Tenant Participation and Social Housing in the UK: Applying a Theoretical Model

Tenant participation is becoming an almost ubiquitous feature of the planning and provision of social housing. A range of opportunities has been (and is being) created by and for tenants to participate in the planning, provision and evaluation of housing services. Yet while local authorities and other social landlords may be keen to consult tenants, and tenants themselves often want to make their voices heard, there is a perennial problem in actually getting people involved. This paper provides a comprehensive framework for understanding this important question. It then reports on recent research that applies the framework in two different contexts: tenants' associations and tenant management organisations. The implications for housing policy and practice are discussed.     

Tenant Participation in the Netherlands: The Role of Laws,Covenants and (Power) Positions

This paper looks at what is pursued and achieved by formalised tenant participation in the Netherlands, and at the main factors influencing the participation process and outcome. An evaluative examination of a participation agreement, drawn up by a Rotterdam housing association and its tenants, and the implementation of this agreement illustrates the field of friction between what is written and what is done. The paper argues that the notion of power as embedded in structuration theory is important to the understanding of the process and outcome of tenant participation. The case study shows that it is difficult to fulfil the high ambition of co-operating in equality when positions are structurally different, even when the actors have formally agreed to do so. In crucial issues, the actors' own motives prevail and the distribution of power is decisive. In the studied case, tenants' successes were achieved only on less controversial issues. Nevertheless, formalised participation provides an added value to the outcome for all actors, including the weaker ones. Having to talk to each other about policy and carrying out the procedures in itself offer an important learning process valuable to both. Furthermore, the cyclic nature of formalised tenant participation offers recursive opportunities to influence the decision-making culture, which can gradually lead to rewarding improvements in both the process and the outcome.     

Proud to be a Tenant: The Construction of Common Cause Among Residents in Social Housing

This paper demonstrates the assemblage of a distinctive body of combative beliefs among social housing tenants in England engaged in formal participation with their landlords. Applying the social movement diagnostic of frame analysis, the paper identifies three ‘collective identity frames’ that signify the construction of common cause among a diverse and fragmented tenant population. These frames celebrate social housing as a public good, promote grass-roots decision-making and advocate direct democracy to public services. They champion local knowledge and local services and articulate a commitment to collective action and collective provision that opposes itself to the individualising discourse of the market. Although a lack of unity characterises the organisation of social housing tenants, this assemblage of contentious claims may signify the continuation of narratives of a tenants' movement and indicate the cautious mobilisation of a distinctive ‘counter-discourse’ in housing policy.     

Reconciling Policy Tensions on the Frontlines of Indigenous Housing Provision in Australia: Reflexivity,Resistance and Hybridity

In Australia, significant recent reforms reposition Indigenous housing provision and management in remote and town camp communities under the mainstream public housing model. Two competing discourses surround this shift: a federal discourse of standardisation and state discourses of local responsiveness centred on the introduction of new community engagement processes into Indigenous public housing. This paper reports on qualitative research into the micro-scale of policy implementation to highlight policy-to-practice translation on the frontlines of Indigenous housing. Based on interviews with Indigenous housing stakeholders, this paper argues the capacity to support locally responsive housing management is problematic under the current arrangements. The analytical framework of realist governmentality reveals frontline housing professionals' role in the local resolution of tensions between federal and state policy levers. A focus on agent reflexivity and resistance on the frontline assists in capturing the dynamic (hybrid) identity of Indigenous public housing, as an atypical Australian example of hybridity in social housing.     

Approaches to Tenant Participation in the English Local Authority Sector

This paper examines how approaches to tenant participation evolved in the English local authority housing sector in the 1990s. It does so by examining data gleaned from two national studies of tenant participation activity conducted by teams based at Glasgow and Sheffield Hallam universities, with particular attention focusing on data derived from nine case studies undertaken as part of the latter study. In order to facilitate this analysis, reference is made to Cairncross et al.'s typology of approaches to tenant participation which identified three ideal types of authority: traditional, consumerist and citizenship. The paper notes that the approaches local authorities took to tenant participation changed in the 1990s with more adopting multi-dimensional approaches, which made the neat categorisation of authorities into ideal types impossible. The characteristics of the two most commonly occurring types, traditional and consumerist, appeared to have changed.     

