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Blackwell Publishing AsiaMelbourne, AustraliaAJRAustralian Journal of Rural Health1038-52822006 National Rural Health

Alliance Inc.? 2006145178183Original ArticleHOUSING AND HEALTH IN INDIGENOUS COMMUNITIESR. S. BAILIE AND K. J. WAYTE

Aust. J. Rural Health (2006) 14, 178–183

Original Article
Housing and health in Indigenous communities: Key issues for
housing and health improvement in remote Aboriginal and
Torres Strait Islander communities
Ross S. Bailie and Kayli J. Wayte
Menzies School of Health Research, Casuarina, Northern Territory, Australia

Abstract This paper discusses some key issues for housing and
health improvement in remote Aboriginal and Torres
Indigenous people living in remote communities face Strait Islander communities in the context of the con-
some particular difficulties with regard to housing and temporary international understanding of the relation-
its impact on their health. This paper reviews the con- ship between housing and health.
temporary international understanding of the relation-
ship between housing and health, the history of
settlement and housing conditions in remote Aboriginal A brief historical perspective
and Torres Strait Islander communities, and some of The history of colonisation, the processes of disposses-
the recent initiatives to improve housing in these sion, and the creation of reserves and resettlement that
communities. occurred with the establishment of missions, cattle sta-
KEY WORDS: housing, Indigenous health, remote tions and mines is widely recognised as having had a
communities. major impact on the lifestyles and health of Australia’s
Indigenous people. Dispossession and resettlement dis-
rupted established social systems.3 Indigenous people
Introduction were excluded from their familiar country, and notions
The importance of living conditions, and specifically of private property were forced on people who had a
housing, or ‘shelter’, has been recognised for centuries communal view of space and place.3 A number of writ-
as a fundamental requirement for health.1,2 The nature ers have described the historical and ongoing impor-
of the benefits and risks of housing to health is diverse, tance of the connection that Indigenous Australians
and may be related to the availability of housing, the have with their land. Lack of recognition of Indigenous
specifics of housing design and construction, the condi- people’s property rights has led to a loss of control over
tion of the house and surrounds, and to settlement their lives and living environments, and the poor health
design. While many of the threats to health of poor status of the Indigenous people has been described as
housing are common to other disadvantaged groups, the being fundamentally related to this loss of control and
history of colonisation and the relationship of Indige- subsequent social disruption.4
nous people to their land add to the significance of
housing conditions as a determinant of health for Indig- Housing conditions and the expected
enous Australians. The vastness of the Australian con-
contribution to ill-health for
tinent, the relatively high proportion of Indigenous
people living outside the major cities and towns, and the
Indigenous Australians
small size and isolation of many communities make The inadequacy of housing for Indigenous Australians
issues of housing particularly acute in rural and remote has been widely acknowledged.5–12 ‘Adequacy’ of hous-
communities. ing includes quality of basic services, materials, facilities
and infrastructure; habitability; affordability; accessibil-
Correspondence: Professor Kayli Wayte, Menzies School of
ity; legal security of tenure; and location and cultural
Health Research, PO Box 41096, Casuarina, Northern Terri- adequacy.1 Housing may affect health through both
tory 0810, Australia. Email: kayli.wayte@menzies.edu.au direct and indirect ways. Direct influences include the
Contribution of authors: Ross Bailie wrote this article, with effect of the material conditions of housing on physical
successive feedback and modification done by Kayli Wayte. health and the effect of the associated social conditions
Accepted for publication 22 May 2006. on mental health and well-being. Housing has an

© 2006 The Authors


Journal Compilation © 2006 National Rural Health Alliance Inc. doi: 10.1111/j.1440-1584.2006.00804.x
HOUSING AND HEALTH IN INDIGENOUS COMMUNITIES 179

