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Contents. Background:
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1. Convergent, divergent or just ours? Moving towards housing policy ownership in Northern Ireland
Jenny Muir
Housing Studies Association conference
York
14th - 16th April 2010
2. Contents Background:
Peace & the economic climate = public spending cuts, smaller state
Northern Ireland and UK devolution:
inextricably bound up with the peace process
Policy convergence or divergence under UK devolution:
Potentially relevant factors; policy ownership as an alternative approach
Housing policy developments since 1999:
Legislation, inquiries, policies and strategies
Current housing issues:
Housing governance
Tenure restructuring
Achieving greater efficiency in social housing provision
Housings contribution to a shared future
Conclusions
3. Background Devolution in NI: Good Friday/ Belfast Agreement 1998, St Andrews Agreement 2006, Agreement at Hillsborough Castle 2010
Peace :
Cuts potential: additional cost of providing security and duplicated services estimated as up to Ł1.5bn in 2004/05 - Ł24m for housing
Policy impact: equality emphasis, potential for shared services
But sectarian conflict hasnt gone away
The economy:
Unemployment up from 4.1% mid-2008 to 6.3% end of 2009
UK increase 5.4% to 7.8% in same period and Irish Republic now 13.3%
Highest level of economic inactivity in the UK
Whoever wins the election, there will be public sector spending cuts
NI economy more dependent on public sector than rest of UK
Peace & the economic climate = public spending cuts, smaller state
4. Northern Ireland and UK devolution NI process fraught and Assembly was suspended between 2002 and 2007 but the administrative structures remained: direct rule
Unique aspects of devolution in NI are:
NI had legislative devolution before: 1922 1972 and attempts to restart it in 1973, 1974 and 1982. Issues were power-sharing and role of Irish Government
It is inextricably bound up with the peace process (House of Commons Justice Committee, 2009: 10): GFA affirms commitment to exclusively democratic and peaceful means
Territorial issue being managed is which country to be part of rather than independence
The GFA was voted on in another country (Irish Republic) as well as in NI
The NI Executive consists of a mandatory cross-community coalition and Assembly decisions require cross-community support
5. Policy convergence or divergence under devolution contributory factors
6. Policy convergence or divergence or policy ownership? Convergence or divergence hotly debated
Appears more common in health and education (Birrell, 2009)
Influence of England now waning?
Very little divergence in housing policy except in Scotland
NI previous work has noted differences as:
No LSVT - but provision exists, just not used
Responses to community divisions e.g. allocations policy, community participation
Policy ownership as an alternative?
The appearance of distinctiveness may be achieved by assuming ownership of public policies, and branding them as policies designed to respond to and reflect the needs and priorities of the nation or region in question (McEwan, 2005: 539).
7. Housing policy developments since 1999 (1) Legislation:
Housing Support Services (Northern Ireland) Order 2002
Housing (Northern Ireland) Order 2003
Anti-social Behaviour (NI) Order 2004
Private Tenancies (Northern Ireland) Order 2006
Housing (Amendment) Order (Northern Ireland) 2006
Housing (Amendment) Bill (Northern Ireland) 2009, not yet law
Draft Regeneration and Housing Bill 2010 (consultation document)
Inquiries:
2001-02: NI Assembly Social Development Committee
2004: Housing of Commons NI Affairs Committee (social housing)
2006-07: Semple Inquiry into affordable housing
2009-10: Commission on the Future for Housing in Northern Ireland (CIH)
8. Housing policy developments since 1999 (2) Policy and strategy:
3 out of 4 inquiries have called for a comprehensive NI housing strategy
There are many strategies for specific areas e.g. Supporting People, empty homes, homelessness, procurement, private rented sector.
