................................9
DirectProvision37BennettStandGowanleaandCombartonStRoomingHouses..............11
4.
PolicyContext.......................................................................................................................11
TheCityofWhitehorse...............................................................................................................11
TheStateandFederalGovernment...........................................................................................12
Funding...................................................................................................................................13
5.
HousingProfile......................................................................................................................14
6.
Howdoyoumakehousingmoreaffordable?......................................................................17
InclusionaryZoning.....................................................................................................................19
CaseStudyForestGlade(NSW)...........................................................................................20
CaseStudyCityofParramatta(NSW)andCityofAdelaide(SA).........................................20
CommunityBettermentLevy.....................................................................................................20
PlanningConcessions.................................................................................................................21
CaseStudyWaverleyCouncil(NSW)...................................................................................21
RatesSurcharge..........................................................................................................................21
InfrastructureCharges................................................................................................................22
CaseStudyTheMerchant....................................................................................................22
AcceleratedApprovalsorFastTracking...................................................................................23
SharedEquity..............................................................................................................................23
CaseStudyKeystart(WA)....................................................................................................23
RatesConcessions......................................................................................................................23
Partnership.................................................................................................................................24
CaseStudyPortPhillipCommunityHousingProgram........................................................24
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7.WhatdoesAffordableorSocialHousinglooklike?...................................................................24
EbsworthHouse.........................................................................................................................25
GuildfordLane............................................................................................................................25
TheHouseoftheGentleBunyip/CliftonHill..............................................................................25
LionGarden................................................................................................................................26
8.NextSteps..................................................................................................................................27
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1. Introduction
TheCityofWhitehorseisredevelopingitsAffordableandSocialHousingPolicythatwasadopted
byCouncilin2002.Thisisforthefollowingreasons:
ThereisadeficitofaffordablehousingoptionsinWhitehorse;
o Medianhousepriceshaveincreasedby35%inWhitehorseoverthelast5years.
o Similarly,therehasbeenastrongupwardtrendinrentinrecentyears.Rental
vacancygenerallyislow,andaffordablerentalvacancyforlowincomehouseholdsis
extremelylow.
o Theeasternregion(includingWhitehorse)haslowsocialhousingnumbers.
Demographictrendschangestothecompositionofhouseholdsandtheageingofthe
populationarelikelytomaketheseshortfallsevenmorepronounced;
TherehavebeenchangestoprogramsandservicesattheStateandFederalGovernment
levelsincetheoriginalCityofWhitehorsepolicywasdeveloped.
Governmentshavedirectedsubstantialfundingtowardaffordableandsocialhousing
projects.Councilhastheopportunitynotonlytoreconsiderandredefineitsroleinlightof
thesechanges,butalsototakeadvantageoffundingopportunities;
ThecurrentpolicydoesnotfullyrepresentthebreadthofworkthatCounciliscurrently
doingandwouldliketodointothefuture.
Thisdiscussionpaperistoassistintheprocessoffuturepolicyredevelopment.Itprovidesan
overviewofaffordableandsocialhousingissues,directionsandapproaches,andattemptstoanswer
someofthefollowingquestions:
WhydoweneedaffordablehousinginWhitehorse?
Whatistheroleoflocalgovernmentinaffordablehousing?
WhatistheCityofWhitehorsecurrentlydoing?
HowcanCouncilinfluencetheaffordabilityofhousingacrossthemunicipality?
Whatdothemanyexamplesofaffordablehousinglooklike?
Thepaperalsoprovidesareviewofhousingdata,demographictrendsandprovidescome
contextinrelationtopoliciesattheStateandFederalGovernmentlevels.
Whatisaffordablehousing?
Affordablehousingisanumbrellatermthatrefersto
housingthatiswithinthefinancialmeansofoccupants.
Affordabilityisoftenlinkedwithhousingstress
thatis,wherehouseholdsthatspendmorethan30per
centoftheirincomeonhousingcosts.Suchalarge
portionofincomemaynegativelyimpactthe
householdsabilitytomeetotherneedssuchasfood,
clothing,healthcare,educationortransport.Thisis
especiallythecaseforthoseinthelowest40%of
Australiansrankedbyincome.
Thissaidrentalormortgagerepaymentsformjust
partofthepicture.Forexample,housingmaybe
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Affordablehousing,froma
consumerperspectiveishousing
whichisappropriatetotheneeds
oflowtomoderateincome
householdsanddoesnotconsume
suchahighproportionof
householdincomethatitleaves
householdswithinsufficient
moneytomeetotherbasiccosts.
(EcumenicalHousing,1997)
Thisdefinitionwasadoptedbythe
CityofWhitehorse2002Affordable
andSocialHousingPolicy
affordable,butlocatedsuchthatthecostoftransportmakesituntenable.Anacceptedcriterionof
affordabilityisthathousingisappropriatetotheneedsofthehouseholdnotonlyintermsof
locationbutalsoaccessibility,proximitytoservices,etc.
Socialhousingisasubsetofaffordability.Itreferstorentalhousingthatisownedormanaged
byagovernment(publichousing)orahousingcooperative,communityorganisationorchurch
(communityhousing)andlettoeligiblepersons.
Thefollowingfigureprovidesabriefsummaryofaffordableandsocialhousing,modelsoftenure
andgovernmentsupportmechanisms.Italsoindicatestherelativepublicandprivatesector
involvementinthesemodels.
Depictedasfallingoutsideoftheseformalarrangementsishomelessnessand(some)privately
ownedroominghouses.Whileroominghouseshaveplayedandcontinuetoplayapivotalrolein
providingaccommodationfordisadvantagedindividualsandstudents,someroominghouses
capitaliseonthelackofregulationinthesystemandthevulnerabilityoftenantstooperatefor
maximumprofitandwithoutregardforresidentssafety,security,rights,etc.Thegrowthofstudent
roominghousesinparticularmustbeseenasaconsequenceoflackofaffordability.Referto
AppendixBforamoreindepthdiscussionofroominghousesinWhitehorse.
(Some)
ModelofTenure
Rooming
Houses
Home
less
Rentat
discretion
of
landlord
Affordability
Mechanism
Private
Sector
Public
Sector
Figure1AffordableandSocialHousingModels 1
Whydoweneedaffordablehousing?AHumanRightsPerspective
Thewordhomeisoneofthemostpowerfulandevocativetermsinourvocabulary.Havinga
placetolive,whichisaffordable,safeandappropriatetoourneedsisabasicandfundamental
humanright.Itisauniversaldeterminantofhealthandwellbeingandiscrucialtooursenseof
integrityandbelonging,ourabilitytofunctionaspeopleand,ultimatelyasmembersofa
AdaptedfromMooneeValleyDiscussionPaper
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community.Theneedforaffordablehousingoptionsisunderpinnedbyprinciplesoffairnessand
socialjustice.
Healthycommunitiesarealsocharacterisedbydiversityofpeopleandplaces.Diversitymakes
communitiesvibrantandsociallyandeconomicallysustainable.Withoutaffordablehousingoptions,
communitiesbecomehomogenous;asthosethatcannotaffordtoliveintheareamovetoother
moreaffordableareas.
Othernegativeimpactsassociatedwithlackofaffordablehousingoptionsinclude 2 :
Movementofyoungpeopleoutofthecommunity,threateningtheagemixandthe
employmentbase;
Impactsonlocalareahumanservicesraisingcoststructuresandcreatingpressuresonrates;
Inabilitytoattractlabourtothearea,threateninglabourmarketefficiency;
Increasingtheratesofindividualandfamilystressandbreakdown;
GrowingagitationfromresidentsforLocalGovernmenttodosomething.
2. TheroleofLocalGovernment
UndertheLocalGovernmentAct1989theroleoflocalgovernmentinhousingincludes:
Ensuringadequateplanningforthefutureofthemunicipaldistrict;
Coordinatingwithotherpublicbodiestoensurethatservicesandfacilitiesareprovidedand
resourcesareusedeffectivelyandefficiently;
Representingandpromotetheinterestsofthecommunityandtoberesponsivetothe
needsofthecommunity.
Raisingfundsforlocalpurposesbytheequitableimpositionofratesandchargesandby
obtainingborrowingandgrants.
Thesecanbebroadlysummarisedas:
Planning;
Networking,partnershipsandcollaboration;
Advocacy;
Rates.
Manylocalgovernmentshaveadoptedrolesoverandabovethese.Commonapproaches
include:
Supportinglocalgroupsandassociationsinvolvedinhousing;
Researchinglocalhousingneeds;
Developinghousingpolicieswhichmayormaynotincludeenvironmentalsustainability,
accessibilityand/ordiversityrequirements;
Facilitatingandsupportingtheprovisionofaffordableand/orsocialhousing,including:
o Identifyingsurplusorunderutilisedland(includingcarparking,railwayland,
airspace);
o Grantingrateconcessionsorparkingdispensationsforcertaindevelopments;
o Fasttrackingorstreamliningplanningapplicationprocesses;
Influencingthelocationand/ortypeofhousingthroughtheplanningsysteme.g.through
structureplans;
MAV(2006),DraftHousingKit
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Participatinginjointventureprojectswithhousingproviders;
Carryingoutcommunitydevelopmentworkonpublichousingsites;
Coordinatinginfrastructureandservicesinnewhousingareas,forexampleproviding
humanservicestoolderpeopleisolatedintheirhomes.
Theapproachofindividuallocalgovernmentsdependsonarangeoffactors:location,existing
housingstock,affordability,existinginfrastructure,developmentpressures,Councilprioritiesand
communityvalues.TheLocalGovernmentsthataremostprogressedtendtooperatefromthepoint
ofviewthathousingisafundamentalhumanrightandaffordablehousinghassocial,economicand
culturalbenefitsfortheirlocalcommunity.TheseCouncilsarecognisantoftherolelocal
governmentcanplayinimprovingaffordablehousingopportunities.Indeed,thereisaclearnexus
betweenCouncilinvolvementinlocalurbandevelopment,theirlocalsocialplanningroleandtheir
responsibilitytorepresentlocalcommunitieslandowners,ratepayers,renters,disadvantaged
groupsandothers.
Thefollowingdetailssomeofthedifferentapproachesoflocalgovernments.
MorelandCityCouncil
Whileitdoesnotexplicitlystateasmuch,theprimaryfocusofthisstrategyreadsassocial
housing.TheCouncilseesitsroleasadvocateandpartner,recognisingthatwhilelocalgovernment
isunlikelytomakemorethanaminorcontributiontowardseasingaffordablehousingshortagesin
comparisontotheStateadCommonwealthGovernmentitwillcontinuetoplayaroleinfacilitation
andconstructionofhousingpartnershipprojects.Morelandhasprovideddiscountedlandforsocial
housingthroughtheirSocialHousingInnovationProject(SHIP).Inadditiontothistheyhave
committedto:
Identify(ing)opportunitiesforconversion/incorporationofcommunityhousinginCouncil
Projects(p.72).
Oneofthekeygoalsofthestrategyistocultivateasocialjusticeapproachtohousingacross
themunicipality.Thisinvolvesdevelopingstrategieswhichaddresscommunitysuspicionand
prejudicetowardsaffordablehousingprojectsandfutureresidentsaswellasundertakingactivities
toincreasestock.
Fromapracticalpointofview,MorelandhavealsodevelopedanAffordableHousingOptions
InformationSheetdetailingincentives,partnershipsandtenancymanagementoptionsavailableto
privateinvestors.Thisappliestoaffordablehomepurchase,privaterentalandsocialhousing
options.TheyalsoholdamunicipalitybasedHousingForumannually.
KnoxCityCouncil
TheCityofKnoxiswellprogressedwithregardtohousingintheeasternregion.Knoxhas
developedaHousingStatementthatprovidesapolicyframeworkanddefinestheCouncilsrolein
affordable,accessibleandsocialhousing.Linkedwiththisisa5yearactionplan,theemphasisof
whichissocialhousing.TheKnoxAffordableHousingReferenceGroupisintegraltothe
implementationoftheactionplanandactsasanadvisorygrouptoCouncil.
KnoxisinitiatinganEasternRegionAffordableHousingAlliance.Thisisinrecognitionthat
housingsupplytendstobeplannedonaregionalbasis,asaremanyofthehousingrelatedservices
forresidents.Inadditiontothis,theEasternMetropolitanRegionhasthelowestlevelofpublic
housingstockinthemetropolitanarea.Whitehorsehascommittedtoparticipateinthisalliance.
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AspartofitsstrategyKnoxhasalsopledgedtoundertakeasocialmarketingcampaigntoraise
awarenessandexploreattitudestoaffordablehousing.Theyarealsoproactivelyprovidingowners
ofvacantorunusedlandwithinformationaboutopportunitiestousethatlandforsocialhousing.
CityofPortPhillip
TheCityofPortPhillipisgenerallyconsideredtohaveundertakenthemostambitiousLocal
GovernmentHousingPrograminVictoria,thefocusofwhichissocialhousing.PortPhillipfacilitated
thedevelopmentofthePortPhillipHousingAssociationwhichhasnowoperatedformorethan20
yearsandhas535units.
TheCityofPortPhillipcoordinatestheprovisionofcommunityhousinginthemunicipalityfor
theStateGovernmentsOfficeofHousingandothercommunityhousingorganisations.Theyalso
providefacilitationassistancetosupportanddevelopcommunityhousingprojectsthisisoffered
ontheirwebsite.Assistanceincludesprovidinghousingneedsidentification,propertyidentification,
propertyvaluation,assistanceduringtheplanningpermitapplicationprocessandsupportfor
fundingapplicationswiththeOfficeofHousing.
TheCityofPortPhillip,CityofYarra,CityofMelbourneandCityofStonningtonalsoestablished
theinnerMelbourneAffordableHousingNeedswebsitewhichprovidesdataandindicatorson
housingaffordabilityacrosstheaffordabilitycontinuumfortheInnerMelbourneRegion.This
websiteisnowbeingexpandedouttoincludeotherLGAs(basedonacontributionfromthatlocal
government).
MaribyrnongCityCouncil
One(ofthree)keytenantsofMaribyrnongsResponsibleEquitableAffordableLiving(REAL)
strategyare:
...toaddresssocialexclusionfactorssuchasaccesstoservices/programs,political/personal
empowerment,healthoutcomes,povertyreductionprograms,accesstotransport,employment
andaffordablefood.(p.4)
Theemphasisofthisisonreducingtheoverallcostoflivingforhouseholds.Thisisin
recognitionthatallhouseholdscanbenefitfromthisapproachanditcanbedifficulttoidentify
householdsexperiencinghousingstress(orfinancialstressgenerally).Relatedactionitemsinclude
reducingfoodcostsandaccessibilityandclimatechange/environmentallyorientedinitiatives(Local
EnergyTransferSchemes,establishingproductiveorcommunitygardens,etc.).
CityofBoroondara
HomelessnessisthekeyfocusoftheCityofBoroondarasSocialHousingPolicy,acknowledging
thatwhilethemunicipalityisgenerallyregardedasaffluentithasoneofthehighestlevelsof