Social Housing Management,Governance and Delivery in Ireland: Ten Years of Reform on Seven Estates

This paper examines developments in social housing management, governance and delivery in the Republic of Ireland during the last decade, using evidence from two rounds of research conducted in 1997 and 2007 on seven social rented estates, located in a variety of regions. Among the three most significant developments in this regard, the reconceptualisation of the housing management function has had the most positive impact on the views of tenants. Some aspects of the externalisation of social housing provision, such as the growth of the housing association sector and the use of PPP arrangements for social housing regeneration, have also been positive, but the future of this externalisation agenda is uncertain. The impact of the various reforms to the management of the social housing service, such as advent of strategic policy making and performance monitoring, has been uneven in some cases and uniformly low in others.     

The Governance of Mandated Partnerships: The Case of Social Housing Procurement

Partnership working is nowadays a seemingly ubiquitous aspect of the management and delivery of public services, yet there remain major differences of opinion about how they best work for the different stakeholders they involve. The balances between mandate and trust, and between hard and soft power, are crucial to current debates about public service partnerships. This paper explores the example of social housing procurement in Northern Ireland, and the requirement to form mandated procurement groups. The research shows that the exercise of hierarchical power is still important in network governance; that mandated partnerships alter the balance between trust and power in partnership working, but the impact is uneven; and that these relationships are (re)shaping the ‘hybrid’ identity of housing associations. The balance between accountability for public resources and the independence of third sector organisations is the key tension in mandated partnerships. The Northern Ireland experience suggests that trust-based networks could provide more productive working relationships in partnerships for service delivery.     

大城市住房保障政策的效用分析

目前,中国的大城市及特大城市正面临着巨大的保障性住房供给压力,促使各级政府不断地在住房保障政策上进行尝试与革新。然而,并非所有的政策都行之有效。基于这样的现实问题,本文以福利经济学的视角,分析并评价了在不同供给模式以及区位条件组合下,住房保障政策的市场供需绩效及利益分配绩效。提出只有将保障性住房政策纳入一个空间资源配置政策体系中,才有可能实现住房保障政策的效应最大化。     

Resident Participation in Housing Regeneration in France

The involvement of local residents in housing regeneration policy and practice has become a ‘new orthodoxy’ across Western Europe. This paper considers the experience of France, a country noted for its history of ‘third sector’ activism and innovative practice in, for example, neighbourhood management. It is argued here that—notwithstanding three decades of central government rhetoric and exhortation—there remain few examples of genuine involvement of residents in formal regeneration decision-making processes at a local level in France (especially in respect of strategic issues). There exists a ‘participation deficit’. This paper explores this phenomenon empirically through case studies of housing regeneration in Lyon, Marseille and Mantes la Jolie. It also seeks to explain the ‘participation deficit’, drawing a distinction between those factors that are pan-European and those that are particularly French, not least the apparent resilience of representative democracy.     

Affordable Housing Plans in London and New York: Between Marketplace and Social Mix

The article reviews and critically analyzes contemporary housing policies and plans in London and New York in the context of neoliberal urban governance. In both cities, we find severe housing affordability problems, an increasing dependence on market provision of affordable housing, and a gradual shift from supporting low- and moderate-income residents to promoting housing for households around and above the median income. Affordable housing plans in both cities also link their “marketplace” orientation to “social mix” objectives. The article addresses some socio-spatial implications of these plans and raises concerns regarding the implementation and unintended consequences of mixed-income housing. The conclusion discusses ideas and tools for more equitable affordable housing policies. Finally, we suggest that our analysis of the policy trends in London and New York and the implications we draw may be relevant to other global and globalizing cities, which face similar affordability concerns and rely on the marketplace to address housing needs.     

