Rooming houses
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A rooming house is a building – other than a SDA enrolled dwelling – in which there are one or more rooms available for rent, and at least four people live in the building (RT Act s 3(1)). The most common and distinct characteristic of a rooming house is that the people living in the rooming house have no control over who occupies the rooms in the house. Residents of the same rooming house usually have separate rental agreements and separate bonds.
Nothing in the RT Act (s 3(4)) prevents a rooming house from being more than one building (see Boroondara CC v Dugdale (Includes Summary) (Red Dot) [2015] VCAT 721 (14 May 2015); Studio Homes Victoria Pty Ltd v Brimbank CC [2022] VCAT 1371 (1 December 2022)).
Note that some rooming houses are ‘gazetted’. This means that regardless of the number of occupants and rooms, the premises is treated as a rooming house for the purposes of the RT Act (ss 3(1), 19). Gazetted rooming houses are usually owned by community housing operators. To check if a rooming house is gazetted, visit www.gazette.vic.gov.au and select the RT Act in the advanced search option.
People whose primary residence is in a hotel or motel continuously for 60 days or longer may also be covered by the rooming house provisions (see RT Act s 20).
There are still numerous unregistered and unlicensed rooming houses. People living in an unregistered rooming house have done nothing wrong, but they should seek legal advice.
People using Centrepay to pay rent should make sure that Centrepay is cancelled and consider not using Centrepay until they are satisfied the rooming house is suitable for them. This will avoid any issues in obtaining refunds for rent paid in advance.
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The Rooming House Operators Act 2016 (Vic) (‘RHO Act’) came into effect on 24 April 2017. Under the RHO Act, rooming house operators must be licensed (s 7), and rooming house operators (including managers) must satisfy a fit and proper person test (s 18). Not complying with the RHO Act can result in penalties of up to $10 000, conditions being attached to a rooming house licence, and licence disqualification or cancellation.
Rooming houses must display – in a conspicuous place inside the rooming house’s front entrance – their licence (including any conditions imposed by VCAT) (RHO Act s 39). Also, the business licensing registrar must publish online key information about each licensee (s 44).
VCAT may make protective orders to limit the adverse effects of non-compliance by operators on residents if an operator is disciplined for non-compliance (RHO Act s 34).
A rental agreement or residency right does not terminate automatically because of the cancellation or failure to renew a licence (RHO Act s 38; RT Act ss 91O, 142Q). However, see sections 91ZZL, 91ZZM, 142ZQ and 142 ZR of the RT Act, which provide that a 120-day Notice to Vacate may be given in certain circumstances.
The operator (or manager as applicable) must report if they cease to be a fit and proper person within 14 days of becoming aware they are no longer a fit and proper person (s 21 RHO Act), or if there are any changes to the operator’s or manager’s details (s 22). In most circumstances, it is an offence to allow a disqualified or unfit person to continue to be an officer or manager of a rooming house (s 27).
As a result of the RHO Act, any prescribed forms (e.g. Breach of Duty Notices or Notices to Vacate) should contain information about the identity of a rooming house’s managers and appointed officers. If a manager or operator is not licensed, this information should be provided to CAV so it can bring a prosecution (RHO Act ss 7, 8).
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Rooming houses are prescribed accommodation under the Public Health and Wellbeing Prescribed Accommodation Regulations 2020 (Vic), which provide minimum standards (regs 11–23) regarding the:
number of people who can be accommodated in one room;
minimum room size;
maintenance and cleanliness of the rooms and common areas;
supply and quality of hot, cold and drinking water;
discharge of sewage and wastewater;
provision of vermin-proof refuse receptacles;
number of toilets and bathrooms per person;
register of occupants; and
advertisement or sign that the premises is registered or approved.
A rooming house must be registered with its local council. It is an offence to not register a rooming house, and to not comply with any of the minimum standards. Local government authorities, normally Environment Health Officers, can investigate breaches.
A rooming house owner must also ensure that rooms, services and common areas comply with the minimum standards set out in the Residential Tenancies (Rooming House Standards) Regulations 2023 (Vic) (RT Act s 120A). Note, the regulations also set out additional standards from 26 February 2024. The standards outline detailed minimum standards for amenity in rooming houses relating to privacy, security and safety.