homelessnessinmetropolitanMelbourne.OneofthemajorobjectivesofthePolicyistoretain
existingroomingandboardinghousesandapproachesincludeencouraginggoodmanagement(e.g.
identifyingandpromotingbestpracticeexamples,increasingratesofregistration,etc.)and
supportingviability(e.g.throughgrantsperbedsubsidies).Councilareconsideringagrantprogram
specificallyforroominghouses.
BoroondarahavealsodevelopedaHomelessnessProtocoltoensurepeoplewhoarehomeless
inpublicplacesaretreatedappropriatelyandthattheirrightsarerespected.
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Perhapscontrarytorestofthepolicy,Boroondarahasclarifieditspositiononthecontribution
oflandtosocialhousingprojects:
CouncilwillseekthefullmarketpricewhendisposingofCouncilproperty,includingforthe
purposesofsocialhousing...(p.11)
Thepolicydoesprovidescopetoconsiderpossiblemeansofsupportingsocialhousing
projectsinpartnershipwiththeStateGovernmentoraCommunityagencyonacasebycasebasis.
However,itdoesnotappearthatsuchsupporthasafinancialcomponent.
3. WhatistheCityofWhitehorsecurrentlydoing?
Councilhasalreadycommittedtoaffordablehousingthrough:
TheCityofWhitehorseAffordableandSocialHousingPolicy2002;
StructurePlansatBoxHill,BurwoodHeights,NunawadingMegamileandMitcham,andthe
TallyHoUrbanDesignFramework.ThiswasinkeepingwitharesolutionpassedbyCouncil
requiringthataffordablehousingbeincluded;
TheendorsementoftheEasternRegionalHousingStatement2006,whichspecifiestheneed
toincreasethesupplyofaffordablehousingoptionsintheeasternregion;
Theexistingprovisionofsocialhousingat37BennettStandGowanleaandCombartonSt
RoomingHouses.
Inadditiontothese,Councilhasundertakenanumberofotheractivities,including:
HoldinganAffordableandSocialHousingSummit(October2008)Approximately80
peopleattendedTheCityofWhitehorseSocialandAffordableHousingSummit.Guests
representedacrosssectionoforganisationsandindividualsinvolvedinhousingfromlocal,
stateandfederalgovernmenttoarchitects,designers,serviceproviders,communitygroups
andhousingorganisations.Thetwopartsummitcomprisedamorningofinformationand
speakers,includingakeynoteaddressbytheFederalMinisterTanyaPlibersek,andan
afternoonworkshop.
ExploringPartnershipOpportunitieswithHousingAssociations
CommencingaSocialHousingInvestigation(2008)thiswascompletedtoquantifyexisting
socialhousinginWhitehorse,tobetterunderstandneedandidentifyingsomeoftheissues
aroundsocialmixandculturallysensitivedesign.
ABusTourofSocialHousingProjects(April2009)Councilofficersandexecutiveattended
abustourofsocialhousingsiteswithMelbourneAffordableHousing.
DevelopmentofaStudentHousingPolicy(2009)andrelatedPlanningScheme
Amendment.
ExplorationofRegionalPartnershipOpportunities(2009)Whitehorsehascommenced
discussionswithKnoxCityCouncilaboutparticipatinginanEasternRegionAffordable
HousingAlliance.
PuttingaMotiontotheMAVStateCouncil(May2009)Themotionrequestedthatthe
MAVStateCouncilrequesttheStateGovernmentdevelopasuitabledefinitionofaffordable
housingandinvestigateopportunitieswithinStatePlanningSchemestoencouragethe
provisionofaffordablehousing.TheMAVmeetinghadroughly150delegatesand90%were
insupportofthemotion.
AResidentialZonesSubmission(June2009)totheNewResidentialZonesconsultation
paper,articulatingtheneedtoprovideforaffordablehousingwithintheproposednew
zones.
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FormationofaninternalRoomingHouseCoordinationGroupcomprisingthe
EnvironmentalHealth,BuildingandPlanningDepartments.Thisistorespondtocurrent
issuesandtoconsiderdevelopmentofapolicy,protocolsandjointassessmentprocesses.
AffordableandSocialHousingPolicy2002
TheCityofWhitehorseAffordableandSocialHousingPolicy(2002)articulatesCouncils(then)
positiononAffordableandSocialHousing.Theprimaryfocusisonadvocacyandpartnership.It
commitsCouncilto:
Facilitatinglocalsolutionsforachievingadequate,appropriateandsufficienthousing
And:
Advocatingfortheinclusionofsocialhousingwithinfutureresidentialdevelopment
ThispolicywasintendedtobereadinconjunctionwiththeCityofWhitehorseHousingStudy
2003,whichprovidesasynopsisoftheissuesandopportunitiesinhousing,andlookedtoinform
strategicdirectionforhousingdensity.Itidentifiedareasofnatural,minimalandsubstantial
changeacrossthemunicipality.
Councilislookingtoredevelopthispolicy,recognisingitdoesnotreflectwhatCouncilis
currentlydoinginorinlightofchangestoservices,programsandfundingattheStateandFederal
GovernmentlevelwhatCouncilhasthecapacitytodo.
StructurePlansandUrbanDesignFramework.
CouncilhasexistingstructureplansinBoxHill,BurwoodHeightsandattheNunawading
Megamile.ItalsohasanUrbanDesignFrameworkfortheTallyHoarea.Thestructureplansandthe
designframeworkprovideablueprintforfuturedevelopment,investmentandimprovementin
theseareas.TheygiveeffecttothepoliciesandobjectivessetoutforActivityCentresin
Melbourne2030.
Developmentoftheseplansinvolvedworkinggroups,projectcontrolgroupsandpartnership
groups.MembershipincludedCouncilOfficers,Councillors,DepartmentofPlanningandCommunity
Development,VicRoads,transportproviders,utilities,majorlandowners,localresidentsandtraders.
Extensiveconsultationwasalsoundertakenincludingbulletins,communityworkshops,community
servicesforums,focusgroupsanddesignworkshops.
Theseplansandthedesignframework,whichwereallformallyadoptedbyCouncil,commit
Counciltoaffordablehousing,thoughthenatureofcommitmentdiffersforeach(asstatedinTable
1).Morestructureplansandurbandesignframeworkswillbecompletedforotherpartsofthe
municipality.
Table1AffordableHousingwithinStructurePlans/UrbanDesignFramework
StructurePlan/
Design
Framework
BoxHillTransit
CityActivity
CentreStructure
Plan
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Section
ActionItems
4.7.4Create
DevelopanInclusionaryZoningoverlaytothewholestudy
Opportunitiesfor
areatoprovidedirectlyaffordablehousingorfundfor
AffordableHousing affordablehousing.(p.43)
Nunawading
Megamileand
Mitcham
6.4WorkProgram
Actionsforthe
MediumTerm
200920011
BurwoodHeights Section5Key
Elementsofthe
Plan.
TallyHoBusiness Section5Activity
CentreObjectives
andStrategies
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DevelopaCommunityBettermentoverlaytothewhole
studyareatoraisefundstoprovideaffordablehousing
andsocialsupportandphysicalinfrastructure.(p.43)
Manyactionitems,including(p.6768):
Investigatepotentialforimprovementstotheeastern
edgeofVarmanCourtincludingprovisionofaffordable
rentalhousing.CityofWhitehorsetoinvestigate
formingapartnershipwitharegisteredcommunity
housingproviderandinvestigateobtainingState
Governmentfundingbasedon25%capitalworks
contributionviatheprovisionofland.
Investigatedevelopmentofpubliclyownedlandaround
MitchamStationforaffordablehigherdensityhousingin
theformoftownhouses.CityofWhitehorseto
investigateformingapartnershipwitharegistered
communityhousingproviderandinvestigateobtaining
StateGovernmentfundingbasedon25%capitalworks
contributionviatheprovisionofland.
Counciltoprovidestrategiestofurtheraddresshousing
affordabilityanddiversitywithinthemunicipality.
Mechanismstoincreasethelevelofaffordablehousing
withinNunawadingandMitcham,suchasdeveloper
contributionswillbeconsidered.
InitiatediscussionwiththeStateGovernment,VicTrack,
andpublictransportoperatorstoredevelopthe
commutercarparkatMitchamstationwithmultilevel
commutercarparkingandaffordablehousing.
Thereisnomentionofaffordabilityassuchinthis
document,ratherthefocusisonincreasingdensityand
diversity:
Thecommunitysupportedtheopportunitytoredevelop
theFormerBrickworksSiteforarangeofuses...
(Including)amixofhousingtypesandsizes.(p.30)
Prioritisehousingtypesthataretraditionallydifficultto
locateinresidentialareas,e.g.affordablehousing,aged
carehousing,specialisthousingandapartments,services
apartmentsandhotelfacilities.(p.8)
Encouragetheprovisionofaccommodation,particularly
affordablehousingandshorttermaccommodationsuited
tothebusinesscommunityontheGlobalTelevision,
BurvaleHotelandCrownCoachessites.(p.10).
DirectProvision37BennettStandGowanleaandCombartonStRoomingHouses
Councilownsthepropertyat37BennetSt,ForestHill.CurrentlythisisleasedtoHarrisonFamily
Servicestoprovideshorttermtransitionalaccommodationforpeopleinhousingcrisis.
CouncilalsoownsandoperatestwolongtermsocialhousingpropertiesGowanleaand
CombartonStRoomingHouses.BotharelocatedinBoxHill.GowanleaonWhitehorseRdprovides
selfcontainedaccommodationforolderpeople.Itcomprises34unitsforsinglesand4forcouples.
AlargeportionofresidentsareChinese.CombartonStRoomingHouseprovidesroominghouse
styleaccommodationforsinglepeopleover25yearsofageandhascapacityfor11residents.
4. PolicyContext
TheCityofWhitehorse
Thecurrent(andredeveloped)AffordableandSocialHousingPolicylinkswithotherCouncil
plansasoutlinedinTable2.
Table2LinkstoOtherCouncilPlans
CouncilPlan
CouncilPlan
20092013
Municipal
PublicHealth
Plan2008
2010 3 (and
20092013)
Municipal
Strategic
Statement
Whatisthisplanabout?
Howdoesitlinktohousing
policy?
CouncilsPlanprovidesstrategicdirection. Providesanoverarching
Thekeydirections(20092013)are:
visiondocumentforCouncil.
- Serve&strengthenourdiverse
communitytobeinclusive,vibrant
&engaged
- Promote,protect,enhanceand
respectthequalityofournatural
andbuiltenvironments
- Deliverorganisationalexcellence,
visionaryleadership,andstrong
governance,throughdedicated
people,toensurethebest
possiblecontributiontoour
community
- Supportaprosperous,diverseand
healthylocaleconomythat
contributestothewellbeingofour
community
Councilskeystrategicdocumentthataims Accesstostableand
toimprovetheoverallwellbeingofthe
appropriatehousing
Whitehorsecommunity,increasesocial
influencesthehealthand
connectedness,celebratescommunityand wellbeingofindividualsand
promotescommunityengagement.
communities.
DescribesCouncilsobjectivesand
Addresses/identifieswhere
strategiesinrelationtosustainable
housingwillbelocated,
residentialandurbandevelopment.It
housingdensities,
appropriateness,
providesavisionforlanduseplanning.
sustainability.
Currentlybeingredeveloped
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Structure
Plans(BoxHill,
Nunawading
Megamile,
Burwood
Heights),
UrbanDesign
Frameworkat
TallyHo
Positive
Ageing
Strategy2006
2011
Disability
Policyand
ActionPlan
YPlan
Ecovision
Strategy
Thesestructureplansandthedesign
frameworkprovideablueprintforfuture
development,investmentand
improvementintheseareas.Theygive
effecttothepoliciesandobjectivessetout
forActivityCentresinMelbourne2030.
Identifiesandcommits
Whitehorsetoaffordable
housinginparticular
locations.
Strategyforensuringthewellbeingof
olderpeopleandpeoplewithadisability
inWhitehorse.
Identifiesandarticulatesthe
needforolderpersons
appropriatehousing(now
andintothefuture).
ProvidesCouncilwithacleardirectionfor Identifiesandarticulatesthe
increasingtheparticipationofpeoplewith needfordisability
disabilitiesinallaspectsofcommunitylife. appropriatehousing(now
andintothefuture).
Focusesontheneedsofyoungpeoplein
Identifiesandarticulatesthe
themunicipality(1224years).
needforyouthappropriate
housing,particularlyasthis
relatestostudent
populations(nowandinto
thefuture)and
homelessness.
Strategyforecologicalsustainability.
Providesdirectionaround
sustainabilityand
sustainabledesignata
household,neighbourhood,
municipalitylevel.
TheStateandFederalGovernment
TheStateandFederalGovernmentshavebyfarthebiggestroleintheprovisionofaffordable
housing.
TheFederalGovernmentinfluenceshousingdistributionthroughmacroeconomicpolicy,
taxationandincomesupport,assistancetohomeowners,industrypolicyandtheState
CommonwealthHousingAgreement.
TheStategovernmenthasresponsibilityfortheprovisionandmanagementofpublicand
communityrentalhousing,landlordtenantrelationsandstatutoryandstrategicplanning
frameworks.TheStategovernmentalsohasresponsibilityforaccessibilitystandardsthroughthe
BuildingCommission.
Itshouldbenotedthatthereisathirdmajorplayerinthesocialhousingsector:Housing
Associations.Housingassociationsarenotforprofitorganisationsthatdevelop,ownandmanage
rentalforpeopleonlowincomes.CurrentlytheVictorianGovernmentisinvesting$300millioninto
registeredhousingassociationstodeliver1,550dwellingsby2011.Inordertoreceivethisfunding,
housingassociationmustcontribute25%to30%ofthetotalprojectcostthisisgenerallyattracted
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fromprivate,philanthropicorlocalgovernmentsources(orborrowedagainstthepropertiesthey
currentlyown).
SomeimportantCommonwealthandStatepoliciesrelatingtohousingare:
TheNationalAffordableHousingAgreement(NAHA)commencedonJanuary12009,replacing
theCommonwealthStateHousingAgreement(CSHA)andtheSupportedAccommodationAssistance
ProgramAgreement(SAAP).WhereasthefocusofCHSAwassocial/publichousingandSAAP
homelessness,NAHAismuchbroader.ItspurposeistoensurethatallAustralianshaveaccessto
affordable,safeandsustainablehousingthatcontributestosocialandeconomicparticipation.
NAHAalsoincludeslocalgovernment.ItreplacestheCHSAandSAAPasthemechanismthrough
whichtheStatesreceivefundingforsocialorpublichousing,transitionalhousing,crisis
accommodationandhomelessrefuges.
Melbourne 2030: Planning for Sustainable Growth and its latest iteration Melbourne@5
Million is the State Governments 30year planning strategy and aims to provide a framework for
future planning, including transport infrastructure, public transport, housing needs and land use
including open space. Both documents refer frequently to the need for housing to be more
affordable.
OneofthekeydirectionsofMelbourne2030isurbanconsolidation.Thisaimstoensurethereis
sufficientcapacityforprojectedpopulationgrowththroughefficientlanduseandincreasedheight
and densities in selected areas. It has the potential to assist in providing opportunities for
affordability,diversityandappropriatenessinhousingthatisclosetoexistinginfrastructure,services
andemployment.Councilhasdevelopedstructureplansandurbandesignframeworkstogiveeffect
toMelbourne2030.
AFairerVictoriaisaStateGovernmentsocialpolicyactionplanthatlookstoaddress
disadvantageandpromoteinclusionandparticipation.Fourareasaretargeted,oneofwhichis
DevelopingLiveableCommunities.Thisaimstocreatecommunitieswherepeoplefeelsafe,there
isasenseofbelongingandcommunitypride,andwheretherearejobopportunities,affordable
housing,goodlocalservicesandfacilities,andenjoyableenvironments.Homelessnessandhousing
stressareidentifiedarekeyareastotackle.
Eastern Regional Housing Statement (ERHS) is a document developed between the State
Government and the Councils across the Eastern region. It is designed to provide a strategic
framework for planning for the housing needs of the Eastern region to 2031. It is intended to
provideguidanceanddirectionataregionallevelforCouncilsinthedevelopmentoftheirstrategic
planning work including local housing strategies and activity centre structure plans. The vision
articulated in the ERHS is for the eastern region to be a region where a diverse range of housing
meetstheneedsofallcurrentandfutureresidents.
Funding
Someofthecurrentfundingstreamsforaffordablehousingare:
AffordableHousingFund(AHF):TheAHFsfocusisonproposalsthatimprovethesupplyofnew
housingandmakehousingmoreaffordableforhomebuyersenteringthemarket.Fundsare
distributedtoLocalGovernmentsbasedonacompetitivetenderingprocessacrossAustralia.Itis
intendedtomakehousingmoreaffordablebyaddressingtwoperceivedsupplysidebarriersto
housingdevelopment:
13|P a g e
Holdingcostsincurredbydevelopersandhomepurchasersthroughlengthyplanningand/or
developmentassessmentprocesses;
- Infrastructurecosts,suchaswater,sewerage,roads,openspaceandcommunityfacilities,
whichareincurredvariouslybyLocalandStateGovernments,oftenpassedontodevelopers
andinturn,buyersofnewhomes.