DIY Home Improvements in a Post-Soviet Housing Market: A Socio-Spatial Analysis of Vilnius,Lithuania

As part of the Large Analysis and Review of European housing and health Status (LARES), the WHO collected data in eight European cities during 2001 and 2002. Using this data, the paper analyses home-related ‘do-it-yourself (DIY)’ activities in Vilnius, Lithuania where housing was privatized following the collapse of Communism. The paper investigates whether DIY activities were prevalent near the ‘Old Town’ where officials encouraged renovation. It was found that overall, DIY activities were prevalent among households in 2001–2002 regardless of socio-economic status. However, residents of particular housing types were not more likely to engage in DIY activities nor was DIY activity associated with condition of buildings and open spaces between buildings. Nonetheless, perceptions of neighborhood quality were important in explaining DIY activity. The findings also show that DIY activity was no greater in/near the gentrifying city center than elsewhere. Interviews with Vilnius officials suggest several aspects of the local household or neighborhood environment not captured by the survey that help explain study findings.     

Social Mix Discourse and Local Resistance to Social Housing: The Case of the Nation Building Economic Stimulus Plan,Australia

In response to the Global Financial Crisis of 2007–2009, the Australian government introduced the Nation Building Economic Stimulus Plan. Central to the plan was the allocation of AU$5 billion to the construction of 19 000 new social housing dwellings. The construction was seen by the Australian government to be a way of stimulating the economy and adding to the social housing sector. While social housing construction was supported by the not-for-profit sector and academics, a number of localised disputes arose. This article traces the ways in which the discourse of social mix was mobilised by residents to resist social housing construction. Simultaneously, the discourse of social mix was used to position residents as supporters of social housing, while actively seeking to resist new construction in their neighbourhood, which was positioned as running counter to the ideals embedded within the discourse. In promoting the perceived benefits embedded within the discourse of social mix, residents mobilised a complex resistance strategy that worked to destabilise claims of self-interest and NIMBYism.     

The Dynamics of Policy-Making under UK Devolution: Social Housing in Northern Ireland

Housing policy formation under the United Kingdom's devolution settlement is currently under-researched and insufficiently understood. This article uses the example of social housing policy-making in Northern Ireland to reflect on its impact. Five factors with the potential to influence post-devolution policy-making are identified: common UK citizenship and ideology, policy networks, the political process, the mechanics of devolution and membership of the European Union. A post-devolution review of social housing policy in Northern Ireland is followed by a discussion of three key issues from the 2007 to 2011 administration: governance, procurement of new social housing, and ‘shared space’ and a shared future. Interviews with policy-makers indicate that 2007–2011 marked the beginnings of a trend away from the technocratic domination of officials towards greater intervention and policy ownership by politicians, but that the significance of this should not be overstated. The implications for multi-level and multi-jurisdictional policy-making in devolved and federal states are considered.     

Delivering Social Housing: Examining the Nexus between Social Housing and Democratic Planning

The construction of social housing in gentrifying neighbourhoods can ignite contestation, revealing tensions between economic imperatives, social policy and neighbourhood change. With a view to understanding how the convergence of these agendas preserve unpopular, but socially critical housing infrastructure, the aim of this paper is to explore how the challenges social housing implementation encounters across these agendas intersect with a broader agenda for local democratic planning. Using social housing as our empirical focus and directing attention to the gentrifying local government area of Port Phillip in Victoria, Australia, this paper reveals how a council’s main asset to support implementation – its policy frameworks – creates an urban narrative of social inclusivity and diversity. Through this case, we illustrate how elected officials and some residents draw from these policies to interject into episodes of community contestation, which we argue presents opportunities to expose and renew commitments to social housing over space and time.     

