Housing associations, the creation of communities and power relations

Abstract

Drawing in particular on Nikolas Rose's writings on governmentality, this paper considers how housing associations' objective of creating and maintaining communities has structured both their own practices, and their relationships with local authorities. Using historical materials from the 1930s to the present, it argues that the discourse of community has now become a focus for asserting the independence of the housing association sector from control by the state. It begins by examining the period from the 1930s to 1960, when the marginal role of housing associations left them relatively free to define their own concepts of ‘community’, though with some contestation around the power of local authorities to nominate tenants. It then examines the 1960s and 1970s, when the increasing importance of the association sector in inner city renewal began a shift of emphasis towards providing housing on the basis of need. The paper moves on to consider the impact of rising homelessness in the 1980s, which led to the problematisation of housing association activity. The 1993 Page Report focused associations on their dependence on local authority definitions of housing need. It produced a ‘paradigm shift’ in the sector. Associations sought independence from local authority perceptions of housing need, moving towards policies of building communities that offered security to associations, lenders and occupiers

Keywords:

• governmentality
• community
• housing associations
• local authorities

Notes

James Tickell, Deputy Chief Executive of the National Housing Federation, in conversation, November 2002.

Abbreviated to OB and QB respectively in the endnotes.

Interview with John Coward, first Director of Notting Hill Housing Trust.

Official Bulletin 39, p. 2.

OB 39 (Sept 1946), p. 2.

The term used for the conversion and/or modernisation of existing properties, now referred to as ‘rehabilitation’ or ‘refurbishment’.

OB 38 (June 1946), p. 1.

Report of Maiden speech by Ronald Chamberlain: Hansard, 17 October 1945, col. 1240.

Ibid., col. 1241; describing an initiative by Merthyr Tydfil Corporation.

LCC Housing and Public Health Committee, 31 October 1934, LMA.

OB 39 (Sept 1946), p. 1.

In 1947 the Federation's Bulletin carried a notice of a proposed new Artist Housing Association, OB 42; and in the 1970s Boundary Road Housing Co‐op and Acme Housing Co‐op arose from the idea that artists had common needs (for workshop space alongside housing) and common interests (thanks to Anna Bowman for this information).

Irene Barclay speaking about St Pancras HS—QB 47, p. 7.

In common with a number of associations, the Square Building Trust, North Shields, set up by a Bible Class, established a nursery school for local children on land owned by the Trust and through donated labour: OB 47 (Sept 1948), pp. 12–13 and archives of the Trust.

Haywards Heath Housing Society: QB 47, p. 1B.

Alderman Pike, secretary of the NFHS: OB 2 (July 1936), p. 3.

First introduced by s 27, Housing Act 1935.

NFHS booklet designed as a guide for those thinking of setting up a society (1946), p. 11.

Letter from Co. Borough of Tynemouth to Secretary of Square Building Trust dated 17 November 1947; there is evidence on file of similar arrangements in place from 1942.

OB 39 (Sept 1946), p. 1.

For example, in the archives of Oxford Cottage Improvement Society Ltd, Oxford Corporation attempted to include a fair wages clause in its agreement with a local association. The association had resisted, replying that ‘tho’ there was no fair wages clause the rate of wages and the conditions of work were in accordance with local Trades Union rules'.: Minutes Book, Directors of Oxford Cottage Improvement Society, 30 July 1937.

With the exception of the large charitable trusts such as Peabody and Guinness who continued to have access to considerable charitable funds.

What follows is largely taken from interviews and conversations with John Coward and Ken Bartlett, who was the first Director of Paddington Churches Housing Association.

Shelter's funding switched into other activities when statutory funding came on stream.

John Coward's description of feelings at the time.

That existed where associations had to apply for Improvement Grants on the same basis as a private landlord.

In conversation with John Coward.

Interview with Ken Bartlett.

In discussion with John Coward

Interview with Tony Crook, 10 April 2003.

London Metropolitan Archives: GLC/DG/SCR/1/3—Housing Department Report to Chair of Scrutiny Committee.

LMA: GLC/DG/SCR/1/3—‘GLC response to the National Federation of Housing Associations’, report of September 1979 on Project Control.

Town and Country Planning Act 1990, s 106 as amended by Planning and Compensation Act 1991, s 12

Hutton quotes repossessions rising from 3,000 in 1980 to 75,000 by 1991

Ken Bartlett, 30 June 2003, p. 12

See NHF Annual Report 2002–2003:⟨www.housing.org.uk/information/aboutus/annual‐report.pdf.⟩.