Whileitdoesnotstateasmuch,thisfundprobablylendsitselfmoretodevelopmentin
Greenfield/fringelocationsratherthanestablishedareasandactivitycentreswithexisting
services/infrastructure(likeWhitehorse).
NationalRentalAffordabilityScheme:FederalandStatefundingthataimstoincreasethe
supplyofaffordablerentaldwellings.Itinvolvesdevelopersconstructingandrentingoutnewor
refurbishedstockat80%ofmarketlevelsforatenyeartimespan.Intheinitialstagesclustersof
20+affordabledwellingswillqualify,butinthelongertermlargerscaleproposalsof100+dwellings
willbeencouraged.
RecipientsundertheSchemeareabletoselldwellingswithinthe10yearholdingperiodwithout
penaltywheneitherofthefollowingoccurs:
- Adwellingissoldtoanotherinvestorandthepurchaserundertakestocomplywiththe
existingobligationsunderthescheme;or
- Anequivalentdwellingisofferedasasubstitutedwellingfortheremainingpartofthe10
yearperiod.
NationBuildingEconomicStimulusPlan:ThisCommonwealthfundingaimstoprovidenew
socialhousingunitsaswellasrepairsandmaintenancetoexistingpublichousingdwellings.Key
requirementsforfundingare:
Dwellingsareclosetopublictransport,servicesandemployment;
Developmenthasapprovalorstreamlinedapprovalprocesses;
Adherencetouniversaldesignprinciples(theserelatetoaccessibility);
Constructeddwellingsareenvironmentallysustainable.
Thefundalsolookstoencouragethegrowthofthecommunityhousingsector(i.e.Housing
Associations)andlooksonpartnershiparrangementsfavourably.
AsatOctober2009,6differentprojects(comprisingaround22differentdwellingsandone
upgrade)hadbeenapprovedforNationBuildingfundinginWhitehorse.
-
5. HousingProfile
Table3summariseshousingaffordabilityandavailabilitytrendsinWhitehorse.Table4
summarisesdemographicandforecastinginformation.Whilethisisnotobviouslyrelatedto
affordability,ithasimplicationsintermsofhousingdesign,diversityandappropriateness.
Inadditiontothesedrivers,climatechange,sustainabilityandsustainablelifestylesmustbe
consideredcentraltothedevelopmentofanaffordablehousingstrategy;thisisfromthepointof
viewofwheretoencouragegrowth(e.g.neartransporthubs)andindividualdesignprinciples,both
ofwhichhaveimplicationsintermsofaffordability.
Fortheextendedhousingprofile,refertoAppendicesAandB.
14|P a g e
Table3HousingAffordabilityandAvailabilityTrends
Trend
Rateofhome
ownershipisfalling.
Medianhousepriceis
increasing.
Increasedcostof
privaterental.
Lowvacancyrate
(particularlyfor
affordablerental)
Effectonhousing
Morepeoplehavemortgages
orarerentinghomes
Morecompetitionfor
affordablehomes.
Peopleoverextendthemselves
financially.
Peopletakelongertopayoff
theirmortgage.
Morepeopleintherental
market.
Morecompetitionfor
affordablerental.
Peoplepaymorerentthan
theycanafford.
Peoplehavetomovefromthe
area.
Peoplecannotfindaplaceto
live.
Peopleareforcedtolivein
housingthatisnotappropriate
totheirneeds.
Impact
Morepeoplesusceptibleto
housingstress.
Morepeoplesusceptibleto
housingstressandforlonger
periodsoftime.
Peoplehavetoleavethearea
tofindaffordablehousing.
Morepeopleinhousingstress.
Lackofdiversity.
Greaterdemandforsocial
housing.
Increaseinprivatelyrun
roominghouses,particularly
thosedirectedatstudents.
Morehomelessness.
Humanrightsare
compromised/Reducedsocial
justice.
Lowlevelsofsocial
Peopleonlowincomesand
Lackofdiversitywithinthe
housingintheeastern
withparticularneedscannot
community.
region.
liveinthearea.
Reducedsocial
justice/compromiseshuman
rights;peopleonlowincomes
havenowheretolive.
Increaseinprivatelyrun
roominghouses,
Increasedhomelessness.
Increaseinprivatelyrun Increaseinunregisteredand/or Morepeoplesusceptibleto
roominghouses,
exploitativeroominghouses.
housingstress.
particularlythose
directedatstudents
Focusonstudentsmayreduce Wherenotproperlyregulated
thenumberoftraditional
cancompromisesafety,
15|P a g e
roominghouses.
Peoplepaymorerentthan
theycanafford.
Feweroptionsforfamilies,
sharehouses,etc.inthese
areas.
Increasedhomelessness
privacy,securityandhealthof
individuals.
Increaseinhomelessness.
Nosocialjustice/compromises
humanrights.
Compromisessafety,privacy,
securityandhealthof
individuals.
Table4Demographicsandforecasting:trendsandpotentialimplications
Trend
Populationin
Whitehorseis
growing.
EffectonHousing
Greaterdemandfor
housing.
Trendtoward
smaller
households,
particularlylone
person
households.
Ageing
population
Requiremoredwellings
percapita.
Requiresmaller
dwellings.
Fewerpeople
owntheirown
home.
Growthof
household
16|P a g e
Requiremoreaccessible
dwellings.
Requiremoreoptions
forresidentsastheyage
andneedmoresupport
(e.g.retirementhomes,
nursinghomes,etc.)
Morepeopleare
susceptibletohousing
stress(i.e.Morepeople
renting,witha
mortgage).
Morecompetitionin
therental/purchase
market.
Affectsabilityto
rent/purchaseahome.
Considerations
Strategicplanninglocationofdwellings
andspeedofdevelopment.
Suburbspredictedtogrowthemost:Box
Hill,Burwood,BurwoodEast,andMitcham.
Suburbsexpectedtoreduceinpopulation:
BlackburnNorth,BlackburnSouth,Vermont
South,andSurreyHills.
Housingdensity.
Housingdiversity.
Housingdesignaccessibilityandsize.
Developmentofservices/programs.
Ageinginplaceconsiderationshelping
peopleremainintheareastheyhavelived.
Affordabilityandavailability.
Affordabilityandavailability.
incomehasnot
keptupwith
house
prices/rental
costs
Morecompetitionfor
rent/purchasewithin
lowtomediumincome
brackets.
Somepeopleareasset
richandincomepoor
(e.g.olderpeople).
Culturaldiversity Housingdesign.
Housingdiversityanddesign.
*NB:Thishasbeen
Expectations.
acknowledgedasan
arearequiring
additionalresearch
Itisworthnotingthattheabovesummariseslargerdemographictrendswithinthemunicipality;it
doesquantifytheneedthatexists.
Information(notpublicallyavailable)providedbytheOfficeofHousingprovidessomepictureof
demandinrelationtosocialhousingandincludesthefollowing 4 (2009):
WhitehorsehasthelongestwaitinglistforsocialhousingintheEasternRegion;over30%of
peopleonthewaitinglistintheEasternregionarelookingtoliveinWhitehorse.
Thehighestlevelofdemand(byaconsiderableamount)isfor1bedroomproperties,
particularlygeneralstockforresidentsaged2554years.Theseareoversubscribedby30
to1(i.e.thewaitinglistis30timesaslongastheexistingstock).
Thesecondhighestlevelofdemandisfor2bedroomstock,followedby3bedroomstocks.
Therearelesserlevelsofdemandfor4ormoreproperties(andfewerproperties).
Whitehorsehasthehighestlevelofdemandfor1,2and3bedroompropertiesofallthe
localgovernmentsintheEasternregion.
6. Howdoyoumakehousingmoreaffordable?
Therearetwokeycomponentsofanystrategytoreducehousingstressacrosstheaffordability
continuum,theseare:
1. Increaseappropriatehousingstock(e.g.forrental,size,accessibility,etc.);and
2. Makethepropertycostlesstopurchase.
Thelatterreliesononeoracombinationof:
a. Increasingdensity;
b. Providinggreaterdiversity;
c. Placingrestrictionsonsale.
Itisworthnotingthathigherdensityandmorediversehousingchoicesrelyonthemarketand
peopleswillingnesstopayinordertoincreaseaffordability.Incontrast,placingrestrictionson
saleinvolvessellingthepropertybelowthemarketpriceeithertoanindependenthomeowneror
toahousingassociation/provider.
OfficeofHousing(2009),SocialhousingStock,DemandandOpportunities,NotesfromaBriefingtothe
CityofWhitehorse,October2009
17|P a g e
Table5providesasummaryofsomeoftheoptionsthatexisttoachievethesekeyobjectives.It
isnotacomprehensiveanalysisofalloptionsthatexist;ratheritintendstoprovideenough
informationtostimulatediscussion.Thesearesubsequentlydiscussedingreaterdepth.
Table5Summaryofwaystoincreasehousingaffordabilityandsocialhousingstock
Mechanism
Planning
Approval
System
Approach
Inclusionary
Zoning
Planning
Approval
System
Community
Betterment
Levy
Planning
Approval
System
Planning
Concessions
Accelerated
approvals
Planning
Concessions
Planning
Approval
System
Planning
Approval
System
Rates
Surcharge
Alternate
Tenure
Models
Infrastructure
Charges
SharedEquity
18|P a g e
Description
InclusionaryZoningordinances
maybeappliedtonew
developments,requiringacertain
numberofunitstobeaffordable
orsocialhousing.
Landownerspayalevyfor
increaseinlandvalue(this
generallyappliestoachangein
zoning).
Relaxingdensityrestrictions,
parkingrequirementsorother
itemsforadevelopmentinreturn
forthedeveloperproviding
affordableorsocialhousing.
Relaxingdensityrestrictions,
parkingrequirementsorother
itemsforahousingassociationto
increaseviability.
Fasttrackingplanningapprovals
foradevelopmentinreturnfor
thedeveloperproviding
affordableorsocialhousing.
Fasttrackingplanningapprovals
forahousingassociationto
increaseviability
Propertiessurpassingarelatively
highthresholdvaluepay
additionalrates.
Thisispremisedonthe
understandingthatlowto
moderateincomeearnersthat
cannotaffordtoliveneartheir
workrequireotherinfrastructure
e.g.roads,publictransport,car
parks,etc.Thecostofonemight
beoffsetagainsttheother.
Sharedequityschemesinvolvea
homebuyerpurchasinga
proportionoftheequityofa
PotentialOutcome(s)
Higherdensity.
Morediversity.
Restrictionsonsale.
Generatesfundingfor
affordableorsocialhousing
projects.
Higherdensity.
Morediversity.
Restrictionsonsale.
Increases/encouragessocial
housing.
Increasesaffordable/social
housingstock.
Increasessocialhousingstock.
Generatesfundingfor
projects.
Generatesfundingfor
projects.
Reducesthecostofhome
ownershipforthe
tenant/buyer.
Contribution Rates
concessions
Contribution Partnership
home,withtheremainderbeing
purchased(andinsome
instances,rentedfrom)ahousing
provider/governmentbody/
financialinstitution.
Grantingratesconcessionsto
housingassociations/rooming
houseoperators/other.
Localgovernmentsmay
contributeland,airspace,money
andpartnerwithhousing
associationstodeliversocial
housing.
Allowsthetenant/buyerto
enterthepropertymarket.
Increasesviabilityofsocial
housing.
Generatesfundingforsocial
housingprojects.
InclusionaryZoning
Thisisaplanningprovisionthatrequiresincorporationofacertainuseorfacilityinapproved
developments.Insomecases,amonetarycontributionmaybesuppliedinlieuofthefacilityoruse.
Inthiscase,theresponsibleauthoritywouldusethemoniesobtainedtoprovidetherequireduseor
facilityonotherparcelsofland.
TypicalInclusionaryZoningprovisionsinclude:
Requirementsfordevelopmentstoincludeadequatecarparking;
Requirementsfordevelopmentstoincludeonsiterunoffdetention;
Requirementsfordevelopmentstoprovideadequatepublicopenspace;
Requirementsfordevelopmentstoincludedesignfeaturesthatharmonisewithaheritage
setting.
Inclusionaryzoningaimedathousingoutcomesmightrequirecertaintypesofdevelopmentsto
dedicateaportionoftheirdevelopmentto 5 :
- Higherdensitydwellings;
- Amixofallotments,includingsmallerallotmentssothatthereareavarietyofhousing
types;
- Unitsordwellingsthatwouldberetainedasaffordableinperpetuity.Thiscouldinvolve
sellingdwellingsatacheaperpricetoahousingassociation.Inthiscase,thedwellingwould
bekeptassocialhousing.Alternately,thereareartificialmechanismsthathavebeenused
tomaintainhousingasaffordablebeyondthefirstgenerationofhomebuyers.CaseStudy
ForestGlade(NSW)(p.19)providesanexampleofthis.
Forsomeotherexamplesofapproachestoinclusionaryzoning,refertoCaseStudyCityof
Parramatta(NSW)andCityofAdelaide(SA)(p.20).
Currently,therearenoplanningtoolsormechanismsunderthePlanningandEnvironmentAct
forinclusionaryzoninginVictoria.Aconsiderableamountofadvocacyisongoingwithregardto
inclusionaryzoning,notablybetween
InnerMelbourneActionPlanCouncils
SGSEconomicsandPlanning,(2006),
AffordableHousingOptionsBoxHill
ActivityCentre,Melbourne,Cityof
Whitehorse,p.1114
19|P a g e
(comprisingtheCitiesofStonnington,Melbourne,PortPhillipandYarra)andtheDepartmentof
PlanningandCommunityDevelopment(DPCD).
CaseStudyForestGlade(NSW) 6
OneexampleofthisistheForestGladeProjectatParkleawhereLandcomandCosmopolitan
Developerstargeted20%ofitspropertiesforsaletothoseonmoderateincomes.
Theprojectcomprised64detachedhomeswithamixoftwo,threeandfourbedroomhouses.
Thirteenweretargetedtomoderateincomehouseholds;throughaballotingprocesstoeligible
purchasers(Landcomdefinedmoderatehouseholdincomeasbetween$48,000and$69,000).
Pricingforthe13homesrangedfrom$156,000to$220,000(2002prices),whiletheaskingpricesof
thoseaimedatthebroadermarketwerebetween$270,000and$415,000.Apartfromincome,
assetsandpropertyeligibility(purchasershadtobefirsthomebuyers),therewerealsoresale
restrictionsplacedonthemoderateincomehomes.Thesehomesweredistributedthroughoutthe
siteandindistinguishablefromtheother50intheproject.TheprojectwentonsaleinJune2002
andthemoderateincomehomeswereoversubscribedbyeligiblepurchasersbyaratioof25to1.
Theprovisionofaffordablehousingatthe
sitewasaconditionstipulatedbythelocalcouncilinreturnforamoreflexibleapproachtoplanning,
designandconstruction.
CaseStudyCityofParramatta(NSW)andCityofAdelaide(SA)
IntheCityofParramattadevelopersarerequiredtopayacontributionequivalenttothemarket
valueof3%offloorspaceinallmediumhighdensityresidentialandmixeduseprojects(oroffer
affordablehousingin3%ofprojectfloorspace)7 .TheCityofWiloughby(NSW)hasasimilarscheme.
TheCityofAdelaidereleasedaCBDparcelforprivateresidentialdevelopmentwiththe
conditionthat15%constituteaffordablehousing.
CommunityBettermentLevy 8
Abettermentlevyispaidtoagovernmentauthorityduetoariseinproperty/landvaluethat
mayaccruetopropertyownersfollowingaplanningdecisiontoupgradedevelopmentrightsor
followingtheprovisionofpublicinfrastructure.
Traditionallythesehavebeenusedinurbanfringelocationswhererurallandisbeingupzoned
toresidentialland,bettermentleviescouldalsobeappliedininnerurbanareaswheretraditional
industriallandandotherlowervalueusesarebeingreplacedbyresidentialandcommercialuses.
Fundsfromthelevywouldthenbeinvestedinaffordablehousing.
NSWHousing,Hhttp://www.housing.nsw.gov.au/Centre+For+Affordable+Housing/Affordable+Home+Purchase/Forest+Glade+Parklea.htmH,
viewed20/05/2009
7
Cooper,M.,(2006),GimmeShelterGettingSeriousAboutPrivateDevelopmentofAffordableHousingin
Australia,UrbisJHD,Australia,p.19
8
SGSEconomicsandPlanning,(2006),AffordableHousingOptionsBoxHillActivityCentre,Melbourne,
CityofWhitehorse,p.17
20|P a g e
PlanningConcessions 9
Planningconcessionscanbeutilisedeithertoprovidedeveloperswithanincentivetoproduce
affordablehousingortoincreasetheviabilityofsocialhousingprojects.Whiledensitybonusesare
byfarthemostcommonlyusedconcession,localauthoritieshavealsorelaxedotherregulations
suchascarparkingrequirementsanddesignstandards,approvalsprocessesandassessmentfees.
DensityBonussystemsinvolveapplicationofconcessionsinplanningcontrolstoencouragethe
provisionofaffordablehousingindesignatedareas.Forexample,developersmaybeoffered
additionaldevelopmentcapacityforasitebyrelaxingheightanddensityrestrictions,inreturnfor
providingaffordablehousingorsomeotherbenefitforthecommunity.
Bonussystemsoffertheprospectofmoreintenseorhighervaluedevelopmentiftheproponent
ispreparedtoincludeaffordablehousingintheprojectorcontributetoanaffordablehousingfund.
Advocatesofthebonussystembelievethatbonusesincreasetheoverallvalueofaprojectand
maketheprovisionofaffordablehousingmoreeconomical,creatingasocalledwinwin.
Criticsarguethatbonussystemsoftencompromiseneighbourhoodamenityorproducecostsfor
thelandowner,dependinghowthebonusesaredetermined.Aconsiderationinapplyingbonusesis
thatiftheprebonuslevelofpermissibledevelopmentissetinlinewithlocalenvironmentallimits,
grantingofthebonusesislikelytomeanthatthelocalcommunitywillbearcertaincosts,for
example,overlookingorovershadowingoroverloadingoflocalinfrastructurenetworks.
So,ontheonehand,bonusesmayleadtoanincreaseinaffordablehousingandthereforea
benefittothecommunity,butontheother,relaxationofplanningstandardscanreduce
environmentalbenefitforthecommunityinanoverallsense.