Conceptualising Social Housing within the Wider Housing Market: A Vacancy Chain Model

There have been increasing calls for studies of housing systems that are more integrative and pluralistic in nature. Understanding the relationship of social housing systems to the wider housing market remains a key challenge. The mobility of households and the structural configuration of supply are both of importance, demanding methods able to reconcile both. This paper propounds vacancy chain models as offering significant potential in this regard, allowing policy analysis and options appraisal to be built on more dynamic conceptualisations of housing systems. The theoretical basis for vacancy chain models is developed before an account is given of a model developed of the Bradford (UK) social rented sector. The results suggest that social renting is very closely linked to the wider housing market and consequently the impacts of policy and investment may be felt beyond the sector. Observations on the future development of vacancy chain models are offered.     

Hidden from History? Housing Studies,the Perpetual Present and the Case of Social Housing in Britain

This paper examines the use and abuse of historical method in the field of housing studies, with specific reference to predictions about the future shape of social housing in Britain. It reflects on the debates about council housing in the early 1990s and sets these against subsequent policy developments. The paper suggests that this exercise reveals some shortcomings in dominant paradigms within housing studies, such as the misreading and misrepresentation of tenants' responses and reactions; the over-emphasis on consumption in assessing processes of housing sector change; the neglect of increasing spatial differentiation in housing markets across Britain; and the failure to appreciate the causes behind increasing volatility in some local housing markets. The paper argues for a more nuanced historical sensibility and a more adventurous methodology when forecasting the future direction of housing policies and the future characteristics of housing systems.     

Governance of Relocation: An Examination of Residential Relocation Processes in Housing Market Renewal Areas in England

This paper examines governance processes shaping the experiences of neighbourhood restructuring-induced residential relocation in Housing Market Renewal (HMR) areas in England. Since the 1950s and 1960s, residential relocation has been examined as a matter of social and political debate, especially in gentrification studies focusing mainly on negative residential relocation outcomes long after the process was over. This paper argues that such a focus had led researchers to ignore subtle, practical dimensions of relocation delivery and the causal relationships between these and often very diverse relocation experiences. Based on the HMR case, the study shows that residential relocation in a differentiated polity is delivered by complex networks of actors and that residential relocation outcomes are the result of cooperation or non-cooperation of network members. Key innovation rests in devising a theoretical vehicle that shows how governance has a profound impact on relocation delivery and residential relocation experiences.     

Social Networks in Public and Community Housing: The Impact on Employment Outcomes

This article seeks to examine some of the ways in which social networks may contribute to employment outcomes for community and public housing tenants. There is a body of literature that explores the relationship between social networks and employment outcomes, and a separate literature on the relationship between housing and social networks (which is largely concerned with homeowners). However, there has been little research that links all three aspects, especially in relation to social housing. This provides a starting point for this research, which involved interviews with housing organisation staff and focus groups with tenants in two case study areas in metropolitan Adelaide, South Australia. This article reports on the findings through examining the way in which housing tenure may affect social network formation, and considering the ways that these networks can impact on job attainment. It is concluded that, overall, those in community housing appeared to fare better, in terms of employment-conducive networks, than those in public housing. This finding is related not just to the management of the housing, but also to the broader issues of stigma, area-level deprivation and intergenerational unemployment.     

Transforming Australia's Social Housing: Pointers from the British Stock Transfer Experience

The expanding provision of affordable housing by non-profit community housing organisations, coupled with possibilities of substantial stock transfer from State Housing Authorities, suggest Australia's social housing sector may be entering a transformative phase. Based on a review of restructuring in Britain, where over the last 25 years, traditionally owned and managed ‘council housing’ has been reduced from over 90 per cent to less than 30 per cent of overall social housing stock, this article considers possible policy implications for Australia. In particular, it analyses British experience which could inform Australian decisions on organisational size, institutional vehicles and governance structures within the context of the future programme of stock transfers envisaged by many commentators on the Australian housing scene.