Housing Markets and Housing Institutions: An International Comparison PDF
Preview Housing Markets and Housing Institutions: An International Comparison
HOUSING MARKETS AND HOUSING INSTITUTIONS: AN INTERNATIONAL COMPARISON HOUSING MARKETS AND HOUSING INSTITUTIONS: AN INTERNATIONAL COMPARISON Edited by Bjorn Harsman Stockholm Regional Planning Office John M. Quigley University of California, Berkeley .... " Springer Science+Business Media, LLC Library of Congress Cataloging.in·PubHcation Data Housing markets and housing institutions : an international comparison / edited by Bjorn Hw-sman and John M. Quigley. p. cm. Includes index. ISBN 978-94-010-5742-4 ISBN 978-94-011-3915-1 (eBook) DOI 10.1007/978-94-011-3915-1 1. Housing. 2. Housing policy. 3. Urban policy. I. Husman, Bjorn. II. Quigley, John M. HD7287.5.H66 1990 363.5-dc20 90-5290 CIP Copyright © 1991 by Springer Science+Business Media New York Originally published by Kluwer Academic Publishers in 1991 Softcover reprint of the hardcover 1st edition 1991 All rights reserved. No part of this publication may be reproduced, stored in a retrieval system or transmitted in any form orby any means, mechanical, photo-copying, recording, or otherwise, without the prior written permission of the publisher. Springer Science+Business Media, LLC . Printed on acid-free paper. CONTENTS Preface ................................................................................................................ ix Contributors ...................................................................................................... xi List of Tables .................................................................................................... xiii List of Figures ................................................................................................ xvii 1 Housing Markets and Housing Institutions in a Comparative Context Bjorn HArsman and John M. Quigley Introduction ................................................................................................ 1 Housing Is Peculiar .................................................................................... 2 Housing Policies Are Special .................................................................... 3 The Rationale of this Book ...................................................................... 10 Metropolitan Markets in National Economies ...................................... 11 A Taxonomy of Housing Policies ............................................................ 20 Conclusion ................................................................................................ 28 2 The Swedish Housing Market: Development and Institutional Setting Alex Anas, utf Jirlow, Bjorn HArsman, and Folke Snickars Introduction .............................................................................................. 31 The State, the Counties, and the Municipalities .................................... 32 Housing Policy .......................................................................................... 32 The Planning System ................................................................................ 34 Land Use and the Ownership, Supply, and Pricing of Land .................. 35 vi CONTENTS The Housing Stock, Housing Production, and the Building Sector ...... 37 Financing of New Construction and Modernization .............................. 47 Pricing, Rent Control, Rent Pooling, and Rent Negotiations .............. 51 The Public Queue: The Case of Greater Stockholm ............................ 53 Swapping, Black Markets, Mobility, and Household Formation .......... 55 Housing Allowances .................................................................................. 56 Housing and Income Tax .......................................................................... 57 Conclusions ................................................................................................ 59 3 The Finnish Housing Market: Structure, Institutions, and Policy Issues Christer Bengs and Heikki A. Loikkanen Introduction .............................................................................................. 63 Historical Background .............................................................................. 65 Urban Land ................................................................................................ 66 Administration of Housing and Urban Planning .................................... 73 Housing Production .................................................................................. 75 Development of the Dwelling Stock and Housing Finance .................. 81 Pricing of Housing .................................................................................... 91 Obtaining Shelter in the Helsinki Metropolitan Area .......................... 98 Mobility, Household Formation, and the Housing Market ................ 104 Housing Allowances ................................................................................ 107 Housing and the Income and Wealth Taxes ........................................ 108 Conclusions .............................................................................................. 109 4 The Functioning of the Housing Market in Amsterdam Leo van Wissen, Peter Nijkamp, and Annemarie Rima Introduction ............................................................................................ 113 An Institutional-Economic Framework ................................................ 114 The City of Amsterdam .......................................................................... 116 The Development of the Housing System ............................................ 116 Population, Housing, and Mobility in Amsterdam .............................. 128 The Planning System .............................................................................. 138 Pricing and Financing .............................................................................. 140 The Allocati()n of Households to Dwellings ........................................ 145 The Black Market: Squatting ................................................................ 151 Conclusions .............................................................................................. 152 CONTENTS vii 5 Housing in San Francisco: Shelter in the Market Economy John A. Hird, John M. Quigley, and Michael L. Wiseman Introduction ............................................................................................ 157 The San Francisco Bay Area .................................................................. 158 Federal and State Housing Policy .......................................................... 178 Regionalism and Localism in Bay Area Land Use and Development 195 Summary and Conclusions .................................................................... 203 6 Analysis oCthe Housing Sector, The Housing Market, and Housing Policy in the Budapest Metropolitan Area Sandor Kadas Introduction ............................................................................................ 207 The Budapest Metropolitan Area in the Settlement System of Hungary and Central Europe .......................................................... 208 Development of the Housing Sector in Budapest ................................ 213 Housing Quality and the Evolution of Financing ................................ 223 Conclusion .............................................................................................. 