CaseStudyWaverleyCouncil(NSW)
WaverleyCouncilsAffordableHousingProgramoffersabonustodevelopersaspartoftheir
residentialdevelopmentpolicy.Thebonusisappliedthroughplanningincentivesdevelopersmay
increasethefloorspaceratio,developalargerbuildingenvelopeordoacombinationofthetwo.
ThebonusisnegotiatedandassessedusingthecouncilsAffordableHousingCalculator.
IntheWaverleyLGAabonusisofferedonlytoprojects
wheretheincreaseddensityiscompatiblewiththe
surroundingenvironment.Ifthedeveloperacceptsthe
densitybonus,someoftheadditionalunitsmustbe
affordable.Thecouncilretainsaproportionofaffordable
housingwithinadevelopmentbyputtingconditionsonthe
developmentconsentthatsetoutthegeneralrequirements
fortheprovisionofaffordablehousingthroughacovenant
Figure2AffordableHousingin
undertheConveyancingAct1919(thisisregisteredonthe
Waverley(NSW)
titletoensurethepropertyiskeptasaffordable).
RatesSurcharge 10
Aratessurchargeforaffordablehousingwouldlikelybelimitedtopropertiessurpassinga
relativelyhighthresholdvalue.Itwouldgenerallytargetthoseareaswheretheaffordabilitycrisisis
mostacuteandwherelocalpropertyownershaveenjoyedsomethingofawindfallfromthe
Ibid.,p.1516
Ibid.,p.67
10
21|P a g e
structuraleconomicadjustmentswhichhavetransferredsomuchinvestmentintotheinnercity,
coastalareasandotherhighamenity/highaccessibilitylocations.Thesurchargecouldbe
characterisedasnecessarytomaintainasocialmixinotherwiserapidlygentrifyingneighbourhoods
andthiscouldbereinforcediftherewereacommitmenttoreinvestlocallycollectedsurchargesin
locallyexpandedaffordablehousingoptions.
Despitetheseargumentsaratessurchargewouldlikelymeetsignificantresistanceandcould
alsodisadvantagehouseholdsthatareassetrichbutincomepoor.
InfrastructureCharges 11
Underthismechanism,affordablehousingistreatedassupportinfrastructurefordevelopment
inmuchthesamewayaswatersupply,sewerage,drainageandroads.Theunderpinningargument
isthatmajorretail,commercialandtouristdevelopmentsinparticulargeneratearequirementfora
rangeoflowandmiddleincomeearnerslikecleaners,securityguards,policeofficers,teachers,etc.
Iftheseessentialandlowerpaidworkerscannotfindaccommodationcloseby,theywillhaveto
commute,therebygeneratingarequirementformoreroadsandpublictransport.Toovercomethe
needforthisadditionalinfrastructureinvestment,developmentisrequiredtoberelativelyself
containedintermsofaffordablehousing.
WhiletherearenoprecedentsforInfrastructureChargesassuchinAustralia,theneedfor
affordablehousingnearwherepeopleworkisfairlywellestablishedparticularlyinremote
locationsand/orat(some)touristresorts.TheMerchant(below)isanexampleofaprojectwhich
respondedtothisneed.
InfrastructurechargeshavebeenemployedinarangeofUScitiesandarebeingpursuedin
someinnercityareasinBritain.
CaseStudyTheMerchant
ThissocialhousingprojectislocatedattheDocklandsintheCityofMelbourne.
Althoughitdoesnotutiliseinfrastructurecharges,
ittargetslowtomoderateincomekeyworkers
employedintheinnerMelbournearea.Itwas
influencedbytheshortage,identifiedbysmall
businessatDocklands,ofskilledstaff;thiswasseenas
abarrierlimitinggrowth.
TheprojectinvolvedMelbourneAffordable
Housing(MAH)purchasing57unitsfromLendLease
Developmentsat838BourkeSt,Melbournefor
$18.75m(includingGST).
Figure3 TheMerchant,Docklands
ThedealwasstructuredsuchthatMAHwould
contributeatleast25%ofthecostofanyproject.Fundingwassecuredasfollows:
VicUrbanprovidedthelandtoMAHfor$1andallowedLendLeaseDevelopmentsto
developanadditional57unitswithintheprecinct.
LendLeaseDevelopmentsprovidedthe57unitsatareducedcosttoMAH;
MAHcontributedthebalanceoffundingthroughdebtfinancialarrangementswithNAB.
11
Ibid.,p.1617
22|P a g e
AcceleratedApprovalsorFastTracking 12
Lengthyapprovalprocessesincreasedevelopmentcostsandhousingprices.Giventheir
financialstatus,lowincomehouseholdsaremoresusceptibletomoderatepricefluctuationsthan
moreaffluenthouseholds.Reformoftheapprovalprocessmayproducesignificantsavingsfor
developersandhomebuyersalike.Localauthoritiescanprioritiseaffordablehousingapplications,
therebyminimisingdelays.Theadoptionofregulatorycodesthatreducetheneedfordetailed
reviewofparticularlyresidentialapplicationsfacilitatesfurthercostsavings.
Itshouldbenotedthatfasttrackingofdevelopmentapplicationscouldbe(andhasbeeninthe
past)politicallycontroversial,soanyaccelerationneedstobejustifiedintermsofaclearcommunity
benefit.Thiscouldbearticulatedinahousingpolicyorlocalareaplan.
SharedEquity
Whenhousepricesarehigh,sharedequityisonewaypeopleonlowtomoderateincomescan
stillenterhomeownership.
Sharedequityschemesaimtofacilitatehomepurchasebypeoplewhocannotaffordmortgage
repaymentson100%ofadwellingscost,butwhoseincomeswouldallowthemtopayaportionof
themortgage.Theremainingportionwouldbepaidforandownedbyanotherpartyinashared
equityarrangement.Theotherpartymightbeafinancialinstitution.
Mostsharedequityschemeswillallowthehomebuyertopurchasegreaterequityfromthe
otherpartner(s)overtime,astheirfinancialcircumstancesimprove.Thismeansthatultimately,
theybecomefullowners.
Inhighcostmarkets,whereevenmoderateincomeearnersmayhavedifficultypurchasinga
home,onewayofmakinghousingmoreaffordableisthroughsharedequityschemes.
CaseStudyKeystart(WA) 13
TheFirstStartSharedEquityHomeLoanSchemeisdesignedtohelplowtomoderateincome
(upto$75,000)firsthomebuyersintohomeownership.
UndertheScheme,eligiblefirsthomebuyersmaypurchaseorbuildahomeinconjunctionwith
KeystartandtheDepartmentofHousingandWorks.Dependingonincomeandhouseholdsize,the
Departmentcoownsupto25%oftheproperty.Astheycanaffordto,homeownersarerequiredto
purchaseallorpartoftheGovernmentsshare.TheDepartmentdoesnotchargerentontheir
portionoftheproperty,andthepropertycanbesoldatanytime.
RatesConcessions
Ratesconcessions(rebatesorreductions)areanothercommonmethodofprovidingsupportfor
housingproviders.
12
QueenslandGovernment,TheResponse:StrategicActionsforAffordableHousingandSustainable
Communities,retrievedfromHhttp://www.housing.qld.gov.au/partnerships/affordable/publications/paper/7_response.htmH,
1/07/2009
13
DepartmentofHousingandWorks(WA),KeyStart,retrievedfrom
Hhttp://www.keystart.com.au/key/home.htmH,2/07/2009
23|P a g e
TheCityofBoroondaracurrentlyproviderateexemptionsforroomingnotforprofithousing
providersandprivateroominghouseoperatorsandencourageothergovernmentauthoritiesand
utilitiestodothesame.
Partnership
PartnershipswithHousingAssociationsandothercommunityagenciesorgroupsareaneffective
wayinwhichLocalGovernmentscanhelpdeliversocialhousing.Thisinvolvescontributinglandor
funds(orairspace)towardprojectstoleverageothersourcesofgovernmentorprivatefinance.For
example,landorfundsareprovidedtoaHousingAssociation,whichhasaccesstootherfunding
sources.TheAssociationthentakesresponsibilityfortheacquisitionandmanagementofthe
housingunderanarrangementthatalsoensuresCouncilshousingobjectivesaremet.
CaseStudyPortPhillipCommunityHousingProgram
ThecatalystforthePortPhillipCommunityHousingProgramwastherapidclosureofrooming
housesandsubdivisionofblocksofrentalflatsinMelbournesStKildaarea.
UnderapartnershipbetweentheCityofPortPhillipandthePortPhillipHousingAssociationthe
Councildevelopshousingpolicy,providesfundingandhandlesprojectmanagement;theassociation
runsthepropertyandtenancymanagement.
TheCouncilhasbuilt535 14 unitssince1985,21%ofwhichareforolderpersons,25%are
roominghousesingles,25%areforfamiliesandtheremainderaresemiorselfcontaineddwellings
forsingles.Since2005,allprojectshaveincludeddisabilitymodifiedunits.
In2004,PortPhilliphadcontributednearly$14million(40%),theVictoriangovernment$20
million(56%)andtheCommonwealththeremaindertoprojectswithinthemunicipality 15 .
7.WhatdoesAffordableorSocialHousinglooklike?
Communityresistancetoaffordableorsocialhousingcanstemfromconcernsabouthowit
mightlook.InMelbourneprobablythemosticonic(andleastdesirable)examplesofpublichousing
arethehighdensityestateslocatedaroundtheinnercitysuburbs.Thesewerebuiltinthe1950s
and1960sandareverydatedexamplesofsocialhousingprojects.Thetrendfromaboutthe1980s
hasbeentowardsmallscaleinfillprojectsandspotpurchaseofexistingdwellingsinappropriate
locations.Itisverymuchasaltandpepperapproach,wheresocialhousingisdistributedrather
thanconcentratedinasinglelocation.
Gooddesignandintegrationiscentralnotonlytocommunity
acceptance,butalsotoensuringhousingmeetstenantsneeds.
Manydevelopersandhousingassociationsworkcloselywiththe
groupstheyenvisagewillliveintheirdwellingstoensuretheyare
appropriateaswellasbeingwelllocatedandsecure.
PortPhillipHousingAssociation(2009),Portfolio,retrievedfrom
Hhttp://www.ppha.org.au/index.php?option=com_content&view
=article&id=35&Itemid=15H,2/7/2009
Grennan,H.(2004,July6),RoleforCouncilsinHousingCrisis,
TheSydneyMorningHerald
24|P a g e
Figure4EbsworthHouse,
CollinsSt,City
BelowareafewexamplesofsocialhousingprojectstakenfromthebustourwithMelbourne
AffordableHousing(MAH)thatCouncilofficersattendedinApril2009.Itisworthnotingthatfor
socialhousingprojects,thegoalistotailorhousingandservicestotenantsneeds.
EbsworthHouse
EbsworthHouseispartofthePostcode3000(PC3000)AffordableHousingProjectinitiatedby
theCityofMelbourneinmid1990.Thetotalprojectcomprisestwoproperties(540LittleCollinsSt
and10GuildfordLane)andprovides40onebedroomunitsintheCBD.24ofthesearelocatedon
thetop3floorsofEbsworthHouse.
Theprojectwasdevelopedinresponsetotheongoingclosureofroominghousesandlowcost
hotelsintheCityandtheconsequentlossofaccommodationforlowincomesinglepeople.ACityof
Melbournereportonhomelessnessfoundthatoveratenyearperiodfrom1986morethan2,300
lowcostbedswerelosttothecityasaresultoftheseestablishmentsrefurbishingtocaterfora
differentclientele.
Councilcontributed$300,000tothePC3000projectwiththeOfficeofHousingcontributing
morethan$3million.FurtherfundingwasprovidedbytheBetterCities
program(federalfunds)andtheVictorianDepartmentofInfrastructure.
Aspartoftheplanningfortheproject,aregularmeetingof
prospectivetenantswasheldintherearbaroftheMarkilliesHotelin
FlindersSttodiscussdesignissues.Supportfortenantsisprovided
byWintringham,asupportservice,aspartoftheiroutreachservice.
MAHownsandmanages(maintains)thepropertiesandprovides
tenancymanagement.
GuildfordLane
GuildfordLanewasthesecondstageofthePC3000and
comprisesof16unitsforlowincomeoldersinglesintheCBD.The
sitewasadisusedpowersubstation.Oncecleared,anewbuild
proposalwasputintoplacewithgreatcaretoretainthestreetscape
Figure5GuildfordLane,
ofthelane.Anumberofotherwarehouseshavebeenconverted
MelbourneCity
intoresidentialaccommodationinthelocalareawiththeemphasis
beingonprovidinganindistinguishabledevelopmenttoavoidtenantsbeingfurtherdisadvantaged.
TheHouseoftheGentleBunyip/CliftonHill
Thisprojectinvolvedanoldhistorichousethatwaspurchasedbyadeveloperwhoplannedto
demolishthebuildingandreconstructunitsforprivatesale.Thisledtoacommunitypicketaround
thesiteasneighboursralliedtosavethebuilding.
MAHwasapproachedtoputupaproposalthatwouldsavethepropertyforcommunity
housing.Inputtingtogethertheproposal104HodgkinsonStwhichwasownedbytheHouseofthe
GentleBunyipInc(HGB)andmanagedbyFintryBankforthepurposesofhousingpeoplewith
psychiatricdisabilitywasincorporatedintotheproject.
Thesitenowcontains11onebedroomunitsandhouseslowincometenantsaswellasa
numberofFintryBankclients.
25|P a g e
LionGarden
LionGardenisahousingdemonstrationproject
linkingaffordable,stableaccommodationtoa
holistic,integratedsupportprogramforyouth.
LionGardenreferstoanactualgardeninthe
ChineseprovinceofSuzhu.Literallytranslatedthe
namemeanshomestayorlongterm
accommodation.ThesymbolismofaLionanda
Figure6TheHouseoftheGentleBunyip
Garenisalsoimportant,givingrisetoconceptssuch
CliftonHill
asKingofBeastsstrength,courage,
resourcefulness,etc.andthegardenrelatingtopeacefulness,placeofreflection,timeout.
Theproperty,locatedinLittleBurkeSt,hasbeenrefurbishedto
provideeightselfcontainedstudioapartmentsandaonebedroom
apartmentforahousementor.Itisoneofarangeofoptionsfor
youngpeoplewhoarepartofalargerMelbourneCityMission
supportprogramtargetingindividualsatriskofhomelessnessand
whoneedtoliveintheinnercityareatoaccessemploymentor
trainingopportunities.
Projectpartnersincluded:
GospelHallIncbuilding;
SydneyMyerFund$1million;
LionsClub$250,000;
OfficeofHousing$900,000and$320,000toward
support;
CityofMelbourne$50,000;
MelbourneCityMission$15,000;
MacQuarrieBank$10,000;
UrbanSeed$20,000.
UrbanSeedalsousethegroundfloorasanurbanclassroomand
haveprovidedthehousementortomanagethehouseand
Figure7LionGarden,
providepastoralcaretothetenants.
BurkeSt
26|P a g e
8.NextSteps...
Thispaperwasdevelopedtostimulatediscussionaboutaffordableandsocialhousing,witha
viewtoassistingintheredevelopmentoftheWhitehorseAffordableandSocialHousingPolicy.
Theproposedapproachandassociatedtimelineforthisprocessis:
June2009:Formationofaninternalsteeringgroupcomprisingmembersoftheexecutive,
andrepresentativesfromtheCommunityDevelopment,StrategicPlanning,Corporate
ServicesandHealthandFamilyServices.Atitsfirstmeetingthisgroupdiscussedwhat
shouldbeincludedinthediscussionpaper.
2010:FormationofaPolicyDevelopmentWorkingGroupcomprisingofCouncillorsand
membersofthesteeringgroup.
2010:Workinggrouptodiscussandconsiderthebackground(current)paper,bestpractise
models,governmentpolicy,availabilityoffunding,barriers/challenges,opportunities,etc.
AlloftheabovewillbeworkshoppedoveranumberofsessionstodevelopaWhitehorse
policy/position.
2010:WorkingGroup/Councillorstogoonabustourofaffordableandsocialhousing
projects.
2010:Developmentofadraftpolicy.
2010:DraftPolicytobepresentedtoCouncilforconsiderationandfeedback.Draftpolicy
tobeplacedonpublicexhibitionfor4weeks.
2010:Submissionsreceivedandpolicyreviewed.
2010:FinalpolicytoCouncilforadoption.
27|P a g e
AppendixADemographicsandPopulationForecasting
Population
Inthe2006census,thepopulationinWhitehorsewascalculatedat144,766.This
representsanincreaseofapproximately2.8%sincethe2001census.Populationprojections
suggestthepopulationwillcontinuetoriseintheshort,mediumandlongerterm.Anticipated
populationgrowth2006to2031isdepictedinFigure1.In2031,thepopulationisestimatedat
160,204,thisisanincreaseofapproximately4.05%onthe2009projection.
Figure1EstimatedpopulationgrowthintheCityofWhitehorse
Source:I.D,TheCityofWhitehorsePopulationForecasts,i.d.,Melbourne,2007,viewedMay2009,
http://www.id.com.au/whitehorse/forecastid/default.asp?id=123&gid=10&pg=10
VaryingratesofgrowthareanticipatedacrossWhitehorsessixteensuburbs.Thehighest
levelsofgrowthoverallareexpectedinBoxHill,Burwood,BurwoodEast,andMitcham.
Conversely,BlackburnNorth,BlackburnSouth,VermontSouthandSurreyHillsareallexpected
toreduceinpopulation(s).
AgeDistribution
Figure2depictstheageprofileoftheCityofWhitehorsein2006(census),andasforecastin
thenext5years(2014)andinthelongerterm(2031).
Whitehorsehasanageingpopulation.Theproportionofresidentsaged60yearsandolder
is21.7%(comparedwith17%fortheMSD).In2014thisfigurewillbearound23%andin2031
25%.Whilethereisfluctuationinotheragecohortsandtheyaredifficulttocharacterisein
generalterms,thisolderpopulationisaverysignificantfeatureofthemunicipalityandhas
implicationsforhousingdesignparticularlyasitrelatestoaccessibilityandhouseholdsize.
Figure2EstimatedAgeDistributionintheCityofWhitehorse
Source:I.D,TheCityofWhitehorsePopulationForecasts,i.d.,Melbourne,2007,viewedMay2009,
http://www.id.com.au/whitehorse/forecastid/default.asp?id=123&gid=10&pg=10
HouseholdCharacteristics
Figure3depictsthebreakdownofhouseholdtypeswithintheCityofWhitehorsein2006.
Themostcommonlivingarrangementisasacouplewithdependantchildren,followedbya
couplehousehold.Nearlyonequarterofhouseholdswerelonepersonhouseholds.
Household Types in the City of Whitehorse