indirect influence on health, at both the individual and were overcrowded compared with approximately 4% in
neighbourhood or group level, by being an important non-remote areas. In some remote communities, the
component of general socioeconomic status and influ- number of people per house has been reported to be as
encing access to services (Fig. 1).1 The interrelationships high as 33.10 The excessive number of people in a house
between these mechanisms mean that they operate puts strain on a range of household facilities, and can
together, and that they are generally associated with be an important contributor to the poor state of infra-
other negative social and economic influences. structure in many dwellings, and a major limiting factor
The health problems faced by remote communities in conducting ‘healthy living practices’.9
can be broadly grouped into three interrelated catego- Crowded housing conditions facilitate the spread
ries: infectious diseases; problems resulting from social of a number of common infectious and parasitic
disruption and despair; and ‘lifestyle-related’ diseases conditions. Recurrent and chronic infections contribute
resulting from poor nutrition, lack of exercise and emo- generally to poor growth and development, and exacer-
tional stress.13 The quality of housing impacts on all bations of chronic disease. Important examples of these
these three categories. Infectious diseases have the great- infectious and parasitic conditions are bacterial ear
est impact on Aboriginal children and are directly infections and scabies skin infestation. These in turn can
related to factors such as inadequate water supplies, lead to hearing impairment and consequent learning
washing facilities, sanitation and overcrowding. difficulties, and renal and heart diseases. Tuberculosis is
another disease of poverty and overcrowding15 that has
largely been controlled in Australia, but which contin-
Crowding and ‘overcrowding’ ues to occur in remote Indigenous communities.16
Indigenous households tend to be larger than non- Crowded conditions have been associated with
Indigenous households, with the average size of an poorer self-reported mental and physical health.1,17 The
Indigenous household being 3.5 people compared with social stress associated with overcrowding is likely to be
2.6 for Australia overall.14 In 2005, the Australian an aggravating factor in physical and mental illness in
Bureau of Statistics (ABS) reported that households in many situations. This social stress associated with
Indigenous or community housing tended to be larger, crowding is also expected to be an important contribu-
with an average of 4.7 people compared with 3.4 for tor to high rates of domestic violence.
Indigenous home owners. ‘Overcrowding’ is defined by Furthermore, crowded conditions are likely to exac-
the ABS according to a standard that specifies the num- erbate the range of health effects of environmental
ber of bedrooms required in a dwelling based on the tobacco smoke – an issue of particular concern for child
number, age, sex and interrelationships of household health given the high rates of smoking in the Indigenous
members.14 Based on this standard, in 2002, 6% of adult population.14 Smoking and crowding are among
Indigenous households were identified as being over- a range of factors that may increase risk of house fires
crowded. In remote areas, almost 20% of households and the associated risk of injury and death.1

Direct Indirect

Individual/household level Area level


Hard/ Indicator Availability of services
Physical/ (and part of) facilities;
Damp, cold,
SES- features of the
Material heat, mould,
income, wealth natural and
Effects homelssness,
crowding built environment
Proximity to
services,
facilities

Soft/ Effect of
Household and area
poor housing,
Social/ culture and behaviours
insecurity and debt
Meaningful on mental health
Community,
Effects Feeling of ‘home’, social capital and
social status, and FIGURE 1: Direct and indirect ways in
social fragmentation
ontological security which housing can affect health (adapted
from Shaw1). SES, socioeconomic status.

© 2006 The Authors


Journal Compilation © 2006 National Rural Health Alliance Inc.
180 R. S. BAILIE AND K. J. WAYTE

Quality of housing infrastructure grams.14 In 2001, almost one-third (32%) of permanent


