Comparing housing policies and housing affordability consequences for low income households in ...

295 Pages·2003·1.46 MB·English

How different?
Comparing housing policies and housing affordability
consequences for low income households in Australia
and the Netherlands
How Different?
Comparing Housing Policies and Housing Affordability Consequences
for Low Income Households in Australia and the Netherlands
Hoe verschillend?
De vergelijking van volkshuisvestingsbeleid en betaalbaarheidsconsequenties
voor huishoudens met een laag inkomen in Australië en Nederland
(met een samenvatting in het Nederlands)
PROEFSCHRIFT
ter verkrijging van de graad van doctor
aan de Universiteit Utrecht
op gezag van
Rector Magnificus, Prof. Dr. W.H. Gispen
ingevolge het besluit van het College voor Promoties
in het openbaar te verdedigen op
dinsdag 3 Juni 2003 des middags te 12.45 uur.
door
Vivienne Rae Milligan
geboren op 25 oktober 1949 te Sydney, Australia
Promotoren: Prof. Dr. Frans Dieleman, Utrecht University
Prof. Dr. Judith Yates, University of Sydney
Prof. Dr. Ronald van Kempen, Utrecht University
Nederlandse Geografische Studies / Netherlands Geographical Studies
Redactie / Editorial Board
Prof. Dr. J.M.M. van Amersfoort
Dr. H.J.A. Berendsen
Drs. J.G. Borchert
Prof. Dr. A.O. Kouwenhoven
Prof. Dr. H. Scholten
Dr. P.C.J. Druijven
Plaatselijke Redacteuren / Associate Editors
Drs. J.G. Borchert,
Faculteit Ruimtelijke Wetenschappen Universiteit Utrecht
Dr. D.H. Drenth,
Faculteit Beleidswetenschappen Katholieke Universiteit Nijmegen
Drs. F.J.P.M. Kwaad,
Fysich-Geografisch en Bodemkundig Laboratorium Universiteit van Amsterdam
Dr. P.C.J. Druiven,
Faculteit der Ruimtelijke Wetenschapen Rijksuniversiteit Groningen
Dr. L. van der Laan,
Economisch-Geografisch Instituut Erasmus Universiteit Rotterdam
Dr J.A. van der Schee,
Centrum voor Educatieve Geografie Vrije Universiteit Amsterdam
Dr F. Thissen,
Instituut voor Sociale Geografie Universiteit van Amsterdam
Redactie-Adviseurs / Editorial Advisory Board
Prof. Dr. G.J. Ashworth, Prof. Dr. P.G.E.F. Augustinus, Prof. Dr. G.J. Borger,
Prof. Dr. J. Buursink, Prof. Dr. K. Bouwer, Dr. C. Cortie, Dr. J Floor,
Drs. J.D.H. Harten, Prof. Dr. G.A. Hoekveld, Dr. A.C. Imeson,
Prof. Dr. J.M.G. Kleinpenning, Dr. W.J. Meester, Prof. Dr. F.J. Ormeling,
Prof. Dr. H.F.L. Ottens, Dr. J. Sevink, Dr W.F. Sleegers,
T.Z. Smit, Drs. P.J.M. van Steen, Dr. J.J. Sterkenburg, Drs. H.A.W. van Vianen,
Prof. Dr. J. van Weesep
ISSN 0169-4839
Nederlandse Geografische Studies 318
How different?
Comparing housing policies and housing affordability
consequences for low income households
in Australia and the Netherlands
Vivienne Rae Milligan
Utrecht 2003
Koninklijk Nederlands Aardrijkskundig Genootschap/
Faculteit Ruimtelijke Wetenschappen, Universiteit Utrecht
The Urban and Regional research centre Utrecht (URU) in the Faculty of Geographical
Studies at Utrecht University and the Ryoichi Sasakawa Young Leaders Fellowship
Fund Program (SYLFF) provided financial assistance for this project and the publication
of this book.
Dutch translation of summary: Morag Torrance
Graphics, layout and cover photographs: Gary Milligan
ISBN 90-6809-356-8
Copyright Vivienne Milligan, Sydney, Australia, c/o Faculteit Ruimtelijke
Wetenschappen, Universiteit Utrecht, june 2003
All rights reserved. No part of this publication may be reproduced in any form, by print or
photocopy, microfilm or any other means, without written permission by the publishers.
Niets uit deze uitgave mag worden vermenigvuldigd en/of openbaar gemaakt door
middle van druk, fotokopie of op welke andere wijze dan ook zonder voorafgaande
schriftelijke toestemming van se uitgevers.