(2006)
10%
Lone person
household
4%
Couple household
24%
35%
Couple with
dependant children
27%
Single parent with

dependant children
Group Households
Figure3HouseholdTypesintheCityofWhitehorse(2006)
Source:i.dconsulting,CityofWhitehorseCommunityProfile,i.d.,Melbourne2007viewedSeptember
2008,http://www.id.com.au/profile/Default.aspx?id=123
Inthefuture,itisexpectedthatthenumberoflonepersonhouseholdsinWhitehorsewill
increase,whileallotherhouseholdtypeswillfall.Thisisreflectedinforecastaveragehousehold
sizewhichisexpectedtofallfrom2.56in2006,to2.48inthenext5years(2014)and2.38by
2031(seeFigure1).ItisalsoconsistentwithgeneralpopulationtrendsinAustralia.
Toaccommodatethesesmallerhouseholds,dwellingnumbersareexpectedtoincrease;
thatis,fewerpeoplelivinginmoredwellings.
HouseholdIncome
Incomesignificantlyaffectshousingchoices.
Inthe2006census,27.2%ofhouseholdsearnedahighincome($1,700perweekormore),
and17.8%werelowincomehouseholds.Thiscompareswith24.7%and17.9%respectivelyfor
MSD.Whitehorsehasahigherportionofhighincomehouseholdsandasimilarportionoflow
incomehouseholds.
ThispictureofrelativeaffluenceissupportedbytheAustralianBureauofStatistics(ABS)
IndexofRelativeSocioEconomicDisadvantage(SEIFA).SEIFAscoresindicatethelevelof
disadvantage,representedbyhighlevelsofunemployment,lowincomehouseholds,people
withlittletrainingandinunskilledoccupations,inacommunityorarea.Alowindexscoreof,
forexample,900suggestsanareahasahighlevelofdisadvantage.Ahighscoreof,forexample,
1200indicatesthecommunityhaslowerlevelsofdisadvantage.
Whitehorsescores1055.2ontheSEFIAindex,thisplacesitseventhleastdisadvantagedas
comparedwiththeotherLocalGovernmentsacrossMelbourne.Thishowever,isanaverage
acrossthemunicipalityandobscuresthatpocketsofdisadvantageexistacrosstheLGA.
Theabovehouseholdincomedataalsodoesnotcapturechangesthathaveoccurred
recentlyasaresultoftheglobalfinancialcrisis.InSeptember2008,theunemploymentratein
Whitehorsewas4.2% 1 .Thisroseto4.5%(3,749individuals)inDecember2008,whichishigher
thanthefigureformetropolitanMelbourneatthesametime(4.3%) 2 .
CulturalDiversity
Whitehorsehasaculturallydiversepopulation;in2006approximately29.4%ofthe
populationwerebornoverseas.Thetopfivecountriesofbirthoverallwere:China,theUnited
Kingdom,Malaysia,IndiaandGreece.
Whitehorsehastwotertiaryeducationprecincts,oneinBurwoodattachedtoDeakin
UniversityandtheotherinBoxHillattheBoxHillTAFE.Thesehavelargenumbersof
internationalstudents,predominatelyfromAsia(China,HongKong,Malaysia,IndiaandSri
Lanka).
DepartmentofEmployment,WorkplaceRelationsandSmallBusiness,inBrown,H.,Employment
withinMuncipalities,VLGAWebsite,updatedDecember2008,viewedMay2009,
http://www.vlga.org.au/resources/items/153153-upload-00001.xls
2
DepartmentofEmployment,WorkplaceRelationsandSmallBusiness,inBrown,H.,Employment
withinMuncipalities,VLGAWebsite,updatedDecember2008,viewedMay2009,
http://www.vlga.org.au/resources/items/153153-upload-00001.xls
In20081,468migrantssettledintheCityofWhitehorse 3 .Agespecificdataisnotavailable
forthesemigrants.56%ofmigrantswereinaskilledcategoryand39%weregrantedfamily
visas.Justover5%fellwithahumanitariancategory.HumanitarianmigrantscamefromIran,
Burma,SriLankaandSouthern/EastAfrica.
Theculturalexpectationsofhousing(includingdwellingoptions,internallayoutandhousing
finance)hasbeenidentifiedasaresearchgap.
DepartmentofImmigrationandCitizenship,DepartmentofImmigrationandCitizenshipSettlement
Database,SettlementReports,extracted09/10/2008,http://www.immi.gov.au/livingin
australia/deliveringassistance/settlementreportingfacility/index.htm,09/10/2008
AppendixBHousingAffordabilityandAvailability
Tenure
40.8%ofhouseholdsinWhitehorseowntheirownhome.Thisisconsiderablyhigherthan
theMelbourneStatisticalDistrict(MSD) 1 (33.1%).Suchelevatedlevelofhomeownershipmeans
therearefewerhouseholdsrentingorpurchasinghomes(relativetotheMSD).
However,numbersofpeopleowningtheirownhomeshasfallenconsiderablysincethe
2001censusinbothWhitehorseandtheMSD.Thismeansmorepeoplearepurchasinghomes
orhavebeenpushedintotherentalmarket.
ThisissignificantasitmeansmorepeoplewithinWhitehorsearesusceptibletohousing
stress.
Homeownershiphasalsobeenidentifiedasamisleadingindicatorofrelativewealthfor
someolderpeoplewhoowntheirownhomesbuthaveverylowincomes.Thesepeoplecanbe
describedasbeingassetrichandincomepoor.Thatis,whiletheyarenotinhousingstressper
se,theymaybeexperiencingsignificanthardship.
Table1HouseholdsbyhousingtenureintheCityofWhitehorseandMelbourneStatisticalDistrict(2006,2001)
HousingTenure
Owned
BeingPurchased
2006
2001
1996
Whitehorse
MSD Whitehorse
MSD Whitehorse
MSD
40.8 33.1
48.7 41.9
50.3 43.3
32 34.6
26.2 28.1
25.3 27.8
Renting
(Government
landlord)
2.1
2.7
1.9
2.9
Renting(other
landlord)
18.7
21.2
17
19.6
Renting(Not
Stated)
RentingTotal
OtherTenuretype
NotStated
Total
0.6
21.4
0.9
4.8
100
0.6
24.5
0.6
7.2
100
0.3
19.1
2.4
3.5
100
0.3
22.8
2.2
5.1
100
1.9
18 20.8
0.1
20
1.9
2.3
100
0.2
24
1.8
2.5
100
Source:i.dconsulting,CityofWhitehorseCommunityProfile,i.d.,Melbourne2007viewedMay2009,
http://www.id.com.au/profile/Default.aspx?id=123
MedianHousePrices
In2008themedianhousepriceinWhitehorsewas$561,000.Thisisconsiderablyhigher
thantheequivalentforMelbourneMetropolitanarea($348,000).
MelbourneStatisticalDistrictis
Themedianhousepriceinthemunicipalityhasincreasedconsistentlyinthepast10years
(seeTable2)andthisincreasehasbeenparticularlyapparentinthelastcoupleofyearsi.e.
between2006/2007(17%)and2007/2008(13%).Infact,inMarch2009,theRealEstate
InstituteofVictoriafoundWhitehorsehadthe5thfastestrisingmedianhousepricein
MetropolitanMelbourne 2 .
Table2MedianHousePricesinWhitehorseandMetropolitanMelbourne
Metropolitan
Year
Whitehorse Melbourne
1998
236,243
209,244
1999
275,144
232,573
2000
290,924
245,669
2001
340,063
274,737
2002
375,454
308,430
2003
417,238
340,014
2004
423,211
349,854
2005
427,944
353,764
2006
445,110
369,284
2007
547,943
391,388
2008
561,000
348,750
NB:Thesefigureshavebeenadjustedforinflation.
Source:Landdata,DSEinBrown,H.,HouseandLandPricesVictorianMunicipalitiesandSuburbs,
VLGAWebsite,updatedSeptember2008,viewedMay2009,
http://www.vlga.org.au/resources/list.chtml?folder=Social%20Statistics
MedianRents
TherehasbeenastrongupwardtrendinrentsacrossMelbourneoverthepast2years.
Table3outlinesthemedianrentandnumberofpropertiesletforthelocalgovernment
areasintheEasternMetropolitanRegion(EMR).RentinWhitehorsehasincreasedbyan
average8.6%inthe12monthperiodtoDecember2008.
3bedroomhousescomprisethelargestnumberofrentalpropertiesinWhitehorse(42.6%
oftotalrentals).Thesehaveexperiencedthelargestincreaseinrentinthe12monthsto
December2008andareabovetheregionalaverage.
Table3MedianRentsfortheEasternMetropolitanRegionlocalgovernmentareas,bymajorpropertytype
1 Bed Flat
LGA
2 Bed Flat
Ann %
change
Ann %
change
2 Bed House
Ann %
count
Median change
3 Bed House
Ann %
count
Median change
count
Median
count
Median
194
$263
19.3%
452
$350
16.7%
65
$420
16.7%
202
$470
4.4%
101
$250
6.4%
23
$240
-2.0%
223
$310
7.8%
Manningham
11
$230
62
$300
5.3%
10
$290
133
$350
6.1%
Maroondah
10
$220
20.5%
211
$250
8.7%
35
$270
8.0%
132
$310
10.7%
Monash
31
$240
4.3%
209
$300
15.4%
44
$315
15.6%
279
$350
12.9%
Whitehorse
53
$220
7.3%
215
$290
8.4%
56
$300
6.2%
278
$350
9.4%
Boroondara
Knox
http://whitehorseleader.whereilive.com.au/news/story/whitehorseenjoyshousepriceboom/
Yarra
Ranges
EMR
29
$170
6.3%
53
$240
7.6%
41
$250
13.6%
203
$290
11.5%
336
$240
20.0%
1303
$300
13.2%
274
$300
7.1%
1450
$340
13.3%
Source:DHS,RentalReportDecemberQuarter2008,viewedMay2009,
http://www.housing.vic.gov.au/publications/reports/rentalreport
Interconnectedwithrentalcostsisrentalavailability.Themetropolitanvacancyrateforthe
Decemberquarterwas1.1%.Thisisverylowinhistoricaltermsandisindicativeofaverytight
supplysituation.Incomparison,thevacancyratefortheperiod2000to2005was3.5%.
AffordableRental
TheDHSRentalReportprovidesasummaryoftheaffordabilityofrentalaccommodationfor
lowerincomehouseholdsinVictoria.Thismeasuresthesupplyofaffordablenewlettingsbased
ontheResidentialTenanciesBondAuthoritydata.Theaffordabilitybenchmarkusedisthat
morethan30%ofincomeisspentonrent.Lowerincomehouseholdsaredefinedasthoseon
Centrelinkincomes(seeTable4)
Table4IndicativehouseholdsandCentrelinkincomes
Householdtype
Assumedpropertysize
Weeklyincome(netof
RA)
Affordableweeklyrent
Singles
onNewstart
1
bedroom
Single
Parentwith
1child
2
bedroom
Couple
onNewstart
with2
children
3
bedroom
Couple
onNewstart
with4
children
4
bedroom
Total
$225
$402
$557
$729
$125
$190
$235
$290
http://www.housing.vic.gov.au/publications/reports/rentalreport
Table5depictsrentalaffordabilityforlowincomehouseholdsinWhitehorseandotherLGAs
intheeasternregion.
Table5AffordablelettingsforindicativehouseholdsbasedonCentrelinkincomes
1 Bedroom
Affordable Percent
8
9%
LGA
Whitehorse
Yarra
Ranges
Maroondah
Monash
Manningham
Knox
Boroondara
Total
4
1
7
0
2
7
483
8%
6%
12%
0%
10%
3%
9%
2 Bedroom
Affordable Percent
4
1%
10
13
0
0
5
1
2104
10%
5%
0%
0%
4%
0%
17%
3 Bedroom
Affordable Percent
6
2%
37
4
9
1
15
2
3194
14%
2%
2%
0%
5%
1%
23%
4+ Bedroom
Affordable Percent
13
14%
2
1
21
1
3
2
985
3%
2%
13%
1%
3%
1%
26%
Total
Affordable Percent
31
4%
53
19
37
2
25
12
6766
http://www.housing.vic.gov.au/publications/reports/rentalreport,
AffordablerentalforlowincomehouseholdsisverylowinWhitehorse,bothrelativetothe
regionandtotheVictoriantotals.
AcrossVictoriaitisgenerallylowincomesinglepersonhouseholdsthatfacethemost
difficultyinaccessingaffordablerentalaccommodation.InWhitehorsethegreatestdifficultyis
11%
4%
4%
0%
4%
1%
19%
facedbythoselookingfor2and3bedroomproperties;thesearelikelytobesinglesorcouples
withchildren.
Incomevs.Tenure
SocialHousing
IntheCityofWhitehorse,socialhousingstockisownedby:
TheCityofWhitehorse(i.e.LocalGovernment);
TheOfficeofHousing(withintheVictorianDepartmentofHumanServices);
DisabilityServices(withintheVictorianDepartmentofHumanServices);
RegisteredHousingAssociations.Thereareeightregisteredhousingassociationsin
VictoriaandthreehavepropertiesinWhitehorseCommunityHousing(Vic)Ltd,
SupportedHousingLtdandCommonEquityHousingLtd.Ofthese,CommunityHousing
(Vic)LtdandSupportedHousingLtdhavestockdedicatedasdisabilitystock.
DisabilityHousingTrust;
Church/CommunityGroups.
Approximately1,459householdsnominatedaslivinginsocialhousinginthe2006census.
Thisisapproximately2.6%ofallhouseholdsinthemunicipality.
Table6summarisesthenumberofpublichousingpropertiesintheeasternregionLGAsand
inotherregions.Theeasternregionhassignificantlylesspublichousingthantheother
Metropolitanregionsapproximately6.8propertiesper1,000estimatedresidentialpopulation,
comparedwith18.3and12.9forthenorthandwestmetropolitan,andsouthernmetropolitan
regionsrespectively.Thisshouldnotbeconsideredareflectionoflackofdemand;ratherthat
supplylevelsarelow.Thefiguresbelowdonotincludecommunityhousingnumbers(housing
owned/operatedbyhousingassociations).
Table6PublicHousingbyLGAandRegion
LGA / Region
Boroondara
Knox
Manningham
Maroondah
Monash
Whitehorse
Shire of Yarra Ranges
Eastern Metropolitan Region
North & West Metropolitan
Region
Southern Metropolitan
Region
843
1,212
239
1,042
1,424
1,469
610
6,839
Rate per 1,000