Authorship of strategy documents moving from NIHE to DSD
Programme for Government commitments:
2002 2005: commitment to decent, affordable housing and housing the homeless; housing section; links with other policies e.g. health, poverty
2008 2011: Public Service Agreement 12:
To promote decent, energy efficient, affordable housing and regenerate disadvantaged areas and towns and city centres, and support community development to create environments which enhance quality of life and contribute to well-being (NI Executive, 2008: 25)
Plus spending commitment of Ł925m for social and affordable housing, now unlikely to be met
9. Housing policy developments since 1999 (3) The New Housing Agenda (2008) - list of Ministerial priorities including:
At least 5,250 new units of social housing by 2011 (will be met)
Introduction of developer contributions to social and affordable housing
Changes to co-ownership and House Sales schemes
Further development of mixed community housing
A new Procurement Strategy to make 10% savings on construction costs
Code for Sustainable Housing, help with fuel poverty & energy efficiency
Nothing on special needs, homelessness, planning issues
Very little housing market analysis or strategic context
30 references: 9 are press releases, 6 refer to Assembly business
A new phase in NI housing policy? from technocratic domination to political leadership
Most not unique to NI but policy ownership?
10. Current housing issues (1): Housing governance Issues are co-ordination and accountability:
Housing Executive still manages around 90,000 homes also housing need assessment, new build programme, some private sector, housing advice, Supporting People
New build carried out by housing associations
Housing Executive no longer the regional strategic housing authority
Department for Social Development assuming more of the strategic role
Link with planning departments weak (Environment & Regional Dev.)
Housing largely unaffected by the Review of Public Administration but planning and regeneration will go to the new councils
Commission for the Future of Housing in NI has recommended a (temporary) Communities Unit
Democratic deficit in housing governance remains
Regulation uneven between HAs and Housing Executive
More scope to involve tenants in governance
11. Current housing issues (2): Tenure restructuring Tenure changes similar to rest of UK: owner occupation up slightly (flattening out?); social housing down; private rented sector up
Still 75% of social housing managed by the Housing Executive no stock transfer of any size, but legal provision exists
Housing waiting list increasing: 40,000 of which just over half in housing stress; 9,200 homeless acceptances, a slight fall
NIHE housing need calculation 2,500 new units p.a.
Housing market volatility: prices fell 32% 2005-06; 18% 2006-07; 30% 2007-08 more than elsewhere in UK
Decline in transactions, mortgage approvals and new build, NAMA
Policy response is:
Continue to promote home ownership including co-ownership
Commitment to social housing targets (HA new build)
Better regulation of private rented sector (increase in vulnerable tenants)
12. Current housing issues (3): Greater efficiency in social housing provision New procurement strategy, first year in operation:
Four procurement groups: 511 HAs in each
Mandatory for all NI HAs wanting funding from the Social Housing Development Programme (SHDP) currently 29
Aim is to cut costs by 10% - groups will contract with supply teams e.g. architects, surveyors, building contractors for 4 years
HAs continue to manage their own projects but do not select their contractors themselves contract for services from the supply teams
Procurement groups prioritise bids from their members and send them to the Housing Executive to be assessed
Eventually, procurement groups may have a wider purchasing function
Has co-incided with a number of regulation issues with HAs mergers and group structures under discussion
Code for Sustainable Homes: Level 3 mandatory, pilot projects at Level 4 and Level 5 design competition in progress
13. Current housing issues (4): Contribution to a shared future NIs social housing remains largely segregated
NIs Shared Future policy introduced in 2005, shelved in 2007, replacement by Cohesion, Sharing and Integration imminent, part of negotiation s in devolving policing and justice
Housing initiatives led by the Housing Executive:
2000: research set up template for shared housing schemes
2005: Community Cohesion strategy: flags & emblems; shared housing; race relations; interface areas; areas in transition
Shared housing (1): Shared Future Housing Programme (new schemes requires involvement of housing associations)
Shared housing (2): Shared Neighbourhood Programme (existing NIHE)
Both involve screening for suitability; community consultation; signing of Charter (good neighbour agreement)
High degree of policy ownership by Minister
14. Conclusions (1)
15. Conclusions (2)
16. Conclusions (3) Peace and the economic situation both point to cuts and a smaller state
NI devolution has been inextricably linked to the peace process and has been more difficult than in Scotland and Wales
The unique constitutional aspects of NI devolution have not had any effect on housing policy, which remains highly convergent with England
The most important factors contributing to convergence appear to be policy networks (both local and UK) and the mechanics of devolution, especially funding
Technocratic domination of housing policy and implementation being challenged by the New Housing Agenda
Policy ownership by the Minister is increasing start of a new era?