232 7 The Vienna Housing Market: Structure, Problems, and Policies E. Aufhauser, M.M. Fischer, and H. SchOnhofer Introduction ............................................................................................ 235 The Structure of the Housing Market in Metropolitan Vienna .......... 236 The Governmental Role in the Housing Market ................................ 266 Conclusion: Major Impacts of Housing Policies .................................. 277 8 Glasgow: From Mean City to Miles Better Andrew Gibb and Duncan Maclennan The Message and the Medium .............................................................. 283 Time's Arrow .......................................................................................... 286 New Pluralism .......................................................................................... 300 Remaking Council Housing .................................................................. 313 Conclusion .............................................................................................. 326 PREFACE International comparisons of economic institutions and government poli cies are fraught with difficulties. After1he selective barriers of language and culture are overcome, differences in programs and outcomes are far more subtle than those that can be revealed by highly aggregated national data. Rela tively "soft" comparisons are the norm in international comparative research. This is particularly true in comparative analyses of housing and the operation of housing markets. Housing markets are local or regional in character, and the effects of government programs on market outcomes depend upon important economic characteristics of the local environment. Moreover, the institutions that influence the production, distribution, and consumption of housing differ enormously across nations. The distribution of housing and the role of the market in provision depend upon historical and social factors as well. Aggregate national data are unlikely to allow for much depth in comparisons across societies. Yet in the absence of such comparisons, the very visibility of housing may lead to inadequate or erroneous generalizations. Photographs emphasing the aesthetics of ''well planned" housing agglomorations or urban slums are compelling. Documen tation that middle-class households must wait in a queue for a decade to be housed is notably less graphic. This book overcomes some of these difficulties by focusing upon single cities or metropolitan areas within national systems. Each of the chapters in this book presents a description and analysis of a national housing market and an analysis of the development of housing policy and outcomes in a particular metropolitan region. Neither the countries nor the metropolitan areas were selected randomly and thus the analyses and insights cannot be "representa tive" in a formal sense. However, a major premise of this book is that careful analysis of particular markets and outcomes is likely to be more fruitful than aggregate comparisons of national data provided by housing ministries or census officials. The book is presented, moreover, on the presumption that detailed analysis of the operation of government programs within given mar kets is more informative than a catalog or taxonomy of national policies. x PREFACE The countries selected for analysis include Austria, Finland, the Nether lands, Hungary, Sweden, the United Kingdom, and the United States; the metropolitan areas that form the bases oft he analyses include Vienna, Helsinki, Amsterdam, Budapest, Stockholm, Glasgow, and San Francisco. Each chapter was written by a group ofe conomists and economic geographers based in a uni versity in that city. Some care was taken to insure that each chapter described the historical development of national housing policy as well as the resources devoted to current programs. Each chapter also includes a detailed analysis of the spatial development of the major city, the operation of the housing market and the pattern of housing occupancy, and the principal institutions that affect the production and distribution of housing. Each group was also asked to provide some explicit evaluation of selected policies. Although each chapter covers all of these aspects, they vary substantially in organization and emphasis. This collaborative analysis grew out of a series of workshops sponsored by the International Institution for Applied Systems Analysis (IIASA) in Vienna during 1983 and 1984. These workshops were organized by Alee Anderson and BorjeJohansson, then of the IIASA staff. Subsequently, a conference was held in Stockholm, sponsored by Bo Wijmark of the Stockholm Regional Planning Office. Logistical support for this collaborative project has been provided by the Institute for International Studies, the Institute for Urban and Regional Development, and the Center for Real Estate and Urban Economics, all of the University of California, Berkeley. Layout and typeset was managed by David Norrgard at Berkeley'S Graduate School of Public Policy. Finally, the project could not have been completed without the financial assistance provided by the Swedish Council for Building Research. We are grateful to these individuals and institutions for support and encouragement. Bjorn Harsman John M. Quigley CONTRIBUTORS Alex Anas is Professor of Civil Engineering, Economics, and Industrial Engi neering at Northweste~ University. Elizabeth Aufhauser is a Researcher at the Institute for Geography, University of Vienna. Christer Bengs is Senior Research Scientist at the Technical Research Centre of Finland. Manfred M. Fischer is Professor of Economic Geography and Chairman of the Department Economic Geography at the Vienna University of Economics and Business Administration. Andrew Gibb is Director of Development at the University of Glasgow. Bjorn HIirsman is Research Director at the Stockholm Regional Planning Office and Professor of Regional Economic Planning at the Royal Institute of Technology, Stockholm. John A Hird is Assistant Professor of Political Science at the University of Massachusetts, Amherst. Ulf Jirlow is Director of Real Estate at the Stockholm Regional Planning Office. Sandor Kadas is Lecturer in Applied Mathematics at the Budapest University of Economics. Heikki A Loikkanen is Head of the Research Department at the Statistical Centre of Helsinki and Acting Professor of Economics at the University of Helsinki. Duncan Maclennan is Professor of Economics and Director of the Centre for Housing Research at the University of Glasgow. Peter Nijkamp is Professor of Spatial Economics at the Free University of Amsterdam. xii CONTRmUTORS John M. Quigley is Professor of Economics and Public Policy at the University of California, Berkeley. Annemarie Rima is Managing Director of the Tinbergen Institute of the Netherlands Research Institute and the Graduate School for General and Business Economics. Herta Schonhofer is a Researcher at the Austrian Institute of Regional Plan ning. Folke Snickars is Professor of Regional Planning at the Royal Institute of Technology, Stockholm. Leo van Wissen is Assistant Professor of Spatial Economics at the Free University of Amsterdam and Research Fellow at the Royal Netherlands Academy of Sciences. Michael L. Wiseman is Professor of Public Affairs, Urban and Regional Planning, and Economics at the University of Wisconsin-Madison.
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