ࡱ> 5@ bjbj22 GXXkQbbbPtOtOtO8OPtQ2JS(rSrSrSTv WWd@BBBBBB$ӓR%ZfSfTTSfSffrSrS4{.3l3l3lSfrSrS3lSf@3l3ll8 *rS Q 0P5tOhx֋* <*KjT**HXZ\3lB_TaHXHXHXffDL#d#FlL#F Homelessness and the Right to Social Security Submission to the Commonwealth Government regarding Reform of Income Support for Working-Age People June 2003 Homelessness and the Right to Social Security Submission to the Commonwealth Government regarding Reform of Income Support for Working-Age People Philip Lynch Homeless Persons Legal Clinic Public Interest Law Clearing House Level One, 550 Lonsdale Street Melbourne VIC 3000 Tel: (03) 9225 6684 Fax: (03) 9225 6686 Email: projects.pilch@vicbar.com.au Table of Contents  TOC \h \z \t "AAR Heading 1,1,AAR Heading 2,2"  HYPERLINK \l "_Toc43709280" 1. Executive Summary and Recommendations  PAGEREF _Toc43709280 \h 4  HYPERLINK \l "_Toc43709281" 1.1 Executive Summary  PAGEREF _Toc43709281 \h 4  HYPERLINK \l "_Toc43709282" 1.2 Recommendations  PAGEREF _Toc43709282 \h 4  HYPERLINK \l "_Toc43709283" 2. Introduction  PAGEREF _Toc43709283 \h 6  HYPERLINK \l "_Toc43709284" 2.1 Homeless Persons Legal Clinic  PAGEREF _Toc43709284 \h 6  HYPERLINK \l "_Toc43709285" 2.2 Definitions, Nature, Extent and Causes of Homelessness  PAGEREF _Toc43709285 \h 6  HYPERLINK \l "_Toc43709286" 3. Right to Social Security  PAGEREF _Toc43709286 \h 9  HYPERLINK \l "_Toc43709287" 3.1 Article 9 of the International Covenant on Economic, Social and Cultural Rights  PAGEREF _Toc43709287 \h 9  HYPERLINK \l "_Toc43709288" 3.2 Article 2(1) of the International Covenant on Economic, Social and Cultural Rights  PAGEREF _Toc43709288 \h 10  HYPERLINK \l "_Toc43709289" 4. Right to Social Security and Homelessness  PAGEREF _Toc43709289 \h 12  HYPERLINK \l "_Toc43709290" 4.1 Overview  PAGEREF _Toc43709290 \h 12  HYPERLINK \l "_Toc43709291" 4.2 Eligibility  PAGEREF _Toc43709291 \h 12  HYPERLINK \l "_Toc43709292" 4.3 Participation Requirements  PAGEREF _Toc43709292 \h 12  HYPERLINK \l "_Toc43709293" 4.4 Payment  PAGEREF _Toc43709293 \h 15  HYPERLINK \l "_Toc43709294" 5. Endorsements  PAGEREF _Toc43709294 \h 16  Executive Summary and Recommendations Executive Summary This submission is made by the Homeless Persons Legal Clinic in response to the request for submissions to the Commonwealth Government regarding reform of income support for working-age people. It is endorsed by the organisations and individuals listed in Part 5. The submission contends that all persons have the fundamental human right to social security. Social security must be available to cover all risks involved in the loss of means of subsistence beyond a persons control and at a level necessary to ensure the realisation of the right to an adequate standard of living. The Commonwealth Government has an obligation under international human rights law to devote the maximum of its available resources to progressively achieve the full realisation of the right to social security. The submission argues that the right to social security is denied to, or not capable of effective realisation by, many homeless people. Many homeless people face significant difficulties with respect to complying with eligibility requirements for social security payments. Moreover, once qualified for payment, many homeless people are unable to meet participation requirements and are disproportionately susceptible to social security penalties. Reform of eligibility and participation requirements is necessary to ensure that social security is available to, and maintainable by, all people who are homeless or at risk of homelessness. Reform is also crucial to ensure that the welfare reform goals of social inclusion and self-reliance are met through the development and implementation of an integrated package of social assistance aimed at addressing underlying causes of homelessness. A summary of recommendations is set out below. Recommendations Recommendation 1 That the reform of income support for working-age people legislatively enshrine the fundamental human right to social security. Recommendation 2 That the reform of income support for working-age people legislatively guarantee the payment of social security to all working-age people who are unable to earn sufficient income to ensure an adequate standard of living. Recommendation 3 That the reform of income support for working-age people ensure that social security payments be made at a level sufficient to realise the right to an adequate standard of living. Recommendation 4 That, as a budgetary priority, the Commonwealth Government ensure that the maximum of its available resources are devoted to ensuring realisation of the right to social security. Recommendation 5 That the reform of income support for working-age