dwellings in discrete Indigenous communities required
Much of the work on housing in remote Indigenous major repairs or replacement.22 Structural deficiencies
communities in Australia is built around the nine present risk of injury and exposure to heat, cold, dust
‘healthy living practices’ that emerged from work in and insects. These exposures increase risks of heart,
Central Australia in the mid-1980s (Box 1). Being able respiratory, eye and insect-borne diseases and skin infec-
to carry out these practices effectively is dependent on tions.18 Structural deficiencies may also limit privacy,
functioning household infrastructure.8,18 interfere with personal hygiene behaviours and increase
Evidence on the extent of the poor state of housing social stresses, all of which may have a variety of con-
infrastructure on a broad and reasonably comparable sequences for health and well-being.
scale has only recently begun to become available.14,18,19 The lack of reliable and safe power supplies is also a
Surveys of Indigenous communities in the Northern barrier to good health through a number of ways –
Territory (NT) in 1999 showed that the amenities exposure to excessive cold or heat, and lack of hot water
required for a number of the healthy living practices for washing, a safe fuel source for cooking, and good
were functioning adequately in only 38% to 68% of lighting for a range of domestic activities, including
surveyed houses.19 While adequate knowledge and studying. Almost two-thirds of permanent dwellings in
appropriate behaviour are critical requirements for discrete Indigenous communities rely on community
good domestic hygiene,20 the extent to which hygiene (58%) or domestic (2%) generators, or some form of
can be maintained is clearly limited by the availability solar power (3%).22 Community power supplies are
of functioning infrastructure. subject to relatively frequent interruptions, and the use
The effective and safe removal of human waste, and of power by many households is limited by lack of funds
the provision of an adequate and safe water supply for for purchasing electricity.
washing, drinking and cooking have long been recogn-
ised as essential to health and have been key factors in
improvements in health in developed countries. Five of
the nine healthy living practices are to some extent
Housing tenure, housing assistance
dependent on water supply. Water supplies are deficient and housing affordability
in many Indigenous communities, and many households A range of factors may contribute to an association
lack adequate facilities for washing people and between housing tenure and health.1,23 Owning rather
clothes.14,21 Sewerage infrastructure is also inadequate than renting may confer ontological security – a sense
and is subject to frequent breakdown and leakages.21 of security, control and mastery – which in turn may
These factors are barriers to good domestic hygiene, have flow on effects to health and well-being.1
including hand washing with soap and toilet training of Home ownership provides the most secure form of
young children. Failure to dispose safely of human faeces housing tenure. In only 30% of Indigenous households
contributes to high rates of gastroenteritis and parasitic was the house owned or being purchased by the resi-
conditions, which are in turn also important factors in dents (compared with 70% for all Australian house-
malnutrition and decreased resistance to infection. holds), and in only one-third of these was the home
There are major structural problems in many (58 100 owned outright.14 There is some evidence that there has
(35%)) households, most commonly (55%) in house- been an increase over the past decade in the percentage
holds in Indigenous or community housing rental pro- of Indigenous households where the home is being pur-
chased by the residents.
Patterns of home ownership and rental vary by loca-
BOX 1: The nine ‘Healthy Living Practices’ 18 tion. The proportion of home owners and private rent-
ers is highest in Victoria, New South Wales and
1. Washing people
Queensland, and lowest in the NT.14 In discrete Indige-
2. Washing clothes and bedding
nous communities in the NT, dwellings are generally
3. Removing waste safely
owned by the community, and opportunities for home
4. Improving nutrition: the ability to store, prepare and
ownership are limited. Correspondingly, the NT has the
cook food
highest proportion of people (48%) living in Indigenous
5. Reducing crowding
or community housing. Western and South Australia
6. Reducing negative contact between people and
have relatively high proportions of people renting from
animals, insects and vermin
state housing authorities. Among Indigenous house-
7. Reducing dust
holds in remote areas of Australia, two-thirds (67%) are
8. Controlling the temperature of the living environment
renting Indigenous or community housing (50%) or
9. Reducing trauma
public housing (17%).14

© 2006 The Authors


Journal Compilation © 2006 National Rural Health Alliance Inc.
HOUSING AND HEALTH IN INDIGENOUS COMMUNITIES 181

