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Social Housing in Europe II a Review of Policies and Outcomes Social Housing in Europe II A review of policies and outcomes Edited by Kathleen Scanlon and Christine Whitehead Published by LSE London, London School of Economics and Political Science Houghton Street, WC2A 2AE December 2008 ISBN 978-0-85328-313-3 Contents Preface 1. Introduction 5 Kathleen Scanlon This is the second book to be produced by a multidisciplinary group of housing experts that was set up as a result of an initiative by a number of French aca- Perspectives demics based at different Paris universities. The group was organised through 2. Histories of social housing: a comparative approach 15 the GIS Réseau Socio-Economie de l'Habitat network, which receives support Peter Malpass from the PUCA (Plan Urbain Construction Amenagement, the Research Office 3. Learning from histories: changes and path dependency in the social 31 of the Ministry of Capital Works and Housing). Since publication of the first book, housing sector in Austria, France and the Netherlands (1889 - 2008) Social Housing in Europe, the group has met three times. In November 2007 a Christoph Reinprecht, Claire Levy-Vroelant and Frank Wassenberg major international conference was organised in Paris, by the GIS. The papers 4. Social housing and private markets: from public economics to local 47 presented there, together with a great deal of further input by authors, form the housing markets basis for this text. Since then the group has met in Vienna and in Dublin to dis- Christian Tutin cuss a range of issues core to the continued development of social housing and will work further on issues of both principles and policy over the next year. We 5. Poverty, altruism and welfare: how national legal conceptions affect 63 allocation of social housing to the disadvantaged are extremely grateful for all those who have supported these meetings and for Jane Ball their interest in ensuring the work can continue. Transformation We would like to thank the authors of the reports for their hard work and patience 6. Financing social housing in Europe 83 and those who participated in our discussions, offering helpful comments and Christine Whitehead advice. They included Benoit Filippi, Hedvig Vestergaard and Darinka Czischke 7. Social rental housing and housing markets in France 95 as well as civil servants and other researchers who took part in one or more of Jean-Pierre Schaefer the meetings. 8. The privatization of social housing: Three different pathways 105 We are grateful to the Higher Education Innovation Fund (HEIF), which helped Mark Stephens, Marja Elsinga and Thomas Knorr-Siedow to fund this publication through the LSE London Research Centre and spon- 9. Innovations from below? A new concept for social housing in 131 sored a seminar bringing out the issues for large cities and notably London. We Germany are also grateful to the Department for Communities and Local Government Thomas Knorr-Siedow (CLG) for their continued interest and support in enabling the dissemination of our findings. We would like particularly to thank Gill Wedlake for all her help, and 10. Social housing in transitional countries: The case of Hungary 145 József Hegedüs Ben Kochan for putting up with the difficult timetable, designing the publication and bringing it to fruition. Regeneration 11. Urban regeneration in European social housing areas 163 Christiane Droste, Christine Lelevrier and Frank Wassenberg 12. Key players in urban renewal in the Netherlands 197 The cover photo is of the mixed tenure housing development at Crown Street, Glasgow Frank Wassenberg which has replaced1960s tower blocks. Credit: Urban Practitioners Social Housing in Europe II Social Housing in Europe II Impacts 1. Introduction 13. Housing the poor in Paris and Vienna: The changing understanding 209 of ‘social’ Christoph Reinprecht and Claire Levy-Vroelant Kathleen Scanlon, LSE London 14. Social housing and segregation in Sweden 225 Lena Magnusson Turner 15. Social housing privatisation in England 241 Alan Murie This book is a sequel to and builds on Social Housing in Europe, published in 2007 by LSE London. That first book was descriptive, and aimed to give an overview of the European policy social housing sector in nine European countries, in a format accessible to the non- 16. The impact of European Union rules on the definition of social 261 specialist. This second book explores in more depth some of the themes that housing emerged from the first. Like the first book, this publication was partly funded by the Nathalie Boccadoro UK’s Higher Education Innovation Fund, which aims to increase collaboration 17. Social housing as a service of general interest 271 between universities and practitioners. Laurent Ghékière Findings from Social Housing in Europe Overview 18. Drawing out the Issues 287 The first book sought to give an overview of the social housing sector in (mainly west- Douglas Robertson ern) Europe. It contained reports prepared by housing specialists in nine European 19. Postscript: implications for England 301 countries. These reports followed a common framework, and generally covered Christine