people include reform of Centrelinks proof of identity system to require that a person produce three forms of identification, at least one of which can include a letter from a youth worker or social worker. Recommendation 6 That the reform of income support for working-age people legislatively exempt people who are homeless or at risk of homelessness from complying with activity test requirements. Recommendation 7 That the Commonwealth Government make available the use of free post office boxes to people who are homeless or at risk of homelessness. Recommendation 8 That the reform of income support for working-age people include a legislative guarantee that breaches will not result in the reduction of social security payments below the level necessary to ensure an adequate standard of living. Recommendation 9 That the reform of income support for working-age people include the development of an integrated package of social security assistance to people who are homeless or at risk of homelessness that includes housing, employment assistance and personal support to ensure sustainable outcomes. Recommendation 10 That the reform of income support for working-age people include reform of Centrelinks payment practices to ensure that EBTs are readily available to people who are homeless or at risk of homelessness and that information about this payment option is widely distributed. Introduction Homeless Persons Legal Clinic The Homeless Persons Legal Clinic (Clinic) is a joint project of the Public Interest Law Clearing House (Vic) Inc (PILCH) and the Council to Homeless Persons. It was established in October 2001 to provide free legal assistance to and advocacy on behalf of people who are homeless or at risk of homelessness. The Clinic was initially funded by a non-recurrent 18 month grant from the Victorian Department of Human Services (Supported Accommodation Assistance Program Unit). It is now funded by the Victorian Department of Justice through the Victoria Legal Aid Community Legal Sector Program Fund. The Clinic provides civil and administrative legal services at crisis accommodation centres and welfare agencies so as to encourage direct access by clients. Host agencies include Anglicare, Argyle Housing Service, Hanover Welfare Services, Melbourne Citymission, The Salvation Army, St Vincent de Paul Society, The Big Issue and Urban Seed. Legal services are provided by volunteer lawyers from PILCH members including Allens Arthur Robinson, Blake Dawson Waldron, Clayton Utz, Hunt & Hunt, Mallesons Stephen Jaques, Minter Ellison, National Australia Bank Legal Department and Phillips Fox. In addition to providing legal services, the Clinic aims: To use the law to promote, protect and realise the human rights of people experiencing homelessness. To use the law to redress unfair and unjust treatment of people experiencing homelessness. To reduce the degree and extent to which homeless people are disadvantaged and marginalised by the law. To use the law to construct viable and sustainable pathways out of homelessness. Definitions, Nature, Extent and Causes of Homelessness In Australia, a person is defined at law to be homeless if he or she has inadequate access to safe and secure housing. Section 4(2) of the Supported Accommodation Assistance Act 1994 (Cth) provides that a person is taken to have inadequate access to safe and secure housing if the only housing to which they have access damages, or is likely to damage, the persons health; or threatens the persons safety; or marginalises the person through failing to provide access to: adequate personal amenities; or the economic and social supports that a home normally affords; or places the person in circumstances which threaten or adversely affect the adequacy, safety, security or affordability of that housing. This is consistent with the international law definition of homelessness developed by the United Nations Committee on Economic, Social and Cultural Rights (CESCR) which provides, in effect, that a person is homeless unless he or she has adequate housing that affords the right to live in security, peace and dignity. It is also consistent with definitions of homelessness that are identified by people experiencing homelessness themselves. Andrew, a client of Sacred Heart Mission, St Kilda, Victoria, reflects on the experience of sleeping rough: With life on the street, you dont know whats going to happen next. Youre forever on the edge. You dont know if youre going to overdose or if someones going to give you a hot shot. You dont know if youre going to get enough money to get on. Having a home means more than just having a roof over your head. Ned, another client of Sacred Heart Mission, regards himself as