estimated residential
population
5.2
8.0
2.1
10.2
8.4
9.7
4.2
6.8
27,962
18.3
15,753
12.9
Number of
Properties*
*Propertiesincluderoominghouseandremovableunits.
Source:DPCD,MelbourneAccessPointwebsite,updatedJune2006,viewedMay2009,
http://www.melbourneaccesspoint.com/data%20files/Table%207%20
%20Public%20Housing%20Stock.xls
TheOfficeofHousingprovidessomebasicwaitinglistdata.InDecember2008,therewere
2,656ontheBoxHillofficepublichousingwaitinglist.InSeptember2008thisfigurewas2,605.
Publichousingwaitinglistdataisproblematicforanumberofreasons.Firstly,applicantsmay
beonanumberofwaitinglists.Secondly,applicantsmayselectareasbasedonstockavailable.
Forexample,applicantsrequiringfourbedroompropertiesmayselectareasbasedon
understandingmorefourbedroompropertiesareavailableinanarea.
HousingStress
ItisdifficulttocalculatehousingstressintheCityofWhitehorse.
Figure1isathematicmapdepictingwherehouseholdsinhousingstressinthemunicipality.
Thisisnotbasedonlowincomehouseholds;itaimstocapturehousingstressforhouseholds
withregardlessofincome.ThemapshowsveryhighlevelsofhousingstressaroundBoxHill
(3647%insomeareas)andhighlevelsofstressaroundBurwood,EastBurwood,partsof
Nunawading,MitchamandForestHill.
Figure1Householdswithhousingcosts30%ormoreofhouseholdincome
Source:ABS,2006,viewedMay2009,www.abs.gov.au
Homelessness
Homelessnessisdifficulttoquantify.Inthe2006census,theABSdevelopedtheHomeless
PeopleEnumerationStrategywhichrecognisedandsoughttoaddresssocialandcultural
barrierstocountinghomelesspeople,aswellasraiseawarenessofthecensusamonghomeless
people.
TheABSdividedhomelesspeopleintotwocategoriesforoperationalpurposes:
Absolutehomelessness(primaryhomelessness)peoplewithoutconventional
accommodationincludinglivingonthestreets,indesertedbuildings,improvised
dwellings,inparks.
Relativehomelessness(secondaryandtertiaryhomeless)peoplestayinginboarding
houses,peopleusingSAAPorothersimilaremergencyaccommodationservicesor
peoplewithnosecureaccommodationstayingtemporarilywithfriendsorrelativesin
privatedwellings.
Athirdgroupofhomelesspeople,themarginallyhoused,isusedtodescribepersonsliving
inaccommodationclosetotheminimumcommunitystandard(rentingcaravans,singleroom
accommodation).
Thedatafromthe2006censusisnotyetavailableotherthanatthestatelevel.Table7is
basedonthe2001census.Informationisatthestatisticalsubdivisionlevel(comprisingoneor
morestatisticaldivisions).MiddleEasternMelbourne(MEM),comprisingWhitehorse,Monash
andManninghamhasthefourthhighestnumberofhomelesspeopleofthe17statistical
subdivisionsinMelbourne.
Table7No.HomelessPeoplebyStatisticalDivisionorSubdivision
No.Homeless
%of
StatisticalDivisionorSubdivision
People
State
Melbourne
14,072
69.3
InnerMelbourne
3,552
17.5
WesternMelbourne
1,546
7.6
EasternMiddleMelbourne
1,297
6.3
SouthernMelbourne
1,098
5.4
NorthernMiddleMelbourne
960
4.7
EasternOuterMelbourne
689
3.4
GreaterDandenongCity
614
3
MorelandCity
587
2.9
BoroondaraCity
583
2.9
SouthernEasternouterMelbourne
579
2.9
MorningtonPeninsulaShire
536
2.6
NorthernOuterMelbourne
476
2.3
FrankstonCtiy
437
2.2
HumeCity
418
2.1
YarraRangesShirePartA
418
2.1
MeltonMyndham
282
1.4
Victoria
20,305
100
Source:Chamberlain,C.andMacKenzie,D.,2004,CountingtheHomeless2001:Victoria,
SwinburneUniversityandRMITUniversity,Melbourne,p.71
Ofthese,nearlyhalf(46.1%)werestayingwithfriendsorrelatives.Thenextlargestgroup
(34.2%)wereinsupportedaccommodationandthenboarding1houses(18.5%).Asmall
percentage(1.2%)weresleepingrough,squattingorinimproviseddwellings(referFigure2).
Figure2SegmentsoftheHomelessPopulationinEasternMiddleMelbourne(2001Census)
Source:ChrisChamberlainandDavidMacKenzie,CountingtheHomeless2001:Victoria,
SwinburneUniversityandRMITUniversity,Melbourne,2004,Appendix1.
RoomingHouses
Aroominghouseislegallydefinedasahouseorbuildingwherefourormorepeopleeach
rentandsharefacilitiessuchasakitchenandbathroom.Peopleoftenshareroomsandeach
residenthasanindividualrelationshipwiththeoperator,ratherthanacollectivetenancy
arrangementasinasharehouse.
Roominghousesareprivatelyowned(commercial)andmanagedorpubliclyowned
communityhousingmanagedbyacommunityorganisation 3 .
CommunityBasedRoomingHouses
Communitybased(public)roominghousesoperateonanotforprofitbasis,generallyfocus
onlongertermhousing,aremorecarefulabouttenantselectionanddonotuseonsite
managers.CommunityHousingLimitedandtheCityofWhitehorsebothownroominghouses
ofthistypeinWhitehorse(12and11roomhousesrespectively).
Roominghousesofthistypearegenerallyseenasalowcostformofaccommodationand
sourceofemergencyhousing.Theyprovideaccommodationforpeoplewhoaregenerally
unabletoaccessotherprivaterentalaccommodation.Thismaybeduetoaninabilitytoafford
rentalorestablishmentcosts,lackofreferences,oralackofdesireorinabilitytoliveinself
containedrentalaccommodation.
Sincedeinstitutionalisationpoliciesofthementalhealthsectorinthe1980s,ahigh
proportionofresidentsinroominghouseshavementalhealthissues.Asignificantnumberof
http://www.portphillip.vic.gov.au/rooming_houses.html16/09/2008
residentsalsohavehealthproblemswithdrugandalcoholabuse,orhavejustcomeoutof
prison.
Communitybasedroominghousesplayapivotalroleinprovidingaccommodationforthe
vulnerableanddisadvantaged.
CommercialRoomingHouses
Commercialorprivateroominghousestendtoberunonaforprofitbasisasabusiness.
Theymayormaynothaveonsitemanagersandhaveamixofshorttermtenancies(including
peoplecomingoffthestreetandsometimesbackpackers)andlongtermtenancies.Theirrents
areusuallybasedonmarketrates.
ItisdifficulttoquantifythenumberofprivatelyrunroominghousesinWhitehorseasthere
arefewregistrationrequirementsandmanythatshouldberegisteredarenot.
ThreeareasacrossCouncilareresponsibleforRoomingHouses.Theseare:
PlanningAplanningpermitisrequiredforroominghouseswithtenormorehabitable
rooms.Thismeansthatcouncilcannotinfluencethelocationofroominghouseswith
lessthantenrooms.
EnvironmentalHealthRoominghousesarerequiredtoregisterundertheHealthand
WellbeingAct2008iftheroominghousehasfourormoreresidents.Priorto2008the
requirementtoregisterwasonlyforroominghouseswith6ormoreresidents.
BuildingattheCityofWhitehorsetheBuildingUnitdepartmentsthresholdfor
involvementisoncethereisapaymentofmoneyforrooms(i.e.nominimumnumberof
residents).
39roominghousesarecurrentlyregisteredwithCouncil.Approximately40areduetobe
registeredpendingsubmissionofpaperwork.
InWhitehorse,therearetwodistincttypesofcommercialroominghouses.Thefirstis
traditionalroominghouses,withasimilarclienteletothoseofcommunityroominghouses.
TheseareconcentratedaroundForestHillandNunawading,withsmallernumbersinBlackburn,
SurreyHillsandMontAlbert.
Thesecond,newandemergingtypeofroominghousecatersforstudents.Theseare
locatedaroundtheeducationprecinctsatBoxHillandBurwood.Many,thoughnotall,ofthe
residentsareinternationalstudents.Intermsofaffordability,roominghousescateringfor
studentsareexpensive,chargingapproximately$160$200perweek.Thishasanumberof
consequences.Foralandlord,itmaymakeestablishingaroominghousemoreattractivethan
rentingtoafamilyorindividuals.CertainlythereisanecdotalevidencetosupportthiswithReal
Estateagentsadvisinglandlordsthatpropertiescanbemoreprofitableiftheyoperateas
roominghouses.Itmayalsomeanroominghousescurrentlyorconsideringcateringfora
clientelethatmightstruggleintheprivaterentalmarket,maydecidetogetstudentsin,further
reducingtheoptionsforindividualswhomightotherwisestruggletogetprivaterental
agreements.
Inadditiontotheaffordabilitydimension,someoftheotherissuesexperiencedbyprivate
roominghouseresidents(studentsandotherwise)include 4 :
Safety:Manyprivateroominghouseslacksmokealarms,safeaccessandarepoorly
maintained.Residentscanbeexposedtoharassmentorviolencebyotherresidents,visitorsand
operatorsincommunalareasandrooms.
Privacy:Roomsmaynothavelockabledoors.Sharingofinadequatefacilitiescancause
conflicts.Theremaybeaninappropriatemixofresidents,eg.womenandchildrensharingwith
oldersinglemen.Increasingly,housesthatareunsuitableformultipleoccupantsarebeing
convertedintoroominghousesusingcheapandinappropriatebuildingmaterials,eg.lounge
roomsorofficepremisesbeingpartitionedwithplywoodboards.
Security:Residentshavelimitedsecurityoftenureandareoftenevictedwithlittleorno
notice.Residentsareoftenharassedandthreatenedbylandlords,otherresidentsand
uncontrolledvisitors.
Financialexploitation:Residentsfrequentlypayupto$300/weekforasmallroomand
sharedfacilities.Rentpaymentsareoftenmorethanhalfapersonstotalincome,indicating
severehousingstress.LandlordswhodirectdebitrentalpaymentsfromCentrelinkpayments
havebeenknowntokeeptakingpaymentsaftertheresidenthasleft.Operatorswithholdbond
paymentswithoutgoodreason.
Healthandhygiene:Sharedfacilitiessuchastoilets,showersandkitchensareoften
inadequate,dirtyandpoorlymaintainedbyoperators.
CouncilforHomelessPeople,VCOSS,TenantsUnionofVictoria,Findoutthetruthaboutrooming
housesFACTSHEET
10
Social and Affordable Housing Policy

