Restructuring NZ housing policy 1990-1998: an institutional analysis A thesis submitted in partial fulfilment of the requirements for the Degree of Master of Arts in Sociology in the University of Canterbury by Simon Campbell University of Canterbury 1999 HD ,A'6 19/ Acknowledgements The process of producing this thesis has been every bit as hard as the past experience of other students would indicate. Each step also took longer than I anticipated, meaning the complete process took much longer than it should have. To everyone who helped (and put up with) me along the way I owe a debt of gratitude. Firstly, thank you to all the people I interviewed for offering your time and expertise so graciously. Secondly, I would like to thank my supervisors, Geoff Fougere and Jane Higgins, for helping me overcome the intellectual and practical challenges of producing a thesis. They provided exactly the kind of supervision I needed and adapted their own commitments to fit my ever-expanding writing process. Thank you also to friends in the Sociology Department: Maria and Sam, Nicky, Bruce and Terry; whose cumulative efforts in academic and non-academic ways at different stages of my thesis prevented it becoming the emotionally traumatic experience I have witnessed in others. I also need to thank my colleagues in the community sector, particularly Helen, Jenny and Andrew, who helped me develop the knowledge base in housing policy that lies behind this thesis. Reflecting the total immersion experience a thesis seems to be for most people (baptism reference intended, both by fire and water), I can think of few specific people to thank outside my work and academic worlds. Hopefully a general 'thank-you' will suffice for all my friends and acquaintances who have had to put up with my indifference about their lives and constant claims of 'I have no life outside my thesis'. It wasn't strictly true but may as well have been. Finally, I want to formally acknowledge Nicola Armstrong and the positive difference her life made. 2 6 OCT 1999 Table of Contents Page ABSTRACT ....................•...•.•.........................................................•................................................................ 1 CHAPTER ONE INTRODUCTION ............................................................................................................................................ 2 INTRODUCTION .............................................................................................................................................. 2 RATIONALE FOR RESEARCH ............................................................................................................................ 3 Record of Events ........................................................................................................................................ 3 Theoretical Considerations ........................................................................................................................ 4 Housing's Contribution to Well-being ........................................................................................................ 4 1 Personal Involvement ................................................................................................................................ 5 liiSTORY OF NEW ZEALAND HOUSING POLICY ................................................................................................ 6 The Liberals .............................................................................................................................................. 6 First Labour Government .......................................................................................................................... 6 Housing as Welfare Policy ......................................................................................................................... 7 Housing and Macroeconomic Policy .......................................................................................................... 9 THEORETICAL CONTEXT ............................................................................................................................... 10 Neo-institutionalism ................................................................................................................................. ]] ARGUMENT SUMMARY ................................................................................................................................. 12 CHAPTER 0UTLINE ....................................................................................................................................... l4 CHAPTER TWO THEORY AND METHODS ...... ,.................................................................................................................. 16 INTRODUCTION ............................................................................................................................................ 16 BACKGROUND .............................................................................................................................................. l7 TRADITIONAL VIEWS .................................................................................................................................... 19 The State ................................................................................................................................................. 19 Social Policy ........................................................................................................................................... 21 INSTITUTIONAL APPROACHES ....................................................................................................................... 22 Policy Networks ....................................................................................................................................... 22 Neo-institutionalistn ................................................................................................................................. 23 Rational Choice lnstitutionalisrn .............................................................................................................. 26 Organisationallnstitutionalis1n ................................................................................................................. 26 Historical institutionalism ....................................................................................................................... 28 SOCIAL POLICY ............................................................................................................................................ 31 HousiNG ..................................................................................................................................................... 32 Housing Studies ....................................................................................................................................... 33 Vulnerability to Restructuring .................................................................................................................. 33 New Zealand Case ................................................................................................................................... 34 METHODOLOGY ........................................................................................................................................... 36 Work Experience ..................................................................................................................................... 37 Interviews ................................................................................................................................................ 39 Documentary Research ............................................................................................................................ 43 Analysis ................................................................................................................................................... 43 CONCLUSION .............................................................................................................................................. .44 CHAPTER THREE POLITICIANS .............................................................................................................................................. 45 INTRODUCTION ............................................................................................................................................ 45 BACKGROUND .............................................................................................................................................. 48 1980s....................................................................................................................................................... 48 1990 Election .......................................................................................................................................... 49 Economic and Social Initiative ................................................................................................................. 50 1991 Budget ........ ,................................................................................................................................... 51 JOHNLUXTON ........................................................................................ : ..................................................... 52 Beginning ...............................................................................................................................................