homeless despite the fact that he lives in a boarding house: Boarding houses segregate people. You have walls but no real freedom. You cant bring anyone to your room, and you have to be in by a certain time. You lose your choices in boarding houses. For the purpose of identifying the extent of homelessness and assisting governments to appropriately develop and deliver services, the Australian Bureau of Statistics has adopted the definition of homelessness proposed by Chamberlain and MacKenzie, who argue that homelessness is best defined in relation to common community standards regarding the minimum accommodation necessary to live according to the conventions of community life. In Australia, the accepted minimum community standard is said to be a small, rented flat with basic amenities such as a bedroom, bathroom and kitchen. Having regard to this standard, Chamberlain and MacKenzie identify three categories of homelessness: Primary homelessness People without conventional accommodation, such as people living on the streets, sleeping in parks, squatting in derelict buildings, or using cars or railway carriages for temporary shelter. Secondary homelessness People who move frequently from one form of temporary shelter to another. It covers: people using emergency accommodation (such as hostels for the homeless or night shelters); teenagers staying in youth refuges; women and children escaping domestic violence (staying in womens refuges); people residing temporarily with other families (because they have no accommodation of their own); and those using boarding houses on an occasional or intermittent basis. Tertiary homelessness People who live in boarding houses on a medium to long-term basis. Residents of private boarding houses do not have a separate bedroom and living room; they do not have kitchen and bathroom facilities of their own; their accommodation is not self-contained; they do not have security of tenure provided by a lease. Using this definition, the Australian Bureau of Statistics enumerated that on census night in August 1996, there were over 105000 people experiencing homelessness across Australia and more than 17800 people experiencing homelessness in Victoria. More than 80 per cent of these people were classified in the categories of primary or secondary homelessness (with 20 per cent sleeping rough or in improvised dwellings, 12 per cent staying in hostels, refuges and other forms of emergency accommodation, and 46 per cent staying temporarily with other households). The pathways into homelessness are complex and varied. They include structural causes, government fiscal and social policy causes, individual causes and in some instances include cultural causes. In many cases of homelessness, the causes are intersectional and interrelated. Right to Social Security Article 9 of the International Covenant on Economic, Social and Cultural Rights The International Covenant on Economic, Social and Cultural Rights (ICESCR), codifies a body of fundamental economic, social and cultural human rights. Australia is a party to ICESCR and is bound by its terms. Article 9 of ICESCR provides that all persons have the right to social security. Although article 9 does not specify the type or level of social security to be guaranteed, the United Nations Committee on Economic, Social and Cultural Rights (CESCR) has commented that it must be available to cover all risks involved in the loss of means of subsistence beyond a persons control. Further, it must be sufficient to ensure the realisation of the right to an adequate standard of living, which includes adequate housing, food, clothing, water and the continuous improvement of living conditions. In addition to being codified in ICESCR, international jurisprudence demonstrates that the right to an adequate standard of living, including access to an adequate income, also constitutes a component of the right to life from which no derogation is permitted. As the Supreme Court of Canada recently held: A minimum level of welfare is welfare is so closely connected to issues relating to ones basic health (or security of the person), and potentially even to ones survival (or life interest), that it appears inevitable that a positive right to life, liberty and security of the person must provide for it. In Australia, the Social Security Act 1991 (Cth) regulates eligibility for, and payment of, social security. The Social Security Act does not confer an enforceable right to social security, but instead confers a benefit or privilege that can be expanded or revoked at the Governments discretion. Recommendation 1 That the reform of income support for working-age people legislatively enshrine the fundamental human right to