Homelessness ment of Family and Community Services has taken


over Commonwealth responsibility for Indigenous
Homeless people tend to have poor health,1 and housing.27 In the states, territories and regions, multi-
homelessness may be regarded as being at the extreme agency Indigenous Coordination Centres (ICC) have
of housing disadvantage. While health problems been established, managed by the Office of Indigenous
might predate or contribute to becoming homeless, Policy Coordination (within the Department of
many of the negative health impacts of poor housing Immigration and Multicultural and Indigenous
referred to above can be expected to be more severe Affairs). It is intended that the ICC will work with
for homeless people. Furthermore, the lack of a regu- regional networks of representative Indigenous organi-
lar place of residence may itself be a significant bar- sations to ensure that local needs and priorities are
rier to employment and regular access to health and understood. Nationally, there are 23 regional and
social services.23 remote, and seven urban ICC.27 Thus, governance
A number of recent publications have recognised that arrangements for Indigenous housing have been frag-
‘home’ may have a different meaning14 and the concept mented and unstable.
of ‘homelessness’ may differ for Indigenous people com-
pared with the general Australian population.24,25 These
differences may relate to different values and beliefs,
Initiatives to improve housing
spiritual connection with the land and the transition
from a traditional lifestyle. Some Indigenous people
conditions in remote
choose not to live in conventional ‘homes’ for extended Indigenous communities
periods, and may not regard themselves as ‘homeless’. In recent decades, there have been a number of
Memmott et al. have described these people as ‘public initiatives that have aimed to address the challenges of
place dwellers’.24 They also describe ‘spiritual homeless- Indigenous housing. These have included:
ness’, which may not necessarily be associated with a • High-level policy and strategy statements, for exam-
lack of conventional housing.24 However, higher levels ple the National Aboriginal Health Strategy of
of mobility associated with living in remote regions and 198911 and the national housing minister’s statement
the need to access services or to attend to cultural obli- on Building a Better Future: Indigenous Housing to
gations, and higher levels of poverty, lack of housing 2010 (Box 2)28
and the associated lack of access to adequate temporary • Infrastructure funding programs, for example the
accommodation mean that Indigenous people are Health Infrastructure Priorities Projects and the
more likely to be in emergency, temporary or no National Environmental Health Strategy
accommodation. • Information initiatives, for example the Northern
Rates of homelessness among Indigenous people in Territory Environmental Health Survey,19 the Com-
2001 ranged from 92 per 10 000 in Tasmania to 344 munity Housing and Infrastructure Needs
per 10 000 in the NT. Rates for Indigenous people were Survey,22,29 and the National Reporting Framework
between 30% and 500% higher than non-Indigenous for Building a Better Future30
people.26 • Building and maintenance programs, for example
Fixing Houses for Better Health31 and a number of
Governance and management of state- and territory-based programs
• Building standards and guidelines, for example the
Indigenous housing programs
National Indigenous Housing Guide,18 and the
There are two main forms of social housing specific to National Framework for the Design, Construction
Indigenous people: and Maintenance of Indigenous Housing32
• State-owned and managed Indigenous housing • Innovative governance and funding arrangements,
(SOMIH), which is managed by state governments for example ATSIC and the Indigenous Housing
with funding provided by State–Commonwealth Authority of the Northern Territory33
Housing Agreements. • Workforce programs, for example Aboriginal Envi-
• Indigenous community housing (ICH), which is ronmental Health Worker and Healthy Housing
managed by Indigenous community housing Worker Programs34
organisations (ICHO) with funding provided • Homemaker or home management programs
by both the states and territories and the designed to enhance the ability of households to
Commonwealth. maximise the social and health benefits of housing.35
With the abolishment of the Aboriginal and Torres The initiatives in the last area have been particularly
Strait Islander Commission (ATSIC) and Aboriginal insubstantial. Other initiatives appear to have had vary-
and Torres Strait Islander Services (ATSIS), the Depart- ing levels of success, but few of them have been formally

© 2006 The Authors


Journal Compilation © 2006 National Rural Health Alliance Inc.
182 R. S. BAILIE AND K. J. WAYTE

BOX 2: Desired outcomes from the new directions for Indigenous housing: 28

• Better housing: housing that meets agreed standards is appropriate to the needs of Aboriginal and Torres Strait Islander
people, and contributes to their health and well-being;
• Better housing services: services that are well managed and sustainable;
• More housing: growth in the number of houses to address both the backlog of Indigenous housing needs and emerging
needs of a growing Indigenous population;
• Improved partnerships: ensuring that Indigenous people are fully involved in the planning, decision-making and delivery of
services by governments;
• Greater effectiveness and efficiency: ensuring that assistance is properly directed to meeting objectives, and that resources
are being used to best advantage;
• Improved performance linked to accountability: program performance reporting based on national data collection systems
and good information management; and
• Coordination of services: a ‘whole of government’ approach that ensures greater coordination of housing and housing-
related services linked to improved health and well-being outcomes.

evaluated, and the undeveloped state of housing infor- Conclusion


mation systems has failed to provide a clear picture of
progress. There have been some significant efforts made to
improve the housing situation in Indigenous communi-
ties, but these appear to have suffered from fragmenta-
Housing and health research tion and instability. There is some evidence of a longer-
Recent reviews of the literature highlight that the quality term more strategic approach being taken through the
of evidence linking housing to health effects is generally Building Better Futures initiative. However, the undevel-
poor.1,2,36 Few intervention studies, and even fewer with oped state of information systems will continue to limit
designs adequate to control for confounding, have been the understanding of the extent to which housing pro-
completed. Methodological difficulties and political grams can and are achieving their objectives. While
obstacles are the reasons cited for these deficiencies.36 housing has been the focus of some attention, there is
It is increasingly recognised that broad generalisations clearly a need for dynamic political leadership and an
about the links between deprivation and health are of increase in resources and capacity at local levels.
limited value in informing social policy decisions, and
there is an associated need for more and better research
in this area.1,23,36,37 Evidence of the effectiveness and
Acknowledgements
cost-effectiveness of interventions is important, and in The first author’s work in this area is funded by a
many sectors there is increasing commitment to using National Health and Medical Research Council
good evidence to inform policy decisions. Fellowship, grant #283303.
The methodological limitations of the research to date
make it difficult to specify the nature or size of potential
health gains of improved housing, and to determine References
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© 2006 The Authors


Journal Compilation © 2006 National Rural Health Alliance Inc.

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