2002
Social and Affordable Housing Policy
Introduction
Local Government has long undertaken roles that influence local housing opportunities through its regulatory and strategic planning functions.
Council also has a responsibility for understanding and recognising community need and for ensuring that the social fabric of the municipality is
maintained and strengthened. Council is therefore responsible for advocating on behalf of disadvantaged members of the community and for
those for whom affordable housing is a key social need.
The current policy is designed to provide an approach towards social and affordable housing issues within the City of Whitehorse and is
intended to be read in conjunction with the City of Whitehorse Housing Study (draft) which provides a demographic overview, residential
development trends, the existing planning policy framework and strategic directions.
Definitions
Social Housing
Social housing, non-profit housing owned and managed for the prime purpose of meeting social objectives, such as affordable rents,
responsive management, security of tenure and good location in relation to employment and services. It is a term that encompasses
but which goes beyond public housing to include, for example, housing owned and managed by church organisations or by local
government or by joint venture arrangements between such groups.
(National Housing Strategy, 1992)
Affordable Housing
Affordable housing, from a consumer perspective, is housing which is appropriate to the needs of low to moderate income households
and does not consume such a high proportion of household income that it leaves households with insufficient money to meet other
basic costs.
(Ecumenical Housing, 1997)
Public Housing
Housing provided by the State government to people on low incomes.
Sustainable Housing
Sustainable housing offers reduced energy use, use of local sustainable materials and products, reduced waste, stimulation of the local
economy, very low running costs for affordable housing, and healthier housing leading to reduced health costs. Sustainability also
implies a greater emphasis on local businesses - designers, builders and suppliers - so that the strength, vitality and self-reliance of
the local economy is enhanced by house-building, rather than being drained by remote development companies, using transient
workers and distant suppliers - a development process that drains far more income and profit from local communities than it
contributes.
(Somerset Trust for Sustainable Development, 2001).
The Role of Local Government
The Local Government Act 1989 articulates the role for local government in housing as follows:
Coordinate with other public bodies to ensure that services and facilities are provided and resources are used effectively and efficiently.
Ensure adequate planning for the future of the municipal district.
Represent and promote the interests of the community and to be responsive to the needs of the community.
Raise funds for local purposes by the equitable imposition of rates and charges and by obtaining borrowing and grants.
(Clause 7, Local Government Act, Victoria)