social security. The Social Security Act does not guarantee a minimum wage and, with the exception of Special Benefit which is paid entirely at the discretion of Centrelink, is not payable to persons merely because they are unable to earn a sufficient livelihood. Recommendation 2 That the reform of income support for working-age people legislatively guarantee the payment of social security to all working-age people who are unable to earn sufficient income to ensure an adequate standard of living. At present, social security payments are pegged at a level well below the poverty line. For many people, social security payments are inadequate to access the basic subsistence requirements of life, including adequate food, housing, clothing and health care. In a recent study conducted by Hanover Welfare Services in conjunction with Victoria Police and the City of Melbourne, it was found that over 90 per cent of persons observed to begging in the Melbourne CBD were social security recipients. In 2002, the Australian Institute of Health and Welfare reported that 83 pent of people accessing SAAP-funded homelessness services listed social security as their primary income source. This indicates that, at current levels, social security payments are insufficient to enable people to access an adequate standard of living. Recommendation 3 That the reform of income support for working-age people ensure that social security payments be made at a level sufficient to realise the right to an adequate standard of living. Article 2(1) of the International Covenant on Economic, Social and Cultural Rights Article 2(1) of ICESCR sets out the obligations of states parties in relation to the promotion, protection and realisation of the substantive rights contained in the treaty. Relevantly, article 2(1) obliges Australia to take steps, to the maximum of its available resources, to progressively achieve the full realisation of all ICESCR rights. Steps taken must be expeditious and effective, deliberate, concrete and targeted and, in addition to legislative reform, should include administrative, financial, educational and social measures. Pursuant to article 2(1), the onus is on Australia to demonstrate that it is making measurable progress towards the full realisation of the right to social security. Further, it must demonstrate that this endeavour is being undertaken as a budgetary priority using the maximum of its available resources. Failure to make progress, together with the adoption of regressive measures that result in a diminution in access to or realisation of the right, is a violation of international human rights law. The welfare reform consultation paper, Building a Simpler System to Help Jobless Families and Individuals, envisages that welfare reform should aim to make the best use of limited Budget funds. As CESCR has commented, however, the obligation to ensure the satisfaction of, at the very least, minimum essential levels of the right to social security, applies irrespective of the availability of resources. International human rights law requires that, if budgeted funds are inadequate to meet this minium core obligation, taxes be increased or spending priorities be varied. Recommendation 4 That, as a budgetary priority, the Commonwealth Government ensure that the maximum of its available resources are devoted to ensuring realisation of the right to social security. Right to Social Security and Homelessness Overview The right to social security is denied to, or not capable of effective realisation by, many homeless people. Many homeless people face significant systemic difficulties with respect to complying with eligibility requirements for social security payments. Moreover, once qualified for payment, many homeless people are unable to meet participation requirements and are disproportionately susceptible to, and impacted by, social security penalties. Eligibility In order to become eligible for social security payments, a claim must be submitted to Centrelink on the mandated claim form. The claim form must be supported by, inter alia, documentation establishing the identity of the person making the claim and that of their partner, if applicable. Current Centrelink practice requires that a person adduce 100 points of identification to prove identity (and, by extension, to access social security payments). This represents a regressive step from the former proof of identity system which simply required that a person produce three forms of identification, one of which could include a letter from a youth or social worker. Proof of identity requirements operate discriminatorily against the homeless, many of whom are unlikely to hold the requisite documents or have the