Report on Government Services 2025

Social housing is subsidised rental housing provided by not-for-profit, non-government or government organisations to assist people who are unable to access suitable accommodation in the private rental market. Four forms of social housing are reported in this section.

Forms of social housing

• Public housing: dwellings owned (or leased) and managed by state and territory housing authorities. Public housing is generally accessed by people on low incomes and/or those in selected equity groups, and aims to provide a choice of housing location, physical type and management arrangements.
• State owned and managed Indigenous housing (SOMIH): dwellings owned and managed by state and territory housing authorities that are allocated only to Aboriginal and Torres Strait Islander tenants, including dwellings managed by government Indigenous housing agencies.
• Community housing: rental housing provided to low-to-moderate income households and/or those in selected equity groups, managed by community-based organisations that lease properties from government or have received a capital or recurrent subsidy from government. Community housing organisations typically receive some form of government assistance, such as direct funding for the provision of land and property, but a number of community housing organisations are entirely self-funded. The key terms section on the Explanatory materials tab provides further information on different models of community housing.
• Indigenous community housing (ICH): dwellings owned or leased and managed by ICH organisations and community councils. ICH models vary across jurisdictions and can also include dwellings funded, managed or registered by government. ICH organisations include community organisations such as resource agencies and land councils.

Crisis and transitional housing is another form of social housing but cannot be separately identified in this report. Some crisis and transitional housing may be indirectly reported as forms of social housing in this report.

From 1 July 2024, social housing is funded and delivered under the National Agreement on Social Housing and Homelessness (NASHH) and related Partnership Agreements between the Australian Government and state and territory governments. These services were previously funded under the National Housing and Homelessness Agreement (NHHA), and related Agreements. This section does not report on housing programs provided outside the NASHH (for example, those provided by the Department of Veterans’ Affairs or rental or home purchase assistance – the latter is discussed in sector overview G).

State and territory governments have primary responsibility for delivering social housing services either directly through public housing and SOMIH or through funding community housing providers. ICH is generally managed by ICH organisations (although some ICH dwellings are managed by state and territory housing authorities). State and territory governments assumed responsibility for administering ICH in urban and regional areas, however arrangements varied across jurisdictions.

State and territory government net recurrent expenditure on social housing was $5.4 billion in 2023-24, an increase of $0.4 billion from 2022-23. In 2023-24, this expenditure included $4.1 billion for public housing and $343.8 million for SOMIH (table 18.1). Australian Government funding for services under the NHHA and related agreements was $1.9 billion in 2023-24 (refer to table GA.1 in the Housing and Homelessness Sector Overview). State and territory government capital (non‑recurrent) expenditure for social housing was $4.0 billion in 2023-24 (table 18A.1).

Nationally at 30 June 2024, there were 407,940 households and 432,369 social housing dwellings (tenancy rental units for community housing) (figure 18.1). In addition, as at 30 June 2023 (latest available data), there were 18,530 households and 17,533 dwellings managed by government funded ICH organisations.

While the number of public housing households has decreased over the past decade (314,963 in 2015 to 286,227 in 2024), there has been an increase in the number of households in community housing, from 69,171 to 106,918 (table 18A.4). This in part reflects transfer of some public housing stock (management and/or title) to the community housing sector (table 18A.2), in line with government policy to expand the role of community housing in the provision of social and affordable housing.

Some forms of community housing allow tenants to participate in the management of their housing. Notwithstanding their common objectives, community housing programs vary within and across jurisdictions in their administration and the types of accommodation they provide. Refer to Key Terms in the Explanatory material tab for details on community housing models.

While state and territory governments have similar broad objectives for providing social housing, the emphasis each jurisdiction places on an individual objective differs depending on historical precedents and processes for interaction with community sector providers. Private housing markets also vary across jurisdictions. Accordingly, policy responses and associated forms of assistance vary across jurisdictions. When analysing performance information, it is important to consider the different levels and types of assistance provided in each jurisdiction, their different urban, regional and remote area concentrations (tables 18A.5–7), differences in eligibility criteria for housing assistance types and factors affecting waitlists. Some information on the context for public housing, SOMIH and community housing is provided in table 18.2.

Eligibility criteria for access to social housing

Eligibility criteria for social housing vary across social housing types and jurisdictions.