Local governments in Victoria play a range of roles in improving affordable housing opportunities, including:
researching local housing needs;

developing housing policies and strategies;
identifying opportunities;
participating in joint venture projects with the State Government and the private and community sectors;
carrying out community development work on public housing estates;
playing an advocacy role on behalf of their local communities;
land-use planning;
development controls; and
building regulations.
Roles adopted by local governments are determined by factors associated with specific needs, demographics and local capacities.
Council Framework
Vision
Councils Plan 2002 2003 articulates commitment to enhancing and promoting the quality of community life:
A City with an outstanding natural, built and social environment for the residential, business and evolving needs of the community.
Values
Key values as outlined in the 2002 2003 Council Plan which have guided the development of this document are:
Consultation and Communication

Democracy
Equity and Social Justice
Integrity
Openness and Accountability
Safety
Sustainability
Policy
Council Plan Key Result Area
Policy Statement
Good Government
Council is accountable to its community and
will conduct its affairs openly and with integrity
while reflecting the highest level of good
management and governance.
Working in partnership with other Councils and the Commonwealth and State
Governments on housing initiatives.
Membership/support of regional Housing bodies.
The Evolving City

Council plans for the future and implements
strategies that will upgrade and improve
progressively the natural, built, social and
economic elements of the Citys environment.
Facilitating local solutions for achieving adequate, appropriate and affordable housing.
Ongoing monitoring and research of local housing needs.
Integrated planning that recognises the interrelationship between housing, employment,
services and transport.
Advocating for the inclusion of social housing within future residential development.
Productive Resources
Council will use the resources of the City
(volunteers, staff, infrastructure and finances)
to provide for the diverse needs of the
community efficiently and in a sustainable
manner.
Advocating for housing resources in partnership with key stakeholders specifically

local/regional housing service providers.

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AffordableHousingDiscussionPaper 2009

Household Types in the City of Whitehorse

Single parent with

Rate per 1,000

Social and Affordable Housing Policy

Social and Affordable Housing Policy

(Clause 7, Local Government Act, Victoria)

researching local housing needs;

Consultation and Communication

The Evolving City

Advocating for housing resources in partnership with key stakeholders specifically

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