money or resources to obtain them. Accessing documents may be especially difficult, if not impossible, for women and children fleeing domestic violence and for refugees and asylum seekers. Recommendation 5 That the reform of income support for working-age people include reform of Centrelinks proof of identity system to require that a person produce three forms of identification, at least one of which can include a letter from a youth worker or social worker. Participation Requirements Where a homeless person is able to establish identity, eligibility for payment of working-age payments (such as Newstart) is generally contingent upon the claimant complying with an activity agreement. Activity agreements often impose conditions such as regularly attending job interviews or promptly responding to Centrelink correspondence with which homeless people are unable or unlikely to comply. Many homeless people have more pressing concerns than attending a job interview like finding somewhere safe to sleep and something to eat. Recommendation 6 That the reform of income support for working-age people legislatively exempt people who are homeless or at risk of homelessness from complying with activity test requirements. With no fixed address, many homeless people do not receive Centrelink correspondence. Recommendation 7 That the Commonwealth Government make available the use of free post office boxes to people who are homeless or at risk of homelessness. Failure to comply with the requirements of an activity agreement usually result in a person being breached, meaning that the payment of the unemployment benefit is reduced or terminated. While breaches may represent a saving to the government, they occasion significant physical, financial and psychological hardships to the people penalised. Breaches often result in a vicious cycle of poverty and homelessness as an individuals energies and resources are directed towards surviving rather then securing employment. Reflecting on the plight of a young homeless woman unable to access social security payments adequate to meet basic subsistence needs, Arbour J of the Supreme Court of Canada recently stated: The psychological and social consequences of being excluded from the full benefits of the social assistance regime were devastating. The hardships and marginalisation of poverty propel the individual into a spiral of isolation, depression, humiliation, low self-esteem, anxiety, stress and drug addiction. As this statement recognises, the cost of breaches is not only felt by welfare agencies and service providers to which people turn during non-payment periods, but by our community as a whole. Justice Arbour also noted that, consistent with the rights to social security and to life, it would be a rare case indeed in which a government could successfully claim that the deleterious effects of denying access to social security payments to persons in need is justifiable in contemplation of long-term benefits such as forcing such persons into the workforce. Recommendation 8 That the reform of income support for working-age people include a legislative guarantee that breaches will not result in the reduction of social security payments below the level necessary to ensure an adequate standard of living. The welfare reform consultation paper, Building a Simpler System to Help Jobless Families and Individuals, envisages that welfare reform should seek to encourage and support people to participate in the life of the community through paid work. People who are homeless or at risk of homelessness face significant impediments with respect to attaining self-reliance or a sense of social inclusion. As a recent Victorian Government observed: Our social system assumes everyone has a home that provides adequate shelter as well as a base from which to participate in the social and economic life of the community. Being without a home effectively disenfranchises a person from a broad range of rights, and the responsibilities we all share as community members, that together constitute citizenship. Studies conducted in the US and Canada demonstrate that establishing long-term solutions to homelessness reduces the use of other government services and substantially reduces the total cost to the government. For example, a Canadian study found that the cost of providing major government health care, criminal justice and social services (excluding housing) to the homeless individuals who participated in the study cost, on average, 33 per cent more than the cost of providing those services to the housed individuals in the study. A New York study monitored 4679 homeless people suffering psychiatric disabilities over a seven-year period who were placed in