Networks and fault lines: Understanding the role of housing associations in neighbourhood regeneration: A network governance perspective

Abstract

This study aims to increase our understanding of the role of social housing organisations in neighbourhood regeneration governance networks, in order to enhance the performance and outcomes of these networks. Our understanding of how governance networks work is still limited, especially concerning the role of non-state actors like housing associations. Hierarchical government steering is increasingly mixed with market mechanisms and networked forms of decision-making. These shifts in governance often result in more complex decision-making that can easily lead to deadlocks, low-quality outcomes and ambiguous anchorage of democratic principles. Neighbourhood regeneration takes place in rather exceptional governance networks. The organisations involved, and the problems at hand, are place-based. Actors, like housing associations, local authorities and community organisations, are more or less 'locked' into the regeneration network and need to collaborate in order to solve the problems. The complexity of neighbourhood renewal processes is often very high, due to the large number of actors involved, and the combination of insufficient housing quality, lack of affordability and supply, along with social and economic problems that need to be addressed. Housing associations focus on the delivery of affordable decent quality housing; but, in many countries - like the Netherlands and England-these organisations also have an important role in neighbourhood regeneration. Housing associations are non-profit organisations that provide housing for low and moderate-income households. They operate largely autonomously from the government, although they are often strongly regulated and dependent on government subsidies. Housing associations in England and the Netherlands share many organisational characteristics and hybrid third-sector values emerging from the need to balance social and economic objectives. They have largely similar tasks and responsibilities, but work in very divergent contexts. This study devotes careful atention to the contingencies of time and place of decisionmaking in order to regenerate insights that are also relevant outside the case-study areas. Therefore, this study places Dutch and English housing associations in their respective political economies, welfare regimes and rental housing systems. The study also highlights the ambiguous position-between state, market, and society-of housing associations Neighbourhood regeneration evolved from slum clearance and complete area redevelopment in the 1950s and 1960s, towards more integral place-based approaches-in the 1970s and 1980s-with a stronger emphasis on improving the existing housing stock and involving local communities. The nature of the involvement of housing associations in neighbourhood regeneration has changed over time in response to government policies, public opinion, their own strategies, and the strategies of their umbrella organisations. In both England and the Netherlands, their increasingly prominent role-especially after the start of the new millennium-was driven by pressures on housing associations to take a leading role in neighbourhood regeneration.