Housing and Cohesion in England David Robinson

1. Housing and Cohesion in EnglandDavid Robinson Centre for Regional Economic and Social Research Sheffield Hallam University HSA Annual Conference, Housing and Cohesion, York, 2-4 April 2008

2. The Cohesion Agenda A political project informing the public policy response to a range of challenges in contemporary society, that seeks to resolve social problems through the reconstitution and (re)invigoration of community.

3. .....employed to explain and rationalise the response to a diversity of problems: Islamic terrorism 'problems' of immigration inter-ethnic tensions and conflict concentrations of worklessness educational underachievement drug use and crime gang violence anti-social behaviour

4. Overview roots of the agenda � political communitarianism and the new politics of community housing and cohesion � diagnosis and response a few concerns .... and some challenges for research

5. The Roots of the Agenda Political Communitarianism of the 1990s bought into the pessimism of urban theorists blamed left and right for the social malaise need to rebalance the emphasis in politics away from the individual and toward the interests of society community relations regarded as essential component of identity and means to achieving personal well-being cooperative participation in community can unite people around shared values

6. Four Versions of Communitarianism (Delanty, 2006)

7. Political Communitarianism of New Labour

8. policies, politics and, to a certain extent, social contexts are downplayed in favour of a theory that seeks to describe a range of conflicts and tensions through a perception of the lack of core values. (Burnett, 2007)

9. The New Politics of Community Towns and cities increasingly consist of socially cohesive but divided neighbourhoods. Problems arise when.... internally cohesive, segregated communities nurture a culture that asserts values and alliances at odds with the dominant moral order OR the mainstays of community governance collapse and the void is filled by values and practices at odds with accepted norms of behaviour

10. Political project identifying valued forms of community devising policies designed to promote and protect such communities where they exist reconfiguring community forms that stray from this ideal Result = very particular scope, focus and geography of problem recognition

11. Housing and Cohesion Housing policy and provision = major determinant of the shape of communities Informs: settlement patterns and associated spatial polarisation and segregation and residential segregation can allow alternative cultures to flourish and undermine social disharmony therefore....

12. Housing policy and provision is part of the problem fostering and reinforcing separation .... and can be part of the solution mechanism for reconstituting local communities (through provision and access)

13. Example 1: Housing and Community Cohesion The official story line of the 2001 disturbances: different ethnic groups are living �parallel lives� borne out of physical separation which leads to social isolation and limited cross-cultural contact and allows misunderstanding and suspicion to flourish and can lead to inter-community tensions and violence This physical separation is the consequence of: the self-segregating tendencies of certain ethnic groups housing policy and provision

14. concentrations of people from one ethnic background in certain areas of housing, and their separation from other groups living in adjacent areas has contributed greatly to intercommunity tensions and conflict (Home Office, 2001, p.22) The impact of housing policies on community cohesion seems to have escaped serious consideration to date � However, this is clearly a major determinant of the shape of communities and will have profound implications on the relationship between different races and cultures (Independent Review Team, 2001, p.42) The segregated nature of society in Oldham is at the heart of the town�s problems, and that begins with housing. (Oldham Independent Review Panel, 2001, p.16)

15. Example 2: Housing and Worklessness rising level of employment, falling unemployment worklessness increasingly concentrated in certain household types, groups and communities 160,000 concentrations of worklessness in England (SEU, 2004) Rising concentrations of worklessness have led to the emergence of communities in which worklessness is no longer the exception, but the norm. Households that have experienced generations of unemployment often develop a cultural expectation of worklessness. (HM Treasury, 2002, p.76) flourishing of cultural explanations, tapping into Murray's (1990) identification of a culturally distinct, deprived minority, whose culture undermines social cohesion

16. Major concentration of worklessness in social housing Overall, 9.1 million people were workless [in Spring 2006], nearly a third of them within the social rented sector. The worklessness rate in social housing was nearly twice that in the private rented sector � 23 percentage points higher. (Hills, 2007) but doesn't this reflect: restricted residential choices - associated with labour market disadvantage? residualisation of the social rented sector and access on the basis of need? Yes, but...... where a social tenant is affected by one disadvantage, their rate of worklessness is much higher than for those with the same disadvantage ... who do not live in social housing ... AND ... for any given number of overlapping disadvantages, those in social housing have lower employment rates. (Hills, 2007)

17. concentrated areas of social housing = segregated communities that nurture a culture that asserts values at odds with the work ethnic and undermines participation in paid employment and access to associated citizenship rights While today new social housing is in mixed tenure and mixed income communities, this government inherited a legacy of large estates of social housing which too often had become pockets of low employment and low aspiration. In this regard, John Hills� found that the proportion of workless households in social housing has increased from around 30 percent in 1981 to around 55 percent in 2006. (CLG, DWP, 2007)

18. This has been called a 'collapse' in employment rates among social tenants. And it's a major contributor to inter-generational poverty - with some children growing up without ever seeing an adult get up and off to work in the morning. Originally, council housing brought together people from different social backgrounds and professions but this has declined. We need to think radically and start a national debate about how we can reverse this trend, to build strong, diverse estates (Caroline Flint, Minister for Housing, Fabian Society Address, 5 February 2008)

19. Housing and Cohesion � The Prescription Challenge: reconstituting local communities....to promote cultural change Reconstitution through: change from within - challenging indigenous cultures and increasing social/cultural mix through interventions targeted at existing residents change from outwith - introducing diversity through population change

20. Change from within challenging indigenous cultures and increasing social/cultural mix through interventions targeted at existing residents Emerging example � tackling worklessness housing options services, bringing together advice on housing and employment social housing as a right to be earned through work the Working Neighbourhoods Fund and the involvement of social landlords

21. Galvanising community action on worklessness will be key to the new approach. The new Working Neighbourhoods Fund .... will support this ambition. It will stimulate councils working with communities to take a fresh look at the problems of worklessness, and find proactive and innovative solutions which build on our achievements to date. It provides for tangible rewards for local communities where targets are achieved. All members of the community could benefit from the financial incentives that will be introduced. Getting people into work would become a shared concern with everyone having something to gain from rising employment in their area. This new injection of peer support and peer pressure will go hand in hand with innovative approaches to engage people who have been out of work for lengthy periods. It is a new approach, a bold approach, and a community driven approach. (Foreword, CLG, DWP, 2007)

22. Change from outwith introducing diversity through population change Example � community cohesion and mixed communities a mix of housing of different types and tenures to support a wide range of households of different sizes, ages and incomes (AND ethnicities?) Housing agencies must urgently assess their allocation systems and develop programmes with a view to ensuring more contact between different communities and to reducing tension. � It is essential that more ambitious and creative strategies are developed to provide more mixed housing areas, with supportive mechanisms for minorities facing intimidation and harassment (Independent Review Team, 2001, P.43) tenure and stock diversification � stock transfer and new build widening access � reform of lettings and allocations (CBL) tenant participation, support and management

23. Housing and Cohesion � A Few Concerns! lack of rigorous analysis and indifferent attitude to evidence contrived ambiguity selectivity and denial � delegitimising particular areas of conflict and contestation viability of the proposed response?

24. Evidence � The Example of Community Cohesion In search of segregation: It is difficult to identify what is cause and what is effect in the development of segregated communities. It is equally difficult to be certain whether the geographical concentration of different communities in different areas always give rise to problems of community cohesion or whether other factors have to be present for difficulties to arise. (Denham Report, 2001; p13) not able to acquire information that allowed it to "take a really informed view about patterns of segregation and integration" therefore forced to "rely on anecdotal and limited information." but still recommend that a "suite of policies be developed in response to segregated neighbourhoods" (Community Cohesion Panel, 2004, p17).

25. Despite evidence to the contrary: no ghettos � polarised enclaves where a large proportion of an ethnic group's population reside - in England (Phillips, 1998) assimilation best describes the shifting pattern of minority ethnic settlement (although at different rates for different groups) (Johnston et al., 2002) Pakistani and Bangladeshi populations actively dispersing out of established areas of settlement during the 1990s (Dorling and Thomas, 2004) new geography of settlement associated with new immigration (Audit Commission, 2007)

26. The example of Bradford Ouseley (2001) self-segregation of South Asian population into 'comfort zones' Simpson (2004): increase in population in South Asian areas BUT driven by high reproduction rates and new immigration people leaving these areas are White and South Asian � net migrationary trend for both groups is out of the city fewer mono-racial areas of the city in 2000 than in 1990 qualitative studies reporting aspiration among ,particularly younger, minority ethnic households to move beyond established areas of settlement (e.g. Ratcliffe et al., 2001; Phillips et al., 2008)

27. Contrived Ambiguity Example � the slippery concept that is community belonging and identity central to conceptualisation of community BUT no effort made to define or clarify problematic or preferred identities glossing over weakness....or ....source of political strength? Community cohesion one the one hand - assertion of some notion of shared values and principles of Britishness on the other - hardening of differences associated with particular groups that are problematised for being different presented as bounded, homogenous and distinct e.g. South Asian/Muslim categorical identity presumed to exist and to be reproduced in segregated ethnic enclaves and to be a driver of behaviour that can challenge accepted norms and standards

28. Selectivity and Denial All culture and no class the problematising of 'different' and 'distinct' cultures the normalising of middle class, White British cultures structural forces off-limits Community Cohesion the deprivation and social marginalisation are denied the portrayal of the young men involved as criminals, ungrateful immigrants, disloyal subjects, cultural separatists and Islamic militants goes unchecked middle class segregation and isolationism is excluded from debate Worklessness failure to question the nature of the contemporary labour market or the nature of the job offer (low paid, insecure and casualised) Justification of hierarchical arrangements and delegitimising of particular areas of conflict and contestation

29. Viability of the Proposed Response? Community Cohesion effecting a change in settlement patterns demands addressing constraints on residential choice how to address racialised notions of space, labour market disadvantage and low incomes, reliance on resources in established areas of settlement? does the commitment exist are the levers to hand? Worklessness do people in worklessness have a lower cultural commitment to work? ....if so, will this be raised by threats to their residential and financial security AND by rubbing shoulders with working people? does residential integration inevitably lead to social interaction and prompt more 'positive' attitudes and outlook?

30. Closing Thoughts Housing and the cohesion agenda central to the agenda � potential to reconstitute communities increasingly subservient to wider social policy objectives? the distortion of planning and provision? spotlight on the social rented sector?

31. Closing Thoughts The Research Challenge 1. Structural survey of the policy framework questioning the presumed extent, nature and cause of the crisis assessing the feasibility and viability of the agenda for change 2. Exploring the dynamics of difference and diversity toward a more integrated analysis connectivity and disconnections 3. Accommodating difference, promoting indifference managing the tensions wrought by change

32. References Amin, A. (2002) Ethnicity and the multicultural city: living with diversity. Environment and Planning A, 34, 6, pp. 959-980. Audit Commission (2007) Crossing Borders: Responding to the Local Challenges of Migrant Workers. London: Audit Commission Burnett, J. (2007) Britain's 'civilising project': community cohesion and core values. Policy & Politics, 35, 2, p.353-357. CLG and DWP (2007) The Working Neighbourhoods Fund. London: Communities and Local Government and Department of Work and Pensions. Community Cohesion Panel (2004) The End of Parallel Lives? The Report of the Home Office (2001) Building Cohesive Communities: A Report of the Ministerial Group on Public Order and Community Cohesion. London: Home Office. Delanty, G. (2006) Community. London: Routledge Dorling D and Thomas B (2004) People and place. 2001: a census atlas. Bristol: Policy Press. Hills, J. (2007) Ends and Means: The Future Roles of Social Housing in England. London: LSE CASE Report 34. HM Treasury and DWP (2003) Full Employment in Every Region. London: The Stationery Office. Independent Review Team (2001) Community Cohesion. A Report of the Independent Review Team, Chaired by Ted Cantle. London: Home Office Johnston, R., Forrest, J. and Poulsen, M. (2002) Are there ethnic enclaves/ghettoes in English cities? Urban Studies, 39, 4, pp. 591-618. Murray, C. (1990) The Emerging British Underclass. London: Institute of Economic Affairs Oldham Independent Review (2001) One Oldham, One Future. Panel Report, chaired by David Ritchie. Oldham: Oldham Metropolitan Borough Council Ouseley, H. (2001) Community Pride not Prejudice. Making Diversity Work in Bradford. Bradford: Bradford Vision Phillips, D (1998) Black minority ethnic concentration, segregation and dispersal in Ratcliffe, P., with Harrison, M., Hogg, R., Line, B., Phillips, D. and Tomlins, R., and with Action Plan by Power, A. (2001) Breaking Down the Barriers: Improving Asian Access to Social Rented Housing. Coventry: CIH, on behalf of Bradford MDC, Bradford Housing Forum, The Housing Corporation and FBHO. Simpson, L. (2004) Statistics of racial segregation: measures, evidence and policy. Urban Studies, 41, 3, pp. 661-681. Social Exclusion Unit (2004) Jobs and Enterprise in Deprived Areas. London: ODPM.