affordable housing and provided with clinical and social support. The study found that a mentally ill individual used more than three times the amount of publicly funded services when they were homeless, compared to when they were placed in service-enriched housing. These social and economic costs of homelessness are also being recognised by Australian state governments. As the Victorian Government recognises: There is a compelling case for government to provide quality homelessness services as a way of containing expenditure across a broad range of social programs used by people who have multiple or complex needs. Recommendation 9 That the reform of income support for working-age people include the development of an integrated package of social security assistance to people who are homeless or at risk of homelessness that includes housing, employment assistance and personal support to ensure sustainable outcomes. Payment Centrelink practice is to pay social security payments into personal bank accounts. Counter cheques and EBTs are only issued in exceptional circumstances and information about the availability of these payment options is not advertised or readily available. For many people who are homeless or at risk of homelessness it is difficult to open or access a bank account. This may be due to onerous proof of identity requirements, loss of memory associated with psychiatric illnesses or disorders, or even direct discrimination by financial services providers. Recommendation 10 That the reform of income support for working-age people include reform of Centrelinks payment practices to ensure that EBTs are readily available to people who are homeless or at risk of homelessness and that information about this payment option is widely distributed. Endorsements This submission is endorsed by the following organisations: Australian Federation of Homelessness Organisations Centre on Housing Rights and Evictions Council to Homeless Persons Geelong Community Legal Service Homeless Peoples Association North Melbourne Legal Service Public Interest Law Clearing House Support and Accommodation Rights Service St Vincent de Paul Aged Care and Community Services Urban Seed Welfare Rights Unit (Victoria) The submission is endorsed by the following organisations: Annabel Haslam, Barrister and Solicitor of the Supreme Court of Victoria Anne Emery, Project Worker, Homeless Peoples Association Anne Gosely, Founder, Homeless Peoples Association David Wright-Howie, Policy Officer, Council to Homeless Persons Elsje van Moorst, Manager, Geelong Community Legal Service John Patone, Chief Executive Officer, St Vincent de Paul Aged Care and Community Services Livia Carusi, Support and Accommodation Rights Service Meg Mundell, Youth Policy Officer, Council to Homeless Persons Megan Tully, Volunteer, Homeless Persons Legal Clinic Megan Utter, Barrister and Solicitor of the Supreme Court of Victoria Paula OBrien, Lecturer of Law, The University of Melbourne Peter Horbury, Coordinator, Welfare Rights Unit (Victoria) Sally Weston, Barrister and Solicitor of the Supreme Court of Victoria Samantha Burchell, Executive Director, Public Interest Law Clearing House Sue Coleman, Support and Accommodation Rights Service Sue Hogan, Partnership and Links Coordinator, Urban Seed Tamara Walsh, Lecturer of Law, Queensland University of Technology Tom Muller, Policy Officer, Australian Federation of Homelessness Organisations Tony McCosker, Executive Manager of Homeless Services, St Vincent de Paul  This definition is used to determine eligibility for federal and state funded transitional supported accommodation and related support services.  CESCR, CESCR General Comment 4: The Right to Adequate Housing, [7], UN Doc E/1992/23 (1992).  Peter Cullen and Carol Ann Marshall (eds), Voices of the Streets (1999) 69.  Ian Charles, A Roof Over Your Head Doesnt Guarantee the Safety of a Home (2002) 2 Urban Seed 2, 2.  Peter Cullen and Carol Ann Marshall (eds), Voices of the Streets (1999) 2.  Chris Chamberlain and David MacKenzie, Understanding Contemporary Homelessness: Issues of Definition and Meaning (1992) 27 Australian Journal of Social Issues 274; Chris Chamberlain, Counting the Homeless: Implications for Policy Development (Occasional Paper, Australian Bureau of Statistics, 1999).  Chris Chamberlain, Counting the Homeless: Implications for Policy Development (Occasional Paper, Australian Bureau of Statistics, 1999) 911, 49.  Chris Chamberlain, Counting the Homeless: Implications for Policy Development (Occasional Paper, Australian Bureau of Statistics, 1999) 911, 49.  