According to these standards a room must have:
a door that is operated by a key from the outside and able to be unlocked from the inside without a key (reg 7);
at least two working electrical power outlets available for use in addition to any outlets already used to power amenities provided by the rooming house operator (reg 8);
window coverings on all windows that can be opened and closed by the resident and give the resident privacy (reg 9);
a shared bathroom or toilet fitted with a privacy bolt or catch that can be securely latched from inside without use of a key and is install by a suitably qualified person (unless the costs or other laws may it prohibitory) (reg 11);
a number of chairs equal to the maximum number of residents, and a table that can comfortably fit those chairs (reg 13);
a communal laundry trough with a continuous and adequate supply of hot and cold water, with a space next to the trough for a washing machine, and outlets for hot and cold water, and a clothes lines or other drying facilities (reg 14). From 26 February 2024 the operator must provide the above facilities and a working washing machine for every 12 residents or fewer based on the maximum number of residents that the rooming house can accommodate;
adequate ventilation for rooms, bathrooms, showers, toilets and a laundry (reg 18); and
adequate lighting for rooms, hallways and corridors that is appropriate for those areas (reg 19).
In addition, any external windows of the rooming house that can be opened must be able to be securely fixed in a closed or open position without a key and having a functioning latch to prevent external entry (reg 24).
A rooming house must provide in either the residents’ rooms or a common area:
a food preparation area (reg 12(a));
a sink (reg 12(b));
one oven that is in good working order in each room or in a common area for every 12 residents or the maximum capacity of residents in the rooming house, whichever is less (reg 12(c));
a cooktop that is in good working order in each room, or a cooktop with at least four burners that is in good working order in a common area, for every 12 residents or the maximum capacity of residents in the rooming house, whichever is less (reg 12(d));
a fridge with minimum gross capacity of 80 litres in each room, or 400 litres in a common area for every four residents or fewer (who don’t have a fridge in their room) and an additional 28.5 litres for each person based on the maximum number of people the rooming house can accommodation (reg 12(e)); and
not less than one cupboard of 0.1 cubic metres for each resident, and this cupboard must be lockable if located in the common area (reg 12(f)).
A rooming house must:
at least once every two years, have a gas safety check of all gas installations and fittings performed by a licensed gas fitter (reg 20), and keep a register of the gas fitters who have performed the check (reg 28);
at least once every five years, have an electrical safety check by a licensed electrician of all electrical installations and fittings at the rooming house (reg 21), and keep a register of the electrician who have performed the check (reg 29);
have a compliant electrical safety switch and switch board (reg 17); and
have a lock fitted to each entrance that is operated by a key from the outside and can be unlocked from the inside without a key, and each entry must have a window, peephole or intercom and adequate lighting to allow screening of visitors and safe access to the rooming house (reg 25).
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CAV may also independently investigate a rooming house without the need for a complaint or application by a rooming house resident, if they deem it appropriate. Investigations may be conducted where there is a possible breach of duty of the RT Act or of the Minimum Standards (s 131A). A written report must be provided to any resident and rooming house operator affected by any breach or failure to comply.
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From 29 March 2021, a resident (or a proposed resident) and a rooming house operator may enter into a fixed-term residency agreement. If they do, the agreement must be in writing and must be in the prescribed form (s 93A(2)).
In most cases, any other agreements in relation to a room in a rooming house are not considered to be rental agreements covered by Part 2 of the RT Act (s 94) (see ‘Rooming house residents’, above), where an exception applies for self-contained apartments within rooming houses. This has significant implications for lease breaking of fixed-term residency agreements, as liability is more limited than in rental agreements (s 142W; cf s 211A(3)). Liability for breaking fixed-term residency agreements appears to be limited to 14 days after vacating the rooming house (s 142X(2)). This is yet to be confirmed by a published decision.
The RT Act is silent on how fixed-term residency and tenancy agreements made before 29 March 2021 are to be treated with respect to early termination and Notices of Intention to Vacate (ss 142X, 142W).
Rooming house agreements may contain additional terms. Like rental agreements, residency agreements that include terms that are inconsistent with the RT Act, or are harsh and unconscionable (RT Act ss 94A–94AE), or are prohibited terms (RT Act s 94AD; RT Regulations reg 39), may be of no effect. Residents may apply to VCAT to challenge terms and rules that are thought to be invalid.
Residents living in self-contained apartments may wish to seek advice before signing a fixed-term residency agreement (RT Act ss 18, 94(1)).
Rooming houses
Chapter: 6.1: Tenancy
Contributor: Ben Cording, Lawyer, Tenants Victoria
Current as of: 1 September 2024
Law Handbook Page: 433
Next Section: Rent