• Public housing – in most cases, jurisdictions require that applicants are Australian citizens or permanent residents and do not own or partially own residential property. All jurisdictions, except Victoria, require eligible applicants to reside in the respective state or territory. Most jurisdictions provide security of tenure after an initial probationary period and most jurisdictions have periodic reviews of eligibility (table 18.2).
• SOMIH – criteria are generally consistent with those for public housing once an applicant has been confirmed as Aboriginal and/or Torres Strait Islander. Terms of tenure for SOMIH are the same as those for public housing in most jurisdictions.
• Community housing – criteria are generally consistent with those for public housing in each jurisdiction.

a At 30 June. b na: Not available. c For further information, refer to state and territory government websites. d NSW: The first $5,000 of financial assets is exempt from assessment. Applicants under 18 years may be considered in certain circumstances. Shorter leases apply in particular circumstances. Tenancy review criteria: ongoing eligibility; disability, medical condition or permanent injury. Rent to income ratio is based on household size, type and gross assessable income e Vic: Income/other asset limits effective from 1 April 2024. Rent to income ratios: 25% of assessable primary income, 15% of Centrelink family payments (A) and (B) / Maintenance Payments. Higher asset limits apply where major disability modifications required. f Qld: Six month periodic tenancies apply in certain circumstances. Tenancy review policies include ongoing eligibility and a continuing need for the property. g WA: Higher income limits apply in the north west and remote areas. h SA: Income limits regularly updated based on SA Average Weekly Earnings (ABS data). Asset limits regularly updated based on Centrelink asset limits. Lease length based on compliance with conditions of tenancy and household circumstances. i Tas: Income and asset limits apply to new applicants and are updated regularly based on Low Income Health Care Card eligibility (most recently in March 2024). For an existing single adult tenant, limits are $84,067 (income) and $122,065 (assets), and are updated annually pursuant to the Residential Tenancy Regulations 2015. j ACT: Tenancy review: income exceeding $103,582 in consecutive years and sustainable in the longer term. Fixed term tenancies: tenants with poor tenancy history required to access support and follow additional tenancy terms for 12 months; tenancy termination is possible if terms not followed. k NT: The household asset limit applies to new applicants or existing tenants under 55 years. For existing tenants over 55 years, the limit is $289,137 (single, no dependants).

Source: State and territory governments (unpublished).

State owned and managed Indigenous Housing policy context

As for public housing with the following exceptions:

• NSW: Tenure ongoing for all tenants
• Tasmania: Aboriginal Tenancy Allocation Panels assist in culturally appropriate allocation of properties. Waitlists segmented by need (three segments)
• NT: dwellings are in Remote Communities, Town Camps and community living areas. Dwelling allocation is according to recommendations by local community Housing Reference Groups - applicants are prioritised according to need. Eligibility criteria include acceptance of the applicant as a permanent community resident. Income and other asset limits are not applicable. Rent to income ratio is 25% or less. Scheduled safety net tenancy review is based on income type(s).

Community housing policy context

As for public housing with the following exceptions:

• NSW: No tenure probation period; tenure is ongoing for all tenants. Rent to Income ratio is 25-30% for tenant and spouse/live–in partner (15% for FTB recipients), and 15% for other household members aged 18–20 years
• Victoria: Public housing eligibility criteria apply for community housing organisations (CHO) participating in the Victorian Housing Register. Other CHOs – rent to income ratio is 30% or less; minimum age, tenure and rent-setting policies are in accordance with their own policy, mission statement and vision
• Queensland: A tenure probation period may apply at CHO discretion. Tenure length and review based on ongoing need and eligibility
• WA: Higher income and asset limits apply for people living with disability and people aged over 60 years
• SA: Probationary tenure period – 12 months standard, up to 24 months. Fixed term tenure for up to 10 years
• Tasmania: Tenure settings vary according to CHO policy
• ACT: Additional eligibility criteria may apply according to the CHO’s target group (including disability status). Tenure is ongoing
• NT: policy information is not available.

Factors affecting waitlists

State and territory governments prioritise access to social housing in ways that generally reflect the urgent need to address homelessness and applicants’ inability to access appropriate private market accommodation (AIHW 2024a). All states and territories have adopted social housing waitlists that are integrated across public housing, SOMIH (where applicable) and community housing.

Time waited for social housing is impacted by the availability of suitable dwellings. Nationally at 30 June 2024, the proportion of rental stock occupied was 96.6% for public housing, 93.4% for SOMIH and 94.8% for community housing (tables 18A.10–12) – in 2023, 94.3% of total ICH rental stock was occupied (table 18A.13). Occupancy rates are influenced by tenancy turnover as well as by housing supply and demand – dwellings that have, for example, reached the end of their useful life may require major redevelopment or replacement before being allocated to a new household.

‘Turnaround time’ is the number of days taken to allocate a newly vacated dwelling (that is fit for occupation) to a new household. The average turnaround time for vacant public housing and SOMIH stock varied within and across jurisdictions and over time (tables 18A.14-15) – noting that data is not comparable or complete across jurisdictions.