Chris Chamberlain, Counting the Homeless: Implications for Policy Development (Occasional Paper, Australian Bureau of Statistics, 1999) 1, 911, 13, 49; see also Chris Chamberlain and David MacKenzie, Understanding Contemporary Homelessness: Issues of Definition and Meaning (1992) 27 Australian Journal of Social Issues 274.  Chris Chamberlain, Counting the Homeless: Implications for Policy Development (Occasional Paper, Australian Bureau of Statistics, 1999) 34.  Chris Chamberlain, Counting the Homeless: Implications for Policy Development (Occasional Paper, Australian Bureau of Statistics, 1999) 2, 26. It is expected that the census figures from 2001 will disclose a higher incidence of homelessness in all categories.  See generally the Council to Homeless Persons symposium entitled The Changing Face and Causes of Homelessness: (2002) 15(9) Parity.  Examples include poverty, inadequate affordable housing, unemployment and an inability to earn a sufficient livelihood.  Some examples are economic reform, the availability of public housing, welfare expenditure, health services and education.  This includes: mental illness, disability or disorder; gambling, substance and alcohol addiction; domestic violence;, family fragmentation; and severe social dysfunction.  For instance, the provision of culturally inappropriate housing or support services to indigenous communities.  Opened for signature 16 December 1966, 999 UNTS 171 (entered into force generally 3 January 2025 and for Australia 10 March 2025).  CESCR, CESCR General Comment 6: The Economic, Social and Cultural Rights of Older Persons, [26], UN Doc E/1996/22 (1995).  ICESCR, art 11.  Gosselin v Quebec (A-G) (2002) 221 DLR (4th) 257 (Supreme Court of Canada); Francis Coralie Mullin v The Administrator, Union Territory of Delhi (1981) 68 All India Reporter SC 746 (Supreme Court of India); Shanti Star Builders v Narayan K Totama (1990) 1 SCC 520 (Supreme Court of India); Ahmedabad Municipal Corporation v Nawab Khan Gulab Khan (1997) 11 SCC 123 (Supreme Court of India); X v UK (1978) 14 DR 31 (European Commission on Human Rights); Oneryildiz v Turkey (No 48939/99) (18 June 2024) (European Court of Human Rights).  Gosselin v Quebec (A-G) (2002) 221 DLR (4th) 257, [376] (Arbour J dissenting); see also [141] (LHeureux-Dube J dissenting).  Green v Daniels (1977) 51 ALJR 463, 469 (Stephen J).  Michael Horn and Michelle Cook, A Question of Begging: A Study of the Extent and Nature of Begging in the City of Melbourne (Research Paper, Hanover Welfare Services, 2001) 14-15.  Australian Institute of Health and Welfare, Homeless People in SAAP: Data Collection Annual Report (2002).  CESCR, CESCR General Comment 3: The Nature of States Parties Obligations, UN Doc E/1991/23 (1990).  CESCR, CESCR General Comment 3: The Nature of States Parties Obligations, UN Doc E/1991/23 (1990).  Social Security Act pt 2.12, div 1(A)(C).  Social Security Act pt 2.12, div 1(C).  See generally Australian Council of Social Service, Breaching the Safety Net: The Harsh Impact of Social Security Penalties (2002). For a discussion of this issue in the US context, see Maria Foscarinis, Downward Spiral: Homelessness and its Criminalization (1996) 14 Yale Law and Policy Review 1, 15.  Social Security Act pt 2.12, div 1(F)(G).  Australian Council of Social Services, Breaching the Safety Net: The Harsh Impact of Social Security Penalties (2002) 223.  See, eg, the story of Aron: Australian Council of Social Services, Breaching the Safety Net: The Harsh Impact of Social Security Penalties (2002) 20. See also Gosselin (2002) 221 DLR (4th) 257 [373][377] (Arbour J dissenting).  Gosselin v Quebec (A-G) (2002) 221 DLR (4th) 257, [376] (Arbour J dissenting); see also [141] (LHeureuxDub J dissenting).  Gosselin v Quebec (A-G) (2002) 221 DLR (4th) 257, [376] (Arbour J dissenting); see also [141] (LHeureuxDub J dissenting).  Department of Human Services, Victoria, Victorian Homelessness Strategy: Executive Summary A Collaborative Approach to Improving Our Response to Homelessness (2002) 6.  Margaret Eberle et al, Homelessness Causes and Effects (2001), vol 3 The Costs of Homelessness in British Columbia, 29.  Dennis Culhane, Stephen Metraux and Trevor Hadley, The New York/New York Agreement Cost Study: The Impact of Supportive Housing on Services Use for Homeless Mentally Ill Individuals, Corporation for Supportive Housing (2001) 4.  Dennis Culhane, Stephen Metraux and Trevor Hadley, The New York/New York Agreement Cost Study: The Impact of Supportive Housing on Services Use for Homeless Mentally Ill Individuals, Corporation for Supportive Housing (2001) 1 (emphasis in original).  Department of Human Services, Victorian Homelessness Strategy: Executive Summary A Collaborative Approach to Improving Our Response to Homelessness (2002) 6. 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