Whitehead and Kathleen Scanlon • Tenure split and the supply of social housing in each country The Contributors 304 • Ownership of the social sector • Involvement of the private sector in social housing • Decision-making and rent-setting • Access to social housing • Provision of housing for the most vulnerable: ‘very social’ housing • Demographics and ethnicity in social housing In the countries studied – Austria, Denmark, England, France, Germany, Hungary, Ireland, the Netherlands and Sweden—social housing as a percentage of the hous- ing stock ranged from a high of 35% in the Netherlands to a low of 4% (after mass pri- vatisation) in Hungary. In most countries this percentage had fallen over the last ten years as the provision of social housing had not kept pace with overall building, and/or social units were privatised or demolished. In the last decade or so many countries 5 Social Housing in Europe II Social Housing in Europe II had seen a revival of interest in social housing, as it offered one way for governments In the tight housing markets that characterised most European countries in the first to meet the increasing overall demand for housing that stems from demographic and part of this decade, the gap between the usually inexpensive social rented sector and income pressures. So far, however, there had been no step change in the amount of an increasingly expensive owner-occupied sector widened. As a result there were money available for construction of new social housing. few affordable housing options for those households with incomes too high to qualify for social housing, but too low to pay for market housing. In the UK this is known as The profile of the social housing stock differed across countries, in terms of the age the ‘key worker’ problem, although it did not only affect public-sector workers. of units, the housing type, and the percentage located on estates. In many countries Countries where social housing did cater for employed households on reasonable the problems of social housing were almost synonymous with post-war industrially incomes were coming into conflict with the European Union, which held that govern- built estates. ment funds could only be used to subsidise housing for the poor. Social housing served different client groups in different countries—in some it was a The ‘very social’ sector, which offered temporary accommodation with little tenure tenure for the very poor, while in others it housed low-waged working families or even security, was growing in several countries. Housing associations and charities often the middle classes, while the very poor lived elsewhere. In a few countries the social played an important role. sector housed a wide range of income groups. Even so, it was generally true that the social sector accommodated a disproportionate number of single-parent families, the Themes elderly and the poor. Within each country there is an ongoing debate about social housing policy. These New social housing was generally being built on mixed-tenure sites. Efforts were also debates usually centre on the particular national experience, with little reference to being made to introduce greater tenure and social mix into existing stock, and to use developments even in neighbouring countries. But as Social Housing in Europe public assets more effectively. showed, the social housing sectors in all European countries are facing similar pres- sures: from immigration and demographic trends, from European regulation, from Several countries were exploring the potential for public/private partnership. This increased aspirations and the rise of owner-occupation. could mean that private finance funded provision by traditional social owners; less commonly, private developers themselves could become involved in operating social Discussions within the group of researchers that contributed to Social Housing in housing. Europe showed that there were several topic areas we wanted to investigate further that could contribute to the European discussion. This book thus looks again at social Housing providers and funding regimes varied by countries. In general, subsidies for housing in the same nine countries, but it is organised thematically rather than by social housing were becoming increasingly tightly targeted, partly because of country. The sections are entitled Perspectives - historical, economic and legal back- European Union rules. There were worries that this targeting was leading to further ground to social housing; Transformation - tenure change, innovative forms of social residualisation of the social stock; there was already concern about segregation in housing and shifts in financing; Regeneration - social housing and its role in urban many countries. renewal; Impacts - empirical work on the effects of particular social-housing policies Ethnic minorities lived disproportionately in social housing, often on large estates— in particular cities and European policy. Finally, there is an Overview. mainly because of poverty, household composition, and restricted access to other Historic, economic and legal backgrounds of European social housing tenures.
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