Printed in the Netherlands by Labor Grafimedia b.v - Utrecht
CONTENTS
List of tables 9
List of figures 11
Glossary of abbreviations 13
Preface and acknowledgements 15
1 INTRODUCTION.............................................................................................................................19
1.1 Research scope and purpose...................................................................................................19
1.1.1 The cases...................................................................................................................20
1.1.2 The period of analysis...............................................................................................20
1.1.3 The empirical focus...................................................................................................21
1.2 Research questions.................................................................................................................22
1.3 Comparative analysis.............................................................................................................22
1.3.1 The choice of case studies.........................................................................................23
1.3.2 Policy evaluation as the focus...................................................................................26
1.3.3 The method of analysis..............................................................................................27
1.3.4 Difficulties in making cross-national/cross-cultural comparisons.............................29
1.4 Structure of the report............................................................................................................31
2 THEORETICAL APPROACHES TO THE COMPARATIVE ANALYSIS OF HOUSING POLICY
AND ITS IMPACTS.........................................................................................................................34
2.1 Introduction and purpose.......................................................................................................34
2.2 The scope and development of housing studies.....................................................................34
2.2.1 Historical traditions and explanatory approaches......................................................34
2.2.2 Convergent and divergent traditions in comparative housing research.....................36
2.3 Approaches to analysing and differentiating housing policies...............................................41
2.3.1 Tenure analysis..........................................................................................................41
2.3.2 Logical possibilities of housing policy......................................................................42
2.3.3 State-centred analysis................................................................................................43
2.3.4 The regulation approach............................................................................................44
2.3.5 Summary...................................................................................................................45
2.4 Probing the links between policy, context and outcomes.......................................................46
2.4.1 Structures of housing provision.................................................................................46
2.4.2 Housing provision chain............................................................................................48
2.4.3 Links between housing and welfare..........................................................................48
2.4.4 Welfare regime analysis............................................................................................49
2.4.5 Unitary and dual rental systems................................................................................50
2.4.6 Other contributions relevant to this study..................................................................51
2.4.7 Evaluating housing outcomes....................................................................................53
2.5 Overview and directions for this research..............................................................................54
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3 A FRAMEWORK FOR USING HOUSING AFFORDABILITY IN THIS STUDY.......................57
3.1 Introduction............................................................................................................................57
3.2 The concept of housing affordability.....................................................................................57
3.3 Determinants of housing affordability...................................................................................57
3.3.1 Forces influencing the cost of housing......................................................................58
3.3.2 Forces influencing consumer demand and purchasing power...................................59
3.3.3 The organisation of the exchange (or allocation) of housing....................................61
3.4 Housing policy and housing affordability..............................................................................62
3.4.1 Direct subsidies.........................................................................................................63
3.4.2 Indirect subsidies.......................................................................................................64
3.4.3 Rules and regulations................................................................................................65
3.4.4 Non-market provision................................................................................................67
3.4.5 Overview of housing affordability issue and government responses........................67
3.5 Approaches to measuring housing affordability....................................................................68
3.6 Summary................................................................................................................................70
4 COMPARING HOUSING POLICY STRATEGIES IN AUSTRALIA AND THE
NETHERLANDS, 1945-1980...........................................................................................................72
4.1 Introduction............................................................................................................................72
4.2 The general context in comparative perspective....................................................................72
4.2.1 Demographic factors influencing the housing system...............................................72
4.2.2 Economic conditions.................................................................................................74
4.2.3 The political framework and political regimes after 1945.........................................77
4.2.4 The welfare system....................................................................................................78
4.2.5 Summary...................................................................................................................78
4.3 Subsidising the supply of new dwellings...............................................................................79
4.3.1 The initial response to the housing shortage in each country....................................79
4.3.2 Evolution and divergence in the role of housing supply subsidies............................81
4.3.3 The changing trajectory of supply-side interventions...............................................82
4.3.4 Supply-side subsidy design in the Netherlands.........................................................88
4.4 The influence of urban policies..............................................................................................89
4.4.1 Land supply policy in the Netherlands after 1945.....................................................89
4.4.2 Spatial planning policy in the Netherlands................................................................90
4.4.3 Urban policy influences in Australia after 1945........................................................91
4.4.4 Housing density in Australia.....................................................................................93
4.4.5 A note on Commonwealth involvement in urban policy in Australia.......................93
4.4.6 Overview of the relationship between urban policies and housing...........................95
4.5 The policy approach to the financing of housing investment.................................................95
4.5.1 Australia’s approach to the provision of finance for housing....................................96
4.5.2 The Netherlands’ approach to the provision of finance for housing.........................97
4.6 The regulatory framework for the delivery of housing services............................................98
4.6.1 Regulation of housing access in the Netherlands......................................................98
4.6.2 Regulation of access to housing in Australia.............................................................99
4.6.3 Rent regulation and rent setting in the Netherlands.................................................100
4.6.4 Rent regulation and rent setting in Australia...........................................................102
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4.6.5 Tenancy rights.........................................................................................................104
4.7 Income support for housing.................................................................................................105
4.7.1 The Australian model of rent assistance..................................................................105
4.7.2 The origins of the housing allowance in the Netherlands........................................106
4.8 Comparative overview of the housing policy regimes for the two cases.............................106
4.8.1 Total expenditure on housing assistance.................................................................107
4.8.2 Appraisal of similarities and differences in housing policy strategy 1945-1980.....108
5 COMPARING HOUSING POLICY STRATEGIES AFTER 1980...............................................115
5.1 Introduction..........................................................................................................................115
5.2 Comparing the changing economic, political and demographic context..............................115
5.2.1 Socio-demographic change.....................................................................................116
5.2.2 Impacts of economic restructuring..........................................................................117
5.2.3 Political, administrative and welfare changes.........................................................119
5.2.4 Overview.................................................................................................................121
5.3 Housing Policy and the housing supply after 1980..............................................................121
5.3.1 Housing production activity levels and supply-side subsidies................................122
5.3.2 Supply-side policy after 1980..................................................................................123
5.3.3 Overview.................................................................................................................128
5.4 Impact of land management and planning policy on the housing system after 1980...........129
5.4.1 Housing policy and new residential development in the Netherlands.....................129
5.4.2 Housing-related shifts in Australian urban planning policy....................................130
5.4.3 Directions in planning policy affecting housing in Australia..................................131
5.4.4 Urban Renewal Policy.............................................................................................133
5.5 Housing finance and tax policies.........................................................................................136
5.5.1 The impact of the deregulation of the financial sector and tax reform in Australia 137
5.5.2 Demise of direct assistance for home ownership in Australia.................................138
5.5.3 Fiscal policy and mortgage finance directions in the Netherlands..........................140
5.6 Changes in the housing delivery framework........................................................................141
5.6.1 Rent policy for social housing in Australia.............................................................141
5.6.2 Rent policy directions in the Netherlands................................................................142
5.6.3 Promotion of efficiency in housing allocations in the Netherlands.........................143
5.6.4 Management of access to public housing in Australia since the 1980s...................144
5.6.5 Policy directions relating to the sale of social housing............................................145
5.6.6 Evolution of institutional arrangements for the delivery of housing services.........147
5.6.7 Overview of changes in the delivery framework.....................................................149
5.7 Evolution and adaptation of housing-related income support schemes................................150
5.7.1 Development of the housing allowance system in Australia...................................151
5.7.2 Development of the housing allowance system in the Netherlands........................152
5.8 Overview of changing directions in housing policy.............................................................153
5.8.1 Comparison of expenditure trends...........................................................................153
5.8.2 Comparing the extent and direction of policy adjustments.....................................155
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6 COMPARING THE HOUSING CONDITIONS OF LOW INCOME HOUSEHOLDS IN
AUSTRALIA AND THE NETHERLANDS..................................................................................162
6.1 Introduction..........................................................................................................................162
6.2 The housing situation of low income households................................................................162
6.2.1 Who are the low income households?.....................................................................162
6.2.2 Housing tenure........................................................................................................163
6.2.3 Housing tenure and broad age group.......................................................................163
6.2.4 Changes in tenure....................................................................................................166
6.2.5 Quality of housing...................................................................................................168
6.3 Levels and patterns of housing affordability among low income households......................171
6.3.1 A note on measurement...........................................................................................171
6.3.2 Average affordability levels across the income distribution...................................171
6.3.3 Affordability patterns within the low income population........................................172
6.3.4 Affordability and housing subsidy in the rental sectors..........................................178
6.3.5 Impacts of the housing allowance systems on affordability outcomes....................179
6.3.6 The historic development of the affordability ratio.................................................184
6.4 The supply of affordable housing........................................................................................190
6.4.1 Trends in the housing supply in the Netherlands.....................................................191
6.4.2 Trends in the housing supply in Australia...............................................................193
6.4.3 Comparative summary of supply factors.................................................................195
6.5 The impact of housing costs on poverty...............................................................................196
6.5.1 Measuring housing-related poverty.........................................................................196
6.5.2 Overview of housing and poverty links in Australia...............................................197
6.5.3 Poverty and housing in the Netherlands..................................................................198
6.5.4 Housing affordability and homelessness: a brief comment.....................................199
6.5.5 Concluding comments on housing-related poverty and homelessness....................201
6.6 Overview of findings...........................................................................................................201
7 SYNTHESIS...................................................................................................................................207
7.1 Review of purpose and approach.........................................................................................207
7.2 Overview of key findings.....................................................................................................209
7.2.1 Similarity and convergence in the housing outcomes of low income households...209
7.2.2 Differences and divergent tendencies......................................................................210
7.2.3 A note on the relationship between housing policies and economic performance..211
7.3 How have housing policy settings contributed to these results?..........................................212
7.3.1 The short and long run impact of housing policies that favour home ownership....213
7.3.2 Urban policies and access to affordable housing.....................................................217
7.3.3 The role, capacity and organisation of social rental housing...................................219
7.3.4 Role and effectiveness of demand-side subsidies for renters..................................222
7.4 Some comments on the theoretical implications of the study..............................................223
7.5 Final